Recovery Federal 

Interagency Operational Plan

Second Edition 

August 2016 

Recovery Federal Interagency Operational Plan 

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Table of Contents 

INTRODUCTION ....................................................................................................................................... 1

Mission, Purpose, and Scope .................................................................................................................. 1

Audience................................................................................................................................................... 3

Recovery Core Capabilities .................................................................................................................... 3

Situation ................................................................................................................................................... 5

Planning Assumptions and Critical Considerations ............................................................................ 5

CONCEPT OF OPERATIONS ................................................................................................................. 7

General Mission Objective ..................................................................................................................... 7

Mission Area Integration........................................................................................................................ 7

Organizational Structures for Recovery Coordination ..................................................................... 14

Operational Roles and Responsibilities ............................................................................................... 15

Key Operational Steps and Objectives ................................................................................................ 17

RECOVERY PREPAREDNESS ACTIVITIES .................................................................................... 24

Oversight, Plan Development, and Maintenance ............................................................................... 25

CORE CAPABILITY ANNEXES ........................................................................................................... 26

ANNEX A: OPERATIONAL COORDINATION ............................................................................... A-1

Purpose ................................................................................................................................................ A-1

Objectives and Considerations .......................................................................................................... A-1

Recovery Targets ................................................................................................................................ A-3

Federal Coordinating Structure ........................................................................................................ A-4

Resources ........................................................................................................................................... A-14

ANNEX B: PLANNING ......................................................................................................................... B-1

Purpose ................................................................................................................................................ B-1

Objectives and Considerations .......................................................................................................... B-3

Recovery Targets ................................................................................................................................ B-6

Federal Coordinating Structure ........................................................................................................ B-8

Resources ........................................................................................................................................... B-21

ANNEX C: PUBLIC INFORMATION AND WARNING .................................................................. C-1

Purpose ................................................................................................................................................ C-1

Objectives and Considerations .......................................................................................................... C-1

Recovery Targets ................................................................................................................................ C-1

Federal Coordinating Structure ........................................................................................................ C-2

Resources ............................................................................................................................................. C-9

ANNEX D: ECONOMIC RECOVERY ............................................................................................... D-1
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Purpose ................................................................................................................................................ D-1

Objectives and Considerations .......................................................................................................... D-1

Recovery Targets ................................................................................................................................ D-6

Federal Coordinating Structure ........................................................................................................ D-7

Resources ........................................................................................................................................... D-37

ANNEX E: HEALTH & SOCIAL SERVICES .................................................................................... E-1

Purpose ................................................................................................................................................ E-1

Objectives and Considerations .......................................................................................................... E-1

Recovery Targets ................................................................................................................................ E-6

Federal Coordinating Structure ........................................................................................................ E-6

Resources ........................................................................................................................................... E-17

ANNEX F: HOUSING ............................................................................................................................ F-1

Purpose ................................................................................................................................................ F-1

Objectives and Considerations .......................................................................................................... F-1

Recovery Targets ................................................................................................................................ F-8

Federal Coordinating Structure ........................................................................................................ F-8

Resources ........................................................................................................................................... F-32

ANNEX G: INFRASTRUCTURE SYSTEMS ..................................................................................... G-1

Purpose ................................................................................................................................................ G-1

Objectives and Considerations .......................................................................................................... G-1

Recovery Targets ................................................................................................................................ G-3

Federal Coordinating Structure ........................................................................................................ G-5

ANNEX H: NATURAL AND CULTURAL RESOURCES ................................................................ H-1

Purpose ................................................................................................................................................ H-1

Objectives and Considerations .......................................................................................................... H-1

Recovery Targets ................................................................................................................................ H-6

Federal Coordinating Structure ........................................................................................................ H-7

Resources ........................................................................................................................................... H-22

APPENDIX I: DEFINITIONS ................................................................................................................ I-1

APPENDIX II: LIST OF ABBREVIATIONS .....................................................................................II-1

APPENDIX III: AUTHORITIES AND REFERENCES ..................................................................III-1

Additional Relevant Authorities ......................................................................................................III-2
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Introduction

The National Preparedness System establishes a consistent and reliable approach to achieve the 

National Preparedness Goal and prepare for the threats and hazards that pose the greatest risk to the 

security of the Nation. The National Preparedness System integrates efforts across the five 

preparedness mission areas—Prevention, Protection, Mitigation, Response, and Recovery—and 

includes a series of planning documents to enhance national preparedness. As part of this effort, the 

National Planning System integrates planning across all levels of government and with the private 

and nonprofit sectors around key capabilities that can be scaled, as needed, to provide an agile, 

flexible approach to prevent, protect, mitigate, respond, and recover. 

The National Planning System includes the following elements: 

1. A set of National Planning Frameworks that describe the key roles and responsibilities to deliver 

the core capabilities required to prevent, protect, mitigate, respond, and recover; 

2. A set of Federal Interagency Operational Plans (FIOPs)—one for each mission area—that 

provides further detail regarding roles and responsibilities, specifies the critical tasks, and 

identifies resourcing and sourcing requirements for delivering core capabilities; 

3. Federal department and agency operational plans to implement the FIOPs; and 

4. Comprehensive planning guidance to support planning by local, state, tribal, territorial, and 

insular area governments, nongovernmental organizations, and the private sector. 

This Recovery FIOP provides guidance to implement the National Disaster Recovery Framework 

(NDRF), which sets the doctrinal guidance for how the whole community builds, sustains, and 

delivers the Recovery core capabilities identified in the National Preparedness Goal.1

It describes the 

concept of operations for integrating and synchronizing existing national-level Federal capabilities to 

support local, state, tribal, territorial, insular area, and Federal plans and is supported by Federal 

department-level operational plans, where appropriate. 

Mission, Purpose, and Scope 

The Recovery FIOP describes how the Federal Government delivers eight core capabilities for the 

Recovery mission area. It is a plan that provides guidance for implementing the NDRF. The 

Recovery FIOP provides guidance for effective delivery of recovery support to disaster-impacted 

local, state, tribal, territorial, and insular area jurisdictions. It provides a flexible structure that 

enables disaster recovery managers to operate in a unified and collaborative manner while preserving 

the civil rights and civil liberties of all community members. The Recovery FIOP describes how 

Federal recovery field leadership—the Federal Coordinating Officer (FCO) and Federal Disaster 

Recovery Officer (FDRC)—and Recovery Support Function (RSF) agencies and related entities 

work in coordination with nongovernmental and private sector organizations to support local, state, 

 

1

 The whole community includes individuals and communities, the private and nonprofit sectors, faith-based 

organizations, and all levels of government (local, regional/metropolitan, state, tribal, territorial, insular area, and 

Federal). Whole community is defined in the National Preparedness Goal as “a focus on enabling the participation in 

national preparedness activities of a wider range of players from the private and nonprofit sectors, including 

nongovernmental organizations and the general public, in conjunction with the participation of all levels of 

government in order to foster better coordination and working relationships.” Whole community includes all 

individuals, including people with disabilities and others with access and functional needs, families, households, 

communities, the private and nonprofit sectors, faith-based organizations, and local, state, tribal, territorial, and 

Federal governments. 
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tribal, territorial, and insular area recovery efforts. The Recovery FIOP consists of a base plan and 

eight core capability annexes. The Recovery FIOP is built on the National Incident Management 

System concepts and principles and promotes the whole community as full partners in recovery 

operations and national preparedness activities. 

The Recovery FIOP’s concepts and principles are active at all times and it includes guidance for 

post-disaster recovery operations across all disaster event phases, including recovery preparedness 

activities. The plan is scalable, providing interagency structures and processes applicable to 

moderate- to large-scale incidents yielding a Stafford Act Presidential declaration, as well as large 

and small incidents that do not receive a Stafford Act declaration. 

This FIOP also provides guidance on the integration and coordination of Recovery core capabilities 

and functions with those of the Prevention, Protection, Mitigation, and Response Frameworks and 

Interagency Operational Plans. 

The Recovery FIOP and core capability annexes describe: 

 The eight Recovery core capabilities as an organizing principle for Federal disaster recovery 

support; 

 How the Recovery FIOP will integrate with the Prevention, Protection, Mitigation, and Response 

FIOPs and their corresponding coordinating structures; 

 The organizational concept of the interagency recovery coordination structure in the field and 

how it relates to other field-level organizations; 

 The post-disaster FDRC and RSF activation, deployment, and evaluation process; 

 How the Federal interagency recovery coordination structure will adapt and interface with local, 

state, tribal, territorial, and insular area recovery organizational structures; 

 The role of the Mitigation Advisor, Unified Federal Review (UFR) Advisor, and other advisors 

and program liaisons; 

 The purpose and objectives of post-disaster recovery impact assessment and mission scoping 

processes; 

 The process for coordinating RSF activities and facilitating the application of Federal Recovery 

core capabilities in support of impacted local, state, tribal, territorial, and insular area 

communities; 

 The parameters for developing and implementing the Recovery Support Strategy (RSS); 

 Considerations in determining the timeline for demobilization and transition to steady state 

operations; and 

 The process by which RSF agencies use existing programs to enhance and leverage pre-disaster 

recovery preparedness and post-disaster recovery, mitigation, and resilience. 

The scope of this FIOP is not limited to disaster-focused authorities and capabilities, but 

encompasses a larger scope of authorities as described within Appendix III: Authorities and 

References. Within this broader scope, Federal departments and agencies apply a capability or 

capabilities using steady state authorities before, during, and after an incident. Delivery of a 

capability or capabilities may be directly linked to an event. Application of the plan may also be 

indirect, as when a Federal department or agency shifts programmatic priorities predicated on 

conditions post-event. 
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Audience 

While this document is primarily intended to provide guidance and serve as a reference for Federal 

departments and agencies, other recovery stakeholders (e.g., local, state, tribal, territorial, and insular 

area governments; nongovernmental organizations; voluntary agencies; and the private sector) 

engaged in their own recovery planning will find this Recovery FIOP useful in enhancing their 

understanding of how the Federal Government will organize to provide recovery support under the 

NDRF and how their planning efforts can be complementary. To this end, the principles contained in 

Comprehensive Preparedness Guide 101: Developing and Maintaining Emergency Operations Plans 

have been applied in the development of this document. 

Federal departments and agencies will develop and maintain department-level operational plans, as 

necessary, to deliver capabilities to fulfill responsibilities under the NDRF and this FIOP. 

Departments and agencies may use existing plans, protocols, standard operating procedures, or 

standard operating guides for the development of such plans. 

Recovery Core Capabilities

The National Preparedness Goal identifies national “core capabilities” for each of the five mission 

areas (Prevention, Protection, Mitigation, Response, and Recovery). As defined in the National 

Preparedness Goal, core capabilities are the distinct critical elements necessary to achieve the 

National Preparedness Goal that operate at multiple levels of government. The eight Recovery core 

capabilities defined in the National Preparedness Goal are depicted in Table 1. After an incident, the 

RSFs coordinate delivery of the core capabilities at the Federal level in support of local, state, tribal, 

and territorial recovery efforts. 

The Recovery FIOP includes eight recovery core capability annexes that describe how Federal 

agencies work together to support local, state, tribal, and territorial governments by delivering core 

capabilities during disaster recovery. 
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Table 1: Recovery Mission Area Core Capabilities 

Operational Coordination

Establish and maintain a unified and coordinated operational structure and process that 

appropriately integrates all critical stakeholders and supports the execution of core capabilities.

Planning

Conduct a systematic process engaging the whole community as appropriate in the development of 

executable strategic, operational, and/or tactical-level approaches to meet defined objectives.

Public Information and Warning

Deliver coordinated, prompt, reliable, and actionable information to the whole community through the 

use of clear, consistent, accessible, and culturally and linguistically appropriate methods to 

effectively relay information regarding any threat or hazard, as appropriate, as well as the actions 

being taken and the assistance being made available, as appropriate.

Economic Recovery

Return economic and business activities (including food and agriculture) to a healthy state and 

develop new business and employment opportunities that result in an economically viable 

community.

Health and Social Services

Restore and improve health and social services capabilities and networks to promote the resilience, 

independence, health (including behavioral health), and well-being of the whole community.

Housing

Implement housing solutions that effectively support the needs of the whole community and 

contribute to its sustainability and resilience.

Infrastructure Systems

Stabilize critical infrastructure functions, minimize health and safety threats, and efficiently restore 

and revitalize systems and services to support a viable, resilient community.

Natural and Cultural Resources

Protect natural and cultural resources and historic properties through appropriate planning, 

mitigation, response, and recovery actions to preserve, conserve, rehabilitate, and restore them 

consistent with post-disaster community priorities and best practices and in compliance with 

applicable environmental and historic preservation laws and executive orders.

The Recovery FIOP describes how Federal departments and agencies will partner with local, state, 

tribal, territorial, insular area, nongovernmental, and private sector partners to deliver the Recovery 

core capabilities within the range of their authorities, skills, and resources. 

Science and Technology Coordination for the Delivery of Recovery 

Core Capabilities

Science-based assessments of threats, hazards, vulnerabilities, and capabilities form the foundation 

for sound decisions about recovery investments that lead to the revitalization of infrastructure, health 

and social services, economic activity, and natural and cultural resources. The National Science and 

Technology Council Subcommittee on Disaster Reduction (SDR) coordinates interagency science 

and technology activities and investments that support the Recovery mission area core capabilities. 

SDR regularly assesses and identifies science and technology capabilities supporting Recovery 
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mission area core capabilities, gaps to achieving core capabilities, and actions to augment the 

application of science and technology capabilities. The Recovery Support Function Leadership 

Group (RSFLG) will actively coordinate with the SDR at the national level to facilitate the 

integration of best-available scientific and technological tools and information to augment the 

delivery of Recovery core capabilities. 

Situation 

The Strategic National Risk Assessment (SNRA) indicates that a wide range of threats and hazards 

continue to pose a significant risk to the Nation, affirming the need for an all-hazards, capabilitybased approach to preparedness planning. Risk is the potential for an unwanted outcome resulting 

from an incident, event, or occurrence, as determined by its likelihood and the severity of potential 

associated impacts. Risk is assessed based on applicable threats and hazards, vulnerabilities, and 

consequences. The SNRA also affirms the need for the Recovery FIOP to incorporate an all-hazards, 

capability-based approach to preparedness planning. The Recovery FIOP Concept of Operations is 

designed to be scalable to address the variety of different disaster incidents identified in the SNRA. 

For the purposes of Recovery FIOP development, the impacts of the greatest threats and hazards 

were identified, analyzed, and combined to create an all-hazards operational environment for 

planning purposes. The subsequent disaster recovery effort will require the coordinated capabilities 

of the Nation, to include local, state, tribal, territorial, insular area, and Federal assets; public and 

private sector resources; nongovernmental organizations; and individuals at large. 

During and after an incident, engaging the whole community is essential to national preparedness. 

Individuals and localities are key components in this engagement. With equal access to the pertinent 

knowledge and skills, all members of the community can contribute to national preparedness. 

Survivors within the impacted area may include people from religious, racial, and ethnically diverse 

backgrounds; individuals who do not read, have limited English proficiency (LEP) or are nonEnglish speaking; individuals with disabilities and others with access and functional needs2

, as well 

as individuals who live in the community and individuals who are institutionalized; older adults with 

and without disabilities; children with and without disabilities and their parents; individuals who are 

economically or transportation disadvantaged; pregnant women; individuals who have chronic 

medical conditions; those with pharmacological dependency; and owners of animals including 

household pet, service, and assistance animals. Their contributions must be integrated into 

preparedness efforts, including pre-disaster recovery planning, and their needs must be incorporated 

as the whole community plans for and delivers the core capabilities. 

Planning Assumptions and Critical Considerations 

The following information represents the planning assumptions and critical considerations used in 

the development of the Recovery FIOP. 

 A catastrophic incident may occur with no or little warning. 

 

2

 Access and functional needs refers to persons who may have additional needs before, during and after an incident 

in functional areas, including but not limited to: maintaining health, independence, communication, transportation, 

support, services, self-determination, and medical care. Individuals in need of additional response assistance may 

include those who have disabilities; live in institutionalized settings; are older adults; are children; are from diverse 

cultures; have limited English proficiency or are non-English speaking; or are transportation disadvantaged. 
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 A Presidential Major Disaster Declaration may or may not be issued under the authority of the 

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

concurrent response, recovery, and mitigation activities.

 For incidents that do not receive a Presidential declaration under the Stafford Act, the lead 

Federal response or recovery agency designated in law, regulation, or policy may appoint an 

FDRC to coordinate recovery activities.

 Local, inter- and intra-state, tribal, territorial, and insular area government mutual aid capabilities 

may be depleted and overwhelmed to exhaustion.

 Individuals in the affected disaster area may have disabilities or access and functional needs that 

may require physical, programmatic, and/or communications support or accommodation.

 Federal agencies, nongovernmental organizations, and businesses execute relevant support under 

their own authorities.

 Federal agencies will use established information sharing mechanisms to keep RSF Coordinating 

Agencies informed of relevant activities.

Critical Considerations

 The activities and functions addressed in the Recovery FIOP may occur concurrently with those 

addressed by the other mission area frameworks and FIOPs.

 RSFs will not independently initiate RSF field operations without FDRC coordination.

 This Recovery FIOP attempts to avoid repeating concepts that are covered within the Prevention, 

Protection, Mitigation, and Response frameworks and FIOPs.

 In general, the FDRC, in conjunction with the FCO or other lead Federal official, will coordinate 

most field-level activities from the Joint Field Office (JFO). As such, the Recovery FIOP will not 

describe the logistical and administrative support functions offered within the JFO or similar 

offices and structures (e.g., area field offices or processing centers). Federal support may be 

provided from remote locations.

 The extent of Federal support will be based in part on existing statutory authorities and the 

availability and applicability of resources.

 Overall community health impacts are cross-cutting and will be considered during recovery 

planning and decision making by all RSFs.

 Emergency Support Function (ESF) #15 (External Affairs) coordinates the delivery of recovery 

core capability Public Information and Warning at the Federal level.

 Opportunities for increasing community resilience during recovery is strengthened by 

collaboration among stakeholders, including State Disaster Recovery Coordinators (SDRC), 

Tribal/Territorial Disaster Recovery Coordinators (TDRC), and Local Disaster Recovery 

Managers (LDRM). That collaboration can enable a broad understanding of the recovery needs 

and capability gaps, understand tools and resources available, develop and deliver quality data 

that increases public awareness of future risk, and identify priorities to make informed decisions 

with best available data.

 All references to disaster-impacted communities are inclusive of:

 Individuals with disabilities and others with access and functional needs;
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 Individuals from racially and ethnically diverse backgrounds, including people with LEP;

 Seniors, children, and members of traditionally underserved populations; and

 Animals, including household pets, service and assistance animals, companion animals,

working animals, agricultural animals/livestock, wildlife, and other animals (see Appendix I:

Definitions).

Note: Civil rights laws require equal access and integration of all individuals without discrimination 

on the basis of race, color, national origin, disability, and age. 

Concept of Operations

The Concept of Operations outlines the overall mission objective for the Recovery FIOP, the 

organizational structure for Federal interagency recovery coordination, and the operational 

progression necessary for integrated Federal recovery support. Additionally, it describes how the 

incident-specific mission and organization may be defined to address the unique situation and 

facilitate recovery coordination with local, state, tribal, territorial, insular area, and nongovernmental 

organizations, including voluntary agencies and private sector stakeholders. 

General Mission Objective 

Supporting local, state, tribal, territorial, and insular area governments in their pursuit of successful 

recoveries is the general mission objective of this FIOP. Each community, state, tribe, or territory 

defines successful recovery outcomes differently based on its circumstances, challenges, recovery 

vision, and priorities. With consideration for such incident-specific and local variances, successful 

recovery support includes, but is not limited to: 

 Coordinating efforts to integrate the resources and capabilities of the Federal government to

support the implementation of local, state, tribal, and territorial recovery priorities;

 Actively pursuing operational efficiencies between Federal agencies to enable a more unified,

effective, and efficient recovery effort that is responsive to survivor and community needs; and

 Conducting mission activities in a way that respects and complements the capabilities and

available time commitment of community stakeholders.

Specific objective targets for each Recovery core capability and the corresponding RSF, as 

applicable, are described in the FIOP core capability annexes. 

Mission Area Integration 

Achieving the National Preparedness Goal requires the integration and linkage of the five mission 

areas: Prevention, Protection, Mitigation, Response, and Recovery. The primary relationship of the 

Recovery mission to the other four mission areas is depicted in Figure 1. 
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Figure 1: Relationship of the Five Mission Areas 

Mission area integration factors are identified to help address interdependencies, interactions, and 

information relating to shared risk or vulnerabilities and coordination points between the Recovery 

core capabilities and the other four mission areas. Specific tactics and mechanisms to address the 

integration factors are included in the core capability annexes and/or procedural guidance for the 

individual RSFs and other supporting organizations. Integration factors are identified when core 

capabilities and other mission areas meet the following criteria: 

 Have the potential to impact the other’s command, control, or communication systems;

 Operate concurrently;

 Provide or share resources and information; and/or

 Coordinate authorities for best/optimum utilization of resources.
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Table 2: Recovery Core Capability Integration Factors 

Recovery Core Capability: Operational Coordination

Prevention  Control access to crime scenes and preserve evidence potentially located within 

damaged and/or contaminated areas, which may impact access and timeliness for 

recovery activities.

Protection  Convene coordinating councils to develop common understanding of high priority 

national assets that have been damaged in a disaster and establish a coordinated

process to enable protective improvements during recovery.

Mitigation  Provide, via the Mitigation Advisor (or, when one has not been deployed, the 

Mitigation Coordinator), connectivity to mitigation resources and concurrent 

activities.

 Leverage leadership at all levels to address the resilience of the economy, 

housing, natural and cultural resources, infrastructure, and health and social 

services during rebuilding.

 At the national level, coordinate issues and programmatic changes between the 

Mitigation Framework Leadership Group and the RSFLG.

Response  Share resources and information with the National Response Framework (NRF) 

ESFs’ organizational structures, including at the Division Supervisor/Branch level.

 Provide senior-level decision makers with information and data related to long-term 

recovery and economic impacts generated during response operations.

 Coordinate concurrent recovery operations with response operations, including the 

phase out of response functions.

 Support the establishment of long-term recovery groups with the assistance of 

voluntary agency liaisons.

 Provide issue-specific guidance regarding continuity of support as recovery 

progresses to nongovernmental and private sector organizations serving 

individuals with access and functional needs, such as individuals with disabilities, 

those from religious, racial, and ethnically diverse backgrounds, and people with 

LEP.

 Promote integration between division supervisors and FDRC representatives to 

effectively communicate and execute the recovery mission.

Recovery Core Capability: Planning

Prevention  Ensure all available resources and response assets are identified and trained to fill 

relevant vulnerability gaps and meet evolving threats that may prolong recovery 

efforts.

Protection  Incorporate protection measures into recovery plans to harden targets and make 

communities more resilient.

 Analyze and describe the cascading effects of interdependent systems.

 Assess risk and threats/hazards identification to support and inform recovery 

operations.
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Recovery Core Capability: Planning

Mitigation  Ensure awareness of mitigation opportunities and issues in recovery plans via a 

Mitigation Advisor.

 Use existing mitigation plans to inform recovery planning post-disaster.

 Build upon community-based mitigation planning to inform pre- and post-disaster 

recovery planning.

 Employ lessons learned during the recovery process to inform future mitigation 

actions and plans.

 Apply mitigation initiatives and investments pre-disaster to reduce recovery 

resource requirements post-disaster.

Response  Support response and recovery operational planning through the Incident Action 

Plan (IAP) process.

 Coordinate the RSS and Incident Strategic Plan with the JFO Planning Section.

 Use geographic information system mapping and analysis products to support 

recovery efforts.

 Create links to resources to aid in the long-term recovery of the community through 

private sector liaisons.

 Support the integration of social vulnerability issues and solutions with the 

assistance of long-term recovery groups.

Recovery Core Capability: Public Information and Warning

Prevention  After a terrorist attack, manage the release of public information to protect ongoing 

investigative and intelligence activities in an effort to prevent follow-on attacks, 

save lives, and assist in the initiation of psychological support and other factors 

that contribute to the recovery of society from a collectively experienced event3.

 When a follow-on threat is identified, provide timely, actionable information to the 

public to save lives.

Protection  Coordinate information on critical infrastructure with interagency operational 

coordination centers.

Mitigation  Communicate mitigation concepts to community officials, homeowners, 

nongovernmental organizations, and private sector owners, operators, and 

managers.

 Capitalize on the critical post-disaster window of opportunity to influence public 

opinion to take steps toward mitigation and resilient rebuilding.

Response  Inform local, state, tribal, territorial, and insular area elected and designated 

officials on the availability of recovery programs.

 Re-establish sufficient communications and other infrastructure within the affected 

areas to support recovery initiatives.

 Provide communications support to local, state, tribal, territorial, and insular area 

governments with recovery communication needs.

 Ensure ESF #15 coordinates recovery information management requirements with 

FDRCs and RSFs.

 

3

 See the National Incident Management System Intelligence/Investigations Function Guidance and Field Operations 

Guide: http://www.fema.gov/media-library/assets/documents/84807
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Recovery Core Capability: Economic Recovery

Prevention  Ensure crisis response planning considers the mitigation of significant economic 

loss.

Protection  Promote innovative approaches and solutions to address preparedness, mitigation, 

and resilience issues within the business community before a disaster strikes.

Mitigation  Work at all levels to create disaster resistant economies and incentivize private 

sector and individual pre-disaster economic preparedness activities and mitigation.

Response  Link to ESFs #1 (Transportation), #2 (Communications), #3 (Public Works and 

Engineering), #10 (Oil and Hazardous Materials Response), #11 (Agriculture and 

Natural Resources), and #12 (Energy), and the FEMA Private Sector Coordinator.

 Coordinate with ESFs to determine how waivers granted by their member agencies 

during the response phase may have an impact on economic recovery.

 Coordinate with ESF #12 (Energy) as they analyze and model potential impacts to 

the electric power, oil, natural gas, and coal infrastructures; analyze the market 

impacts to the economy; and determine the effect the disruption will have on other 

critical infrastructure.

Recovery Core Capability: Health and Social Services

Prevention  Identify public health, medical, behavioral health, and social services implications 

of potential incidents.

Protection  Promote innovative approaches and solutions to address preparedness, mitigation, 

and resilience issues before a disaster strikes.

 Provide protection for health, including vaccination programs and pre-disaster 

disease management and community health assessments.

Mitigation  Develop community infrastructure to support healthy environment and healthcare 

access.

 Identify vulnerable healthcare and social service institutions for mitigation projects 

to ensure continuity of service provision and reduce subsequent disaster impact.

 Utilize the health impact assessment process to help inform and guide mitigation 

activities leveraging community health improvement plans.

 Promote public health best practices and coordinate behavioral health capabilities 

during pre-disaster recovery planning.

Response  Coordinate with ESFs #3 (Public Works and Engineering), #6 (Mass Care, 

Emergency Assistance, Temporary Housing, and Human Services), #8 (Public 

Health and Medical Services), and #11 (Agriculture and Natural Resources) and 

partners such as Regional Disability Integration Specialists to provide early 

situational awareness and ongoing data on the operational status of health and 

social service networks, support planning in identification of long-term recovery 

challenges, and facilitate transition of services provided through Federal response 

operations to state or locally administered steady-state programs.

 Conduct health and safety hazard assessments; disseminate guidance and 

resources to inform environmental health and safety practices for response 

personnel and affected populations.

 Monitor Behavioral Health grants if implemented and support surveillance and 

monitoring efforts for the need for continuation or initiation of Behavioral Health 

support.

 Identify key partners and individuals with access and functional needs in recovery 

planning.
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Recovery Core Capability: Housing

Prevention  No additional integration factors.

Protection  No additional integration factors.

Mitigation  Incorporate accessibility, resilience, sustainability, and mitigation measures into 

identified housing recovery strategies.

 Promote and broaden use of natural hazards and catastrophic insurance.

 Support the adoption and enforcement of a suitable building code to ensure 

resilient housing construction.

 Provide technical assistance and programmatic assistance to homeowners and 

landlords for resilient residential rebuilding.

 Provide National Flood Insurance Program (NFIP) data on insured and uninsured 

losses, repetitive losses, severe repetitive losses, and substantial damages to 

improve understanding of funding gaps and mitigation opportunities in housing 

recovery.

 Develop architecturally appropriate and accessible residential plan templates and 

neighborhood pattern books.

 Develop community risk profiles and guidance on integrating mitigation into 

residential rebuilding.

 Provide NFIP data on repetitive losses, severe repetitive losses, and substantial 

damage designations to tipping points of opportunity for neighborhood-wide 

residential resilient rebuilding.

Response  Coordinate with ESF #6 (Mass Care, Emergency Assistance, Temporary Housing 

and Human Services) and ESF #11 (Agriculture and Natural Resources) and 

provide relocation assistance for the smooth transition of survivors from sheltering 

and interim housing (including physically accessible interim housing for individuals 

with disabilities and others with access and functional needs and pet-friendly 

housing for disaster survivors with household pets) to permanent housing as 

quickly as possible.

 Identify strategies and options that address a broad range of disaster housing 

issues in conjunction with the State-led Housing Task Force members and the 

provision of input into the Disaster Housing Strategy.

 Identify opportunities to leverage temporary housing site construction to establish 

permanent infrastructure for housing in desirable locations.

 Identify the requirements for direct housing missions, alternative housing options, 

and synchronizing government assistance programs.
Recovery Federal Interagency Operational Plan 

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Recovery Core Capability: Infrastructure Systems

Prevention  Ensure crisis response plans for terrorist attacks upon infrastructure are current 

and meet the existing threat.

Protection  Integrate national-level data with local-level data (Office of Cyber and Infrastructure 

Analysis).

 Provide situational awareness on critical infrastructure through Protective Security 

Advisors located across the country.

 Maintain secure access and physical protective measures, including hardening as 

appropriate, for critical infrastructure, key nodes, and systems.

Mitigation  Incorporate resilience and sustainability measures into identified strategies.

 Leverage the Hazard Mitigation Grant Program and other funding sources with 

FEMA funded Public Assistance (PA) projects to support the implementation of 

alternate and improved projects that increase capacity and/or improve resilience.

 Plan for redeveloping community infrastructure that contributes to resilience, 

accessibility, and sustainability and can help mitigate potential vulnerabilities.

Response  Initiate critical infrastructure restoration prioritization during response with ESFs #1 

(Transportation), #2 (Communications), #3 (Public Works and Engineering), #10 

(Oil and Hazardous Materials Response), #11 (Agriculture and Natural Resources), 

#12 (Energy), and #13 (Public Safety and Security).

 Re-establish critical infrastructure within the affected areas to support recovery 

activities.

 Provide assistance to the private sector in restoring infrastructure by facilitating 

access and security with state authorities.

 Provide more detailed infrastructure analysis through the National Infrastructure 

Simulation and Analysis Center.

Recovery Core Capability: Natural and Cultural Resources

Prevention  No additional integration factors.

Protection  No additional integration factors.

Mitigation  Promote the principles of sustainable and disaster resistant communities through 

the protection of coastal barriers and zones, floodplains, wetlands, and other 

natural resources critical to risk reduction.

 Promote activities that cultural institutions can pursue to develop and implement 

strategies for the protection of cultural collections and essential records.

Response  Coordinate information sharing with ESF #11 (Agriculture and Natural Resources) 

regarding the development and application of measures and strategies to protect, 

preserve, conserve, rehabilitate, recover, and restore natural and cultural 

resources.

 Coordinate activities and information with ESF #10 (Oil and Hazardous Materials 

Response) specific to environmental contamination, including activities associated 

with hazardous waste collection, monitoring disposal of debris containing oil or 

hazardous materials, water quality monitoring and protection, and air quality.

 Support early protective measures that promote the long-term survivability of 

delicate/sensitive cultural records or resources.
Recovery Federal Interagency Operational Plan

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A more complete description of the other mission areas can be found in the Prevention, Protection, 

Mitigation, and Response Frameworks and FIOPs. 

Organizational Structures for Recovery Coordination 

The NDRF establishes the overarching coordinating structure to enhance recovery collaboration and 

coordination in support of disaster-impacted communities. The Recovery FIOP provides a more 

detailed organizational structure to execute the Recovery core capabilities after a disaster incident. 

Figure 2 provides a conceptual depiction of the key components of a typical interagency recovery 

coordination structure managed by the FDRC and its relationship to the FCO, State Coordinating 

Officer (SCO), and SDRC. The components of this coordination structure will vary depending on the 

scale and type of recovery support needs. Not all RSFs will be needed or appropriate to support every 

operation, nor will all of the other organizational components be necessary for every operation. 

Once appointed by the FCO, FEMA Regional Administrator, or designated lead agency, the FDRC 

has the responsibility to establish an interagency recovery coordination structure that is most 

appropriate to address the recovery issues and needs of local, state, tribal, territorial, and insular area 

jurisdictions and their respective recovery organizational structures. 

Figure 2: Interagency Recovery Coordination Structure 

Adapting to the Scope and Scale of Disaster and Support Needs 

The interagency recovery coordination structure is adaptable to meet the unique needs of a disaster 

and region. This allows Federal recovery support to be responsive to a wide range of recovery needs. 

In large part, establishing an appropriate management structure will be a function of the extent of 

recovery needs and the capacity of communities to meet those needs. The FDRC may activate only a 
Recovery Federal Interagency Operational Plan

15

few RSFs to address the more narrow needs of a less complex disaster, while all six RSFs would 

activate after a large or catastrophic incident. The coordination structure may be composed of only 

those RSFs that have the most relevant authority, expertise, and resources for the disaster recovery 

needs.

If necessary, the FDRC will adapt Federal interagency recovery coordination efforts to better align 

with the organizational structure adopted by the impacted government to interface effectively with 

the local structure, needs, and priorities. For example, if the state structure includes both a 

transportation and a dams/levees task force, the Federal Infrastructure Systems RSF would align 

itself to coordinate with both task forces. The FDRC may also establish special issues task forces 

(e.g., Watershed Task Force, Beaches Task Force). The FDRC and RSFs will capitalize on predisaster efforts initiated by the region and their recovery partners to inform post disaster support.

For incidents that do not receive a Presidential disaster declaration, the lead Federal response or 

recovery agency designated in law or regulation may appoint an FDRC to coordinate interagency 

recovery activities. In such cases, the lead Federal agency will have the flexibility to apply this 

structure as they deem necessary to inform the lead Federal official and strengthen the Federal 

recovery support effort. As demonstrated by USDA’s leadership of the interagency in response to the 

2012–2013 drought, an FDRC may be appointed by a lead agency to convene interagency partners 

and coordinate recovery activities across multiple states.

Operational Roles and Responsibilities

The Recovery FIOP describes the interagency recovery coordination efforts led by the FDRC. Shortterm recovery operations and program execution are managed by the JFO Operations Section as 

described in the Response FIOP. The FDRC is responsible for coordinating between the Operations 

Section and the interagency recovery coordination elements.

While the FCO and JFO are activated, the FDRC reports to the FCO and is primary advisor to the 

FCO on all recovery issues. The FDRC coordinates closely with the Operations Section, RSF Field 

Coordinators, and national core capability leads to ensure all appropriate Federal programs are 

represented within the interagency recovery coordination structure. As the FCO and JFO are 

deactivated, the FDRC shifts coordination efforts appropriately to maintain effectiveness of Federal 

recovery support.

The FDRC and SDRC consult with, and are advised by, the RSF Field Coordinators. To ensure the 

maximum visibility of RSF operations and coordination, the RSF Field Coordinators are involved in 

all appropriate recovery mission decision-making activities. While operationally reporting to the 

FDRC and in coordination with strategic objectives outlined in the RSS, the RSF Field Coordinators 

broker RSF field activities within their statutory or delegated authority. Each Field Coordinator 

works within the structures established in its respective core capability annex for communication and 

decision making.

The FDRC, SDRC/TDRC, and the RSF Field Coordinators will have direct access to and be 

informed by the Mitigation Advisor, UFR Advisor, and/or other program liaisons. The FDRC may 

also call upon other subject matter experts to provide additional advice or address stakeholder needs.

The Federal Disaster Recovery Officer (FDRO) provides direct day-to-day operational support to the 

FDRC in executing the disaster recovery mission, coordinates mission scoping assessment (MSA) 

processes, and helps in managing the development of the RSS and its implementation.
Recovery Federal Interagency Operational Plan

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The Recovery Coordination Group and Mission Support Group will work under the direction of the 

FDRC and manage various key functions to support interagency recovery coordination activities. 

These groups will support the FDRC and RSF activities as needed. 

The Operational Coordination core capability Annex elaborates on specific Federal leadership 

positions and groups that are critical to providing recovery support. The NDRF elaborates on roles of 

nongovernmental organizations, the private sector, voluntary agencies, and other broad ranging 

groups. 

The table below identifies the eight Recovery core capabilities established in the National 

Preparedness Goal, and the corresponding primary Federal organizational components. 

Table 3: Recovery Core Capabilities and Primary Organizational Components 

Recovery Core Capability Primary Organizational Components

Operational Coordination  FCO, FDRC, and FDRO

 Operations Section

Planning  FDRC 

 JFO Planning Section

 Community Planning and Capacity Building 

(CPCB) RSF**

Public Information & Warning  ESF #15 (External Affairs)

Economic Recovery  Economic RSF

Health and Social Services  HSS RSF

Housing  Housing RSF

Infrastructure Systems  IS RSF

Natural and Cultural Resources  Natural and Cultural Resources (NCR) RSF

** CPCB is primarily responsible for aiding states with support for local recovery planning. 

Coordination of the Response and Recovery Missions 

It is critical for the Response and Recovery mission areas to coordinate inclusion of RSF partners and 

stakeholders in ESF coordination and information sharing activities. Most post-incident recovery 

assessments and initiating activities occur simultaneously with response mission activities. To 

effectively deliver support to local, state, tribal, territorial, and insular area partners, it is critical that 

the two mission areas recognize the potential benefits of timing overlaps and information sharing in 

their mission areas. The following key milestones may indicate an increased demand for recovery 

process coordination and information sharing: 

 State, tribal, territorial, or insular area government requests RSF engagement; 

 State, tribal, territorial, or insular area government agrees that the complexity of recovery issues 

and challenges necessitate an active effort to coordinate Federal assistance; 

 State, tribal, territorial, or insular area government initiates its own recovery plan and activates its 

own recovery organization to manage recovery; and/or 

 The ESFs are demobilized. 
Recovery Federal Interagency Operational Plan

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Upon appointment, the FDRC will monitor response operations and work with the FCO and recovery 

stakeholders to minimize any cascading effects or impacts on recovery resulting from the immediate 

response. The FDRC will work to ensure that recovery activities do not impede ongoing response

operations. Federal Recovery and Response activities will be closely coordinated with the local, 

state, tribal, territorial, and insular area partners to prevent duplicative activities, promote effective 

information sharing, and leverage response contacts and resources. The FDRC and RSFs will use 

existing protocols and systems such as the IAP, common operating picture (COP), and sitreps 

established by the Unified Coordination Group (UCG) to ensure effective information sharing 

between ESFs and RSFs.4 Additionally, the FDRC will use the IAP process in use by the UCG to 

track short-term priorities.

Key Operational Steps and Objectives

While each recovery coordination operation will be unique to the needs of local, state, tribal, 

territorial, and insular area partners, they will be structured around very similar key operational steps. 

Outlining the key operational steps helps to ensure that recovery stakeholders at all levels have a 

shared understanding of the sequence and synchronization of activities around which they can plan to 

operate. Additionally, employing a consistent structure from operation to operation allows 

stakeholders to derive best practices from past experiences and apply them to future operations.

The steps listed below are designed to provide the flexibility necessary to address the unique 

recovery challenges of each incident while providing Federal recovery support in a consistent, 

timely, and efficient manner. They may also be applied to incidents without Presidential Stafford Act 

declarations, per the direction of the lead Federal agency.

Note that during the steps described below, agencies will continue to provide recovery support and 

deliver recovery programs under their respective authorities. The objective of the interagency 

recovery coordination mission is not the development of the MSA and RSS documents described 

below, but rather to provide the appropriate level of needed support to the state/tribal recovery 

efforts. Accordingly, the development of these documents should not delay coordination with 

state/tribal officials and the delivery of time-sensitive recovery support actions by agencies within the 

RSFs.

Key operational steps for interagency recovery coordination include the following:

1. Advance Evaluation Process. In instances where the impacts are extensive and the need for 

enhanced Federal coordination is readily apparent, as in the case of a Hurricane Sandy level 

event, the Advance Evaluation Process may be waived;

2. FDRC and RSF Activation and Deployment;

3. MSA Process;

4. RSS Development Process;

5. RSS Implementation; and

6. Transition and Return to Steady State Operations.

 

4 UCGs may be established following an incident that affects multiple states and/or regions. On a large, more 

complex Stafford Act incident, the UCG may consist of the FCO, SCO, FDRC, SDRC, and representatives of tribal, 

territorial, and other Federal entities with primary jurisdiction; the private sector; and/or nongovernmental 

organizations. The UCGs focus on providing support to on-scene response efforts and conducting broader support 

operations that may extend beyond the incident site.
Recovery Federal Interagency Operational Plan

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The objective of this multistep process is to develop and implement a coordinated approach to 

provide appropriate Federal support to impacted communities. The steps are often managed 

concurrently and in parallel during the course of the mission in response to the temporal issues raised 

by local, state, tribal, and territorial priorities. The RSS is the document that details the unified 

strategy or approach that FDRC and RSF agencies will take to support local, state, tribal, territorial, 

and insular area governments in their recovery from a disaster. 

Figure 3 below provides an illustration of the key steps, actions and outcomes, and a conceptual 

timeline of a prospective interagency recovery coordination effort. The actual timeline of the 

recovery coordination effort is determined by the achievement of the RSF goals in coordination with 

the FDRC. 

Figure 3: Enhanced Recovery Coordination Key Steps and Timeline 

Step 1: Advance Evaluation Process 

When the capability and/or capacity of the existing local, state, tribal, territorial, and/or Federal 

resources are exceeded or are projected to be exceeded, an enhanced level of recovery coordination 

support will be necessary. Advance Evaluation is a field-based process designed to assist the Federal 

Government in determining if recovery coordination mission support is likely needed to more 

effectively address the disaster recovery needs. 

If the need for an enhanced level of interagency recovery coordination support is not clearly evident, 

the FEMA Regional Administrator (RA) or the appointed FCO may request an Advance Evaluation 

Team to be deployed to conduct a rapid assessment of the current and anticipated impacts of a 

disaster and help to determine whether the existing local, state, tribal, territorial, and/or Federal 

Recovery core capabilities already in place are insufficient to help enable an effective recovery. Once 

deployed, the Advance Evaluation Team will conduct a quick assessment of the Recovery core 

capabilities and will recommend which additional recovery coordination/support resources (if any) 

should be called upon to conduct a more in-depth assessment (i.e., MSA). If it is determined that the 
Recovery Federal Interagency Operational Plan 

19

Recovery core capabilities have been or may be exceeded, the Advance Evaluation report will 

typically include two primary recommendations: 

1. Recommend the appointment of an FDRC (to address Operational Coordination needs); and 

2. Recommend if there is a need for the coordination support of a particular RSF or RSFs. 

In all situations, staff conducting the Advance Evaluation Process will consult the relevant agencies 

to inform their recommendations to the FCO, RA, or lead Federal official. Further, the 

recommendation of whether or not an RSF should be activated is consulted with the relevant national 

coordinators in advance of the completion of the report. 

In the case of a large-scale non-Presidentially declared incident, the Advance Evaluation Process 

may be directed by the lead Federal official. In these cases, the designated lead Federal agency would 

fulfill the FEMA RA, FCO, and possibly FDRC roles and responsibilities. In its interagency 

coordination role, FEMA may support the lead agency in activating and establishing scalable 

recovery coordination and support scalable recovery coordination and support structures. 

In events of sufficient scale and scope, such as Hurricane Sandy in 2012, the need for enhanced 

recovery coordination support will be readily evident and an Advance Evaluation Process should not 

be necessary. 

Step 2: FDRC and RSF Activation and Deployment 

Once the FDRC is activated, the level of support needed and the length of any deployment will vary 

depending on the scale and scope of disaster impacts and an ongoing assessment of the current 

capacity of impacted states and communities to recover. 

The FDRC will engage with the RSF National Coordinators, FEMA Regions, JFO elements, and 

RSF contacts at the regional level to provide situational awareness prior to RSF activation. This may 

include holding teleconferences with RSF agencies to maintain situational awareness. 

FDRCs and RSFs will provide various types of support to local, state, tribal, territorial, and insular 

area entities, each requiring different levels of activation and deployment of Federal assets. For the 

purposes of the Recovery FIOP, these are defined as follows: 

 Activation is when a Federal (agency) recovery asset is asked to provide support to an actual or 

potential disaster incident from their primary work location (i.e., participate in information 

sharing teleconferences, video teleconferences, and email communication). 

 Deployment is when a Federal (agency) recovery asset is asked to mobilize to the field (in most 

cases a JFO) to provide support to an actual or potential disaster incident in support of an FDRCRSF operation. 

The RSFs are activated by the FDRC. The FDRC may activate all the RSFs in the event of a largescale or catastrophic incident or may activate select RSFs when significant impacts to particular 

sectors of the community are reported. RSF activation will be based on an initial assessment of needs 

and in consultation with RSF coordinating and Primary Agencies. 

RSF activation entails the designation of a Field Coordinator who is responsible for the leadership 

and coordination of Federal recovery efforts related to their relevant core capability. The Field 

Coordinator is usually deployed and additional staff support may be deployed or remotely engaged to 

supporting the specific RSF mission. 

The FDRC will deploy advisors (Mitigation Advisor, External Affairs Advisor, Disability Integration 

Advisor, UFR Advisor) to support cross-cutting coordination requirements. 
Recovery Federal Interagency Operational Plan

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The FDRC may, in coordination with the RSF Field and/or National Coordinator, support 

deployment of individual agencies via:

 Mission Assignments (MA);

 Interagency agreements (IAA) or memorandums of understanding (MOU), when appropriate; or

 Under other Federal authorities, when appropriate (in such cases, the protocols of the RSF 

agency and the lead Federal agency will apply).

Step 3: Mission Scoping Assessment Process

The Advanced Evaluation and the MSA processes are closely linked and contribute to appropriately 

sizing and scaling operational resources to ensure an efficient and effective execution of the 

interagency Recovery coordination mission.

Once the Advance Evaluation has been completed and the lead Federal official has determined that 

the designation of an FDRC and activation of RSF(s) is warranted, the FDRC will be appointed. The 

FDRC may then request that the relevant RSF Coordinating Agencies be Mission Assigned to 

conduct an MSA.

During the MSA development processes, the FDRC and RSF Field Coordinators collect, analyze, 

and apply specific Recovery core capability expertise to identify the recovery needs and issues. The 

MSA is a broad assessment of the recovery impacts and captures the “high points” of the major 

themes of recovery challenges per RSF. In conducting the MSA, the RSFs and the FDRC support the 

broad engagement of recovery stakeholders from the whole community and the active input from 

each of the RSF primary agencies and supporting organizations, as needed. The consolidation of the 

summarized findings from the relevant RSF Field Coordinators constitutes the MSA.

The MSA helps the FDRC, RSF Field Coordinators, and other decision makers better understand the 

type and level of recovery support that will be needed, and it will play a critical role in helping each 

RSF Field Coordinator define the scope of their mission. The MSA shapes the Recovery 

Coordination mission and establishes a foundation and drives the focus for the development of the 

RSS.

The goal of the MSA process is not to create a comprehensive impact assessment or a fully 

articulated plan, but to identify the predominant recovery needs and issues that can be addressed 

within or across the responsibility, resources, programs, and authorities of the RSF agencies.

The MSA process should take about 30 days to complete from the time that FDRC determines the 

RSF Field Coordinators mission capable to the time when the MSA Report is completed.

The MSA is an FDRC-RSF internal document that is generally not shared with external stakeholders. 

However, it may be distributed to local and state recovery stakeholders with FDRC, SCO, and RSF 

National Coordinator approval. Otherwise, a public-facing MSA executive summary may be 

developed to communicate the major findings of the MSA with external stakeholders. These 

recovery stakeholders may have provided input into the MSA development process and will likely 

play a key role in the recovery process.

The MSA process may show that the needs or issues that were identified or anticipated in the 

Advance Evaluation Process are not beyond the capacity of existing local, state, territorial, or tribal 

capacities to address. In such cases, a Federal RSS may not be necessary, and one or more RSFs may 

be deactivated. The Planning core capability annex elaborates on the MSA development process.
Recovery Federal Interagency Operational Plan

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Step 4: Recovery Support Strategy Development Process

The RSS is a strategic level document that describes the approach, strategies, and relevant resources 

the Federal agencies, departments, and collaborative partners will apply to help address the recovery 

needs, issues, and ongoing recovery efforts of the local, state, and tribal governments. Federal 

agencies, departments, and collaborative partners can bring a very wide range of resources and 

capabilities to the table in support of recovery efforts in a post-disaster environment. The process of 

developing the RSS helps to sort out, identify, harmonize, and sequence a wide range of applicable 

and potential recovery support activities and resources. The RSS must capture the suite of 

capabilities that can resolve or lessen the consequences of the issues described in the MSA. These 

capabilities can include actions already undertaken by the FDRC or RSFs, steady-state resources that 

can be leveraged to support recovery priorities, and further actions that could be undertaken by the 

state, tribal, territorial, or insular area government to engage further Federal agency assistance.

The timely development of the RSS is critical. If the field leadership allows the RSS development to 

take too long or delays the release, strategies contained in the RSS can be easily overtaken by 

ongoing or real-world recovery activities, diminishing the RSS’s strategic planning value.

The development of the RSS will employ best available scientific and technological understanding 

and tools to describe recovery challenges across core capabilities, and leverage the scientific 

community’s input to identify potential solutions to ensure sustained recovery. Federal agencies have 

existing mechanisms to rapidly provide analysis and decision support capabilities throughout the 

recovery phase.

Examples of previous deployment of Federal science and technology capabilities for recovery 

support include the Department of the Interior’s Strategic Sciences Group (DOI SSG) in the 

Deepwater Horizon oil spill and the Hurricane Sandy Rebuilding Task Force’s Science Coordination 

Group after Hurricane Sandy. The DOI SSG has previously provided science-based assessments of 

interdisciplinary scenarios, rapidly assembled multi-disciplinary teams of scientists across all 

organization types including academia, and delivered analytical results to support decision making. 

The Hurricane Sandy Rebuilding Task Force’s Science Coordination Group provided on-going

scientific expertise to ensure that actionable scientific information, such as characterizing evolving 

hazard risk due to climate change impacts, could inform and support the policy recommendations of 

the Task Force.

The FDRC should utilize existing scientific capabilities within Federal agencies. Interagency 

coordination entities, such as the National Science and Technology Council Subcommittee on 

Disaster Reduction, can facilitate Federal science and technology support for the FDRC.

Step 5: Recovery Support Strategy Implementation

Upon approval of the RSS by the lead Federal official, in coordination with the state, territorial, or 

tribal representative, the FDRC leads the implementation of the RSS in coordination with local, state, 

tribal, territorial, and insular area partners. While previous steps focused on information gathering 

and assessment, RSS implementation may consist of recovery support field operations, 

program/technical support from regional or headquarters locations, and departments and agencies 

implementing their existing authorities to support recovery. As the RSS is tailored to state, territorial, 

tribal, and community needs, each recovery support operation will be based on its own unique 

characteristics. FDRC and RSF timelines will reflect the following considerations:

 Type of Federal effort or resources to be provided in support of recovery;

 Technical assistance
Recovery Federal Interagency Operational Plan

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 Peer-to-peer workshops

 Training

 Integrated resource guides

 Recovery planning support

 Methods for tracking the effectiveness of the support being provided; and

 Measures to ensure effective coordination and collaboration.

It is the FDRC’s responsibility to provide guidance and direction and to ensure that the strategic 

objectives identified in the RSS are achieved in a timely manner and in close coordination with local, 

state, tribal, territorial, and insular area recovery partners. The FDRC may use the IAP process and 

other management tools in place at the JFO to track short-term priorities and progress toward longerterm milestones outlined in the RSS.

Recovery Progress Tracking and Management

The FDRC will manage and track the progress of Federal recovery support efforts throughout the 

recovery operation to ensure that necessary adjustments in Federal support are implemented to reflect 

evolving conditions and needs. Progress will be measured by achievement of results and metrics 

outlined in the RSS in coordination with local, state, tribal, and territorial officials. Using the RSS as 

the strategic guide and set of benchmarks, the FDRC will evaluate the adequacy and pace of recovery 

support and work with respective jurisdictions to identify gaps and/or additional support 

requirements.

The FDRC and SDRC/TDRC will coordinate communication between local, state, tribal, territorial, 

insular area, and Federal representatives and stakeholders regarding the status of the recovery 

planning process, the timeline for Federal engagement, and expected outcomes of the recovery 

support efforts.

The Operational Coordination core capability annex elaborates on RSS implementation.

Step 6: Transition and Return to Steady State Operations

This section addresses criteria for the demobilization and transition of RSFs to steady state 

operations and the corresponding role of the FDRC in that process. Demobilization is the removal of 

RSF assets and resources from the field. Demobilization does not necessarily signify the end of a 

recovery support mission, as those activities will transition in some cases to other forms of support. 

The FDRC will collaborate with RSF National Coordinators and their local, state, tribal, territorial, or 

insular area counterparts to define the timing for transition of RSF activities for remote support 

and/or existing agency program delivery.

Demobilization of deployed recovery assets is likely to occur gradually by the RSFs, especially when 

multiple communities with various types of disaster impact and levels of recovery capacities are 

involved.

Considerations for determining the timeline for demobilization may include the following:

 The community completes its recovery planning process and creates a recovery plan;

 The community is on track to acquire the needed internal capability and external support for 

implementing and managing its recovery;

 Key tasks that are directly linked to the achievement of RSS strategic goals are complete; and
Recovery Federal Interagency Operational Plan

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 The coordination and technical assistance needed to accomplish the RSS objectives have been 

provided.

As a community’s capacity increases, it can execute recovery activities with less outside support, and 

ongoing RSF functions and activities can gradually transition to the corresponding local, regional, 

state, tribal, territorial, or insular area officials. After an RSF demobilizes, Federal assistance may 

continue in the following forms:

 RSF agencies may resume steady state operations supporting the community’s recovery through 

existing programs;

 Agencies’ existing programs may undertake an enhanced coordination role with other recoveryrelated programs under the continued leadership of the FDRC;

 Agencies may provide targeted technical assistance and coordination support at the request of 

local, state, tribal, territorial, and insular area officials;

 Agencies may launch new public/private partnerships tailored to disaster recovery needs; and

 Other types of engagement:

 Project-based support;

 Compliance support;

 Recovery financing technical assistance;

 Ongoing resource allocation/coordination;

 Guidance on measuring recovery progress;

 Monitoring and improving the efficiency and effectiveness of assistance; and

 Advance hazard mitigation principles and practices in recovery implementation.

After RSF demobilization and responsibilities have been transitioned to corresponding agency 

components, the FDRC may also demobilize. After demobilization, the FDRC will maintain contact 

with and continue to be a resource for those communities that received Federal recovery support.

The FDRC will take the following actions:

 Address, in coordination with appropriate departments and agencies, potential obstacles and 

needs that were not foreseen during the RSS planning process;

 Monitor Federal support of the local recovery efforts to ensure that recovery support activities are 

moving as planned, which includes monitoring the efficiency and effectiveness of the approach 

used to support and implement recovery projects;

 Document best practices to increase risk reduction and community resilience;

 Monitor the Federal approach based on ongoing recovery needs and issues that may arise in the 

affected local, state, tribal, territorial, and insular area communities as they implement their 

recovery effort; and communicate changes to local, state, tribal, territorial, and insular area 

leaders to ensure concurrence and minimize disruptions, if appropriate;

 Host/facilitate coordination and after-action review meetings among Federal agencies, 

nongovernmental organizations, private sector partners, and local, state, tribal, territorial, and 

insular area recovery leaders, as needed, to share information, help avoid duplication, and 

identify gaps and issues affecting multiple agencies in the delivery of recovery assistance; and
Recovery Federal Interagency Operational Plan

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 Continue in implementation and monitoring mode, providing coordination among agencies, as 

issues arise. 

Recovery Preparedness Activities

Recovery preparedness activities such as planning, training, outreach, and normal day-to-day 

activities within departments and agencies occur, though to varying degrees, depending on the 

individual department or agency’s mission and resources. Steady state roles and responsibilities may 

include the following: 

 Maintaining situational awareness; 

 Developing, reviewing, updating, and exercising pre-disaster recovery plans and standard 

operating procedures to incorporate best practices and lessons learned; 

 Identifying opportunities and developing efficiencies for environmental and historic preservation 

reviews of disaster recovery activities among local, state, tribal, and federal 

agencies/governments; 

 Reviewing the readiness, continuity plans, and deployment posture of personnel, resources, and 

logistics support systems; 

 Maintaining dialogue and communications among local, state, tribal, territorial, insular area, and 

Federal governments, the private sector, and nongovernmental organizations to strengthen 

relationships and identify shortfalls and needs; 

 Conducting forums necessary to ensure regular communication among Recovery partners (e.g., 

quarterly Regional Interagency Steering Committee meetings); 

 Pre-designating key Federal officials and identifying Recovery organizational structures (e.g., 

FDRCs, Field Coordinators, and other key Recovery staff); 

 Establishing and maintaining training and credentialing programs for Recovery staff, including 

FDRC professional development; 

 Developing, reviewing, and establishing pre-scripted MAs, MOUs, and IAAs; 

 Maintaining a program to evaluate exercise participation and real-time recovery efforts, capture 

lessons learned, and make improvements in capabilities; 

 Ensuring the safety and health of personnel by exercising health and safety protocols and 

practices, ensuring proper training, and providing appropriate personal protective equipment; 

 Coordinating with the SDRC/TDRC to assist with the state/tribal/territorial recovery plan; 

 Nurturing effective relationship building with voluntary, faith-based, private sector, and 

community organizations, as well as whole community representatives, as part of recovery 

preparedness activities; 

 Collaborating with stakeholders to develop and deliver quality data that increases public 

awareness and leads to action that reduces risk to life and property through a process that 

includes hazard mitigation planning; 

 Identifying local, state, tribal, territorial, and insular area managers or administrators, including 

floodplain managers, to be integrated into pre-disaster planning and decision making; 
Recovery Federal Interagency Operational Plan

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 Engaging NDRF stakeholders in partnership building activities to ensure a corporate 

understanding of roles and responsibilities and that basic communications processes are 

established pre-activation;

 Identifying opportunities for increased collaboration through integration of mitigation concepts in 

training activities for field staff, other Federal departments and agencies, and local, state, tribal, 

territorial, and insular area partners; and

 Working with other Federal departments and agencies through the coordinating structures of the 

RSFs to ensure that each has an understanding of the tools and resources available to increase 

community resilience.

Oversight, Plan Development, and Maintenance

This FIOP will be regularly reviewed to evaluate consistency with existing and new policies, 

evolving threats and hazards, and experience gained from use. Interagency partners will be engaged 

in the review and maintenance process for this FIOP. The review and maintenance process may 

include developing incident-specific and classified annexes, which include the delivery schedule for 

Federally coordinated assets and resources, as appropriate. The FIOP will be updated periodically, as 

required, to incorporate new executive guidance and statutory and procedural changes, as well as 

lessons learned from exercises and actual incidents. Significant updates to the Recovery FIOP will be 

vetted through a Federal senior-level interagency review process.
Recovery Federal Interagency Operational Plan

26

Core Capability Annexes

The NDRF defines eight Recovery core capabilities—critical functions to enable preparedness and 

recovery—as identified in the National Preparedness Goal. Using the core capabilities as an 

organizing principle for the FIOP annexes, the approach aligns programs and other resources to core 

capabilities allowing for the mapping of specific support tasks to desired strategic outcomes. Linking 

discrete programs and resources to core capabilities improves unity of effort, strategic planning 

processes, and program oversight and management, all in support of achieving unified strategic 

priorities. The three common core capability annexes (Operational Coordination, Planning, and 

Public Information and Warning) are designed to enhance integration across the RSFs and all five 

mission areas. The eight core capability annexes to the Recovery FIOP are listed below. 

 Annex A: Operational Coordination 

 Annex B: Planning 

 Annex C: Public Information and Warning 

 Annex D: Economic Recovery 

 Annex E: Health and Social Services 

 Annex F: Housing 

 Annex G: Infrastructure Systems 

 Annex H: Natural and Cultural Resources 
Recovery Federal Interagency Operational Plan 

A-1 

Annex A: Operational Coordination

Purpose 

This annex describes the delivery of the common Recovery core capability of Operational 

Coordination. Specifically, this annex provides guidance on how Federal agency leadership 

responsible for the Operational Coordination core capability will promote pre-event recovery 

readiness efforts and organize and orchestrate Federal activities and resources to better support local, 

state, tribal, and territorial recovery after a disaster. All Federal agencies that support disaster 

recovery have responsibilities for ensuring effective Operational Coordination. As outlined in Table 

A-1, the Federal Emergency Management Agency (FEMA) is the overall lead agency for this core 

capability, the Recovery Support Function (RSF) Coordinating Agencies are responsible for 

operational coordination of their respective RSFs, and all agencies support operational coordination 

by providing leadership for their areas of subject matter expertise and program management. For a 

specific disaster, the responsibility for the Operational Coordination of Federal recovery activities 

lies primarily with the Federal Coordinating Officer (FCO) and the Federal Disaster Recovery 

Coordinator (FDRC). The FDRC receives critical support in meeting this responsibility from the core 

capability lead agencies and RSF Coordinating Agencies. This annex focuses on these relationships, 

but all departments and agencies supporting a recovery effort, directly or indirectly, have an 

obligation to plan and operate within the structure and processes presented in this annex. This annex 

also highlights the role of our public and private sector partners at the local, state, tribal, and 

territorial levels, and gives references to additional guidance documents for improving our Nation’s 

recovery readiness and capacity-building. 

Objectives and Considerations 

The Operational Coordination Recovery core capability ensures central coordination of the other 

seven Recovery core capabilities, which include Public Information and Warning, Planning, 

Economic Recovery, Health and Social Services, Housing, Infrastructure Systems, and Natural and 

Cultural Resources. 

The following sections outline post-disaster and pre-disaster objectives and considerations for 

delivery of the Operational Coordination Recovery core capability. One overarching principle that 

bridges pre- and post-disaster activities is the promotion and incorporation of mitigation and other 

measures that improve local, state, tribal, and territorial resilience and sustainability. 

Post-Disaster Considerations 

Post-disaster, agencies delivering the Operational Coordination core capability will synchronize and 

support the effective execution of all Recovery core capabilities. The intent is to maximize the 

impact of Federal assistance on local, state, tribal, and territorial recovery. Key post-disaster 

considerations include improving how Federal assistance can be better leveraged, more timely 

delivered, easier to access, and more relevant to local, state, tribal, and territorial recovery. 

 Leveraging: Recognizing that Federal assistance is only a part of the total assistance needed for 

local, state, tribal, and territorial recovery, a key consideration is to improve how Federal 

assistance can be better leveraged to spur the local recovery effort and attract additional resources 

from non-Federal sources. The field leadership responsible for Operational Coordination will 

coordinate the other Recovery core capabilities with this focus in mind, and encourage activities 

that will lead to increases in total financial, technical and other assistance available for local, 

state, tribal, and territorial recovery. Such activity may include facilitating the creation of 
Recovery Federal Interagency Operational Plan

A-2

partnerships between Federal agencies and local, state, tribal, and territorial stakeholders in the 

private, nonprofit, and public sectors to promote the latter’s participation and investment in their 

community’s recovery plans and projects.

 Timeliness: Ensuring timely assistance is another key consideration for Operational 

Coordination. Delayed assistance can slow down recovery momentum and undermine efforts 

such as forging partnerships. The field leadership will promote coordinated and concerted efforts 

on the part of the various Federal agencies and programs to help reduce delays and speed up 

when necessary the delivery of grants, loans, technical, and other assistance—provided that the 

assistance is applicable and appropriate, and the local, state, tribal, and territorial applicants are 

eligible. This will require the field leadership to facilitate collaboration among the different 

agencies and programs, and help address issues such as duplication of benefits and conflicts 

when they arise.

 Ease of Access: Identifying, innovating, and implementing ways that can make Federal

assistance more visible and understandable, its application and approval processes more 

streamlined and transparent, and its administration and compliance requirements less burdensome 

and expensive will be one of the top considerations for accomplishing Operational Coordination. 

Without the assistance being accessible and easier to get and use, the timeliness consideration 

cited above will be difficult to meet. The field leadership will support agency members of all 

Recovery core capabilities to find and execute means and methods for this aim, such as 

consolidating environmental reviews, or instituting policies that expand options for mitigation 

funding.

 Relevance: Determining and delivering assistance that is applicable, appropriate, or in other 

words, useful and relevant for local, state, tribal, and territorial recovery is a primary 

consideration for Operational Coordination. Timeliness and ease of access, two factors cited 

earlier, become moot if assistance turns out to be irrelevant—or worse, counterproductive. The 

field leadership will promote and perform activities that help align Federal recovery assistance 

with local, state, tribal, and territorial recovery priorities and needs. This starts with field 

leadership coordinating disaster impact assessments that can be jointly performed. Later, the field 

leadership can facilitate partnerships and support whole community participation in recovery

planning activities to help understand local, state, tribal, and territorial recovery priorities and 

develop assistance that best meet the latter’s recovery needs.

Pre-Disaster Considerations

During steady state, or when there is no active disaster mission, field leaders responsible for 

Operational Coordination can focus on activities that increase our Nation’s disaster recovery 

readiness. The role of agencies leading and supporting the Operational Coordination core capability

is to engage all recovery partners in working with and supporting national and regional local, state, 

tribal, and territorial partners in pre-disaster recovery planning and capacity building. The intent is to 

build up both the Federal and local, state, tribal, and territorial recovery capabilities and capacities 

prior to incidents. Key pre-disaster considerations for agencies include improving existing plans and 

procedures for disaster recovery support, dedicating and training staff, establishing recovery focused 

and scalable organizational structures, and developing recovery funding mechanisms and sources.

 Plans & Procedures: Creating and updating plans and procedures for more effective and 

efficient disaster recovery operations and collaboration by and between Federal agencies and 

local, state, tribal, and territorial partners is a primary pre-disaster consideration. To implement 

that consideration, Federal agencies are expected to develop internal standard operating 

procedures for how agency staff and resources will support the implementation of the 
Recovery Federal Interagency Operational Plan

A-3

Operational Coordination core capability. In addition to facilitating internal Federal recovery 

capability planning and capacity building, Federal agencies under Operational Coordination, in 

particular offices and staff at the regional level, can play an important role in promoting and 

supporting local, state, tribal, and territorial recovery preparedness planning and process 

improvement efforts. This may include updating the recovery component of the local emergency 

management plan, or developing a Regional All Hazards Interagency Operational Plan.

 Staffing: Recruiting and retaining personnel who will have the knowledge, skills, and abilities 

(KSA) to manage and carry out tasks essential to disaster recovery is another important 

Operational Coordination pre-disaster consideration. All agencies that support recovery will 

identify the expertise and skillsets needed to successfully deliver Recovery core capabilities and 

where feasible, pre-designate key recovery staff who can be activated and/or mobilized, as 

needed, in the event of a disaster that requires recovery coordination and assistance.

 Training/Exercising: Training and exercising, especially during steady state, will be critical 

given that not every designated staff will possess all the requisite KSA or the operational and 

collaborative experience prior to an actual disaster. Where feasible and appropriate, trainings and 

exercises should engage governmental and nongovernmental audiences to build KSAs and 

relationships that can facilitate post-disaster coordination, communication, and collaboration. 

Training targeted toward Federal personnel should prepare them to deliver their core capability 

within the interagency coordination framework.

 Organization: Determining how Federal Recovery core capabilities can be best organized, 

scaled, staffed, and led to maximize Federal assistance impact for local, state, tribal, and 

territorial recovery and operational efficiency and effectiveness for the Federal government is a 

key consideration for field leadership. Pre-incident, the RSF Coordinating Agencies should 

prepare guidance for organizational structure based on various disaster scenarios, exercise 

operational processes crucial for the deployment and management of resources, improve 

protocols for internal and external communications and coordination, and develop performance 

milestones and contingency options. Importantly, agencies should designate and prepare 

leadership and other key personnel to ensure Federal flexibility and responsiveness to any 

incidents.

 Funding: Establishing funding mechanisms to ensure that when needed after a disaster, internal 

Federal resources can be smoothly and expeditiously mobilized and paid for is a critical predisaster consideration for recovery coordination. Another consideration is having policies, 

programs and processes identified and improved to ensure proper and timely delivery of 

financial, technical, or other assistance for local, state, tribal, and territorial recovery. To 

accomplish both types of funding needs, agencies with roles in recovery coordination can 

facilitate interagency agreements and improve processes for receiving and administering disaster 

funds or special congressional appropriations.

Recovery Targets

Federal agencies with Recovery Operational Coordination roles have developed a set of disaster 

recovery readiness targets necessary for delivering this core capability. These recovery targets, 

presented as target statements and sub-targets when applicable, describe disaster mission objectives 

and activities that must be completed when applicable.

1. Maintain and sustain up to seven concurrent recovery coordination complete missions. Each 

complete mission will include staff who are trained, knowledgeable, and appropriately matched 

with a mission for their experience level.
Recovery Federal Interagency Operational Plan

A-4 

1.1.Establish a Federal support structure that meets the needs of the incident (FDRC, SME, field 

coordinators, etc.), to include if applicable, Field Coordinators, SMEs, Mitigation Advisor, 

External Affairs Advisor, Disability Integration Advisor, Tribal Affairs Advisor, Unified 

Federal Review (UFR) Advisor, etc.

2. Ensure that effective communications are maintained between field operations and the Recovery 

Support Function Leadership Group (RSFLG). 

2.1.When necessary, establish communication opportunities to convene RSF National 

Coordinators and applicable field staff to discuss incident-specific recovery challenges. 

2.2.On a monthly basis provide updates to the RSFLG on the progress, challenges, and 

opportunities experienced in active RSF missions. 

3. Deliver the Recovery and common core capabilities and subsequent critical tasks in line with the 

principles of the National Disaster Recovery Framework (NDRF), and the operational concepts 

of the Federal Interagency Operations Plan (FIOP). 

3.1.Immediately following a major incident and revised regularly, conduct recovery mission need 

assessments to help Federal and state senior leadership determine the level of RSF 

engagement needed. 

3.2.Lead the coordination, implementation, and documentation of a Mission Scoping Assessment 

(MSA) to capture sector-wide recovery issues from a wide array of public and private sector 

organizations at all applicable levels of geography. 

3.3.Lead the initiation, coordination, and implementation of recovery support actions by core 

capability as defined in the Recovery Support Strategy (RSS). 

4. Coordinate the delivery of Federal programs that are engaged with supporting impacted 

communities to include states, tribes, territories, and localities. 

5. Internally coordinate the efforts, initiatives, and outreach among applicable program areas and 

agency partners. 

6. Within 30 days of achieving FDRC mission capable status, convene a regular intergovernmental 

recovery working group with local and state leadership to coordinate and integrate recovery 

efforts. (Mission capable is the state of having the essential logistical, administrative, and 

operational field elements in place to enable the execution of FDRC-RSF operational 

responsibilities.) 

Federal Coordinating Structure 

Table A-1: Operational Coordination Lead, Coordinating, and Supporting Agencies 

Operational Coordination

Establish and maintain a unified and coordinated operational structure and process that appropriately 

integrates all critical stakeholders and supports the execution of core capabilities.

Lead Agency: Federal Emergency Management Agency (FEMA)

Coordinating Agencies: Department of Commerce (DOC), Department of the Interior (DOI), 

Department of Health and Human Services (HHS), Department of Housing and Urban Development 

(HUD), U.S. Army Corps of Engineers (USACE)

Supporting Organizations: All
Recovery Federal Interagency Operational Plan 

A-5 

Operational Coordination Leadership 

Maintaining effective Operational Coordination throughout the duration of the recovery mission is 

complex, and will require support from multiple levels of leadership. The implementation of Federal 

Operational Coordination core capability is chiefly focused on two elements—(1) the field leadership 

and supporting staff and (2) the RSFs. Those include: 

 Federal Coordinating Officer: The FCO is the senior Federal official specifically designated as 

a member of the Unified Coordination Group (UCG) for response to and recovery from 

emergencies and major disasters. The FCO executes Stafford Act authorities, including the 

commitment of FEMA resources and the issuance of mission assignments (MAs) to other Federal 

departments or agencies. The FCO is the primary Federal representative for Stafford Act events 

with whom the State/Tribal/Territorial Coordinating Officer (SCO/TCO) and other local, state, 

tribal, territorial, and insular area response officials interface to determine the most urgent needs 

and set objectives for an effective response. 

 Federal Disaster Recovery Coordinator (FDRC): The FDRC is responsible for Federal 

leadership of the recovery operation, and may also be required to take on FCO responsibilities as 

their deputy. The FDRC is primarily responsible for successful execution of the Operational 

Coordination Recovery core capability, ensuring that the disaster operation and all involved 

Federal partners effectively support state recovery through coordination and communication 

processes that facilitate effective information sharing and a joint RSS. The FDRC works closely 

with state recovery leadership to coordinate interagency support throughout the disaster recovery 

operation. If the FCO demobilizes, the FDRC may serve as the lead Federal official to continue 

management of Federal recovery resources. 

 Deputy Federal Disaster Recovery Coordinator: In a large or catastrophic disaster, a Deputy 

FDRC may be appointed by the FDRC to assist with the management of the recovery operation 

or to provide targeted support when a particular operational objective requires the singular 

attention of an FDRC. 

 Federal Disaster Recovery Officer (FDRO): The FDRO is the FDRC’s chief operations officer, 

responsible for ensuring the successful execution of the operational coordination objective. The 

FDRO plays a management role that complements the FDRC’s leadership role. The FDRO will 

work closely with Federal recovery partners to ensure their understanding and execution of their 

roles and responsibilities during recovery operations. The FDRO may be required to represent the 

FDRC if the situation warrants. 

 RSF Field Coordinator: The RSF Field Coordinator is the designated leader for coordinating, 

facilitating, and implementing the mission of the RSF in support of the recovery effort. The Field 

Coordinator is a subject matter expert with the ability to engage other regional and field-based 

Federal officials to integrate the Federal efforts for that RSF. The Field Coordinator is also 

responsible for actively participating in the MSA and RSS development processes. In 

implementing the RSF mission, the Field Coordinator is generally responsible for leading and 

carrying out three basic functions: technical assistance (regarding targeted recovery 

issues/priorities); information sharing (connecting different sources of recovery information 

together); and leveraging existing resources (working with other Federal and non-Federal 

organizations to adapt their existing efforts to support recovery needs). The Field Coordinator is 

supported by additional support staff to serve as subject matter experts, key agency 

representatives (depending on the scale and scope of the recovery issues), or as specialists to 

carry out specific aspects of the RSF mission. The Field Coordinator is responsible for 

transitioning long-term support to appropriate Federal offices when the interagency recovery 
Recovery Federal Interagency Operational Plan

A-6 

coordination mission winds down. The Field Coordinator may be responsible for implementing 

some recovery strategies in parallel with planning and coordination efforts. 

Assistance to the FDRC in an advisory capacity may be provided by the following positions: 

 Mitigation Advisor: The mission of the Mitigation Advisor is to inform and facilitate mitigation 

opportunities across RSFs in support of community recovery to create a dynamic environment 

that encourages innovation and integrates mitigation into the whole community recovery. The 

Advisor works before a disaster strikes (steady state) building RSF relationships and gathering 

regional knowledge of mitigation opportunities so that during a disaster event there is a seamless 

interaction of working together toward strategic changes for long-term recovery. Deployed upon 

appointment of the FDRC, the Mitigation Advisor gathers initial impact information, suggests 

opportunities for community mitigation to the FDRC, and advises the FDRC on the regional 

context of the disaster as it relates to risk reduction and community resiliency. 

 Environmental and Historic Preservation (EHP)/Unified Federal Review (UFR) Advisor: 

The UFR Advisor serves as the interagency coordinator for EHP coordination for disaster 

recovery projects. They are responsible for identifying opportunities for EHP efficiencies and 

will work closely with the RSFs, local, regional, state, tribal and Federal agencies in coordination 

with the National UFR Coordinator. The UFR Advisor provides expertise for the implementation 

of the UFR Process and determines the specific tools and mechanisms required to further EHP 

compliance for the specific disaster event. 

 External Affairs Advisor: The External Affairs Advisor will facilitate ongoing coordination and 

communication with recovery stakeholders utilizing the applicable EA components. 

 Disability Integration Advisor: The Office of Disability Integration and Coordination leads 

FEMA’s commitment to achieving whole community emergency management, inclusive of 

individuals with access and functional needs such as those with disabilities, by providing 

guidance, tools, methods and strategies to establish equal physical, program and effective 

communication access. This position will be staffed by the FEMA Office of Disability 

Integration and Coordination. 

 Sustainability Advisor: The Sustainability Advisor will advise the FDRC, Recovery Support 

Functions, and Federal and state partners and local officials on sustainable communities, climate 

change adaptation and green and energy efficient growth, materials and products for recovery 

planning, development, and construction. This position will be an advocate for and guide 

recovery planners and managers in the adaptation of sustainable, green, and resilient principles 

and practices. 

Additional support for Operational Coordination will be provided by the following positions: 

 Recovery Coordination Group (RCG): The RCG at the Joint Field Office (JFO) is managed by 

the FDRC. The RCG supports the recovery coordination organization by establishing and 

managing coordination structures with all recovery stakeholders to identify and leverage recovery 

resources, policies, and programs. Recovery stakeholders include RSF Field Coordinators, 

Federal assistance program managers, governmental partners, and the private sector. The RCG

enhances coordination and collaboration through facilitating discussions and information/data 

sharing, which supports recovery efforts. In addition, the RCG can support the FDRC in 

monitoring progress toward RSS objectives, analyzing recovery gaps, overlaps, mitigating 

conflicts, and mobilizing facilitators for stakeholder meetings. This group will be staffed by 

personnel from FEMA’s National Disaster Recovery Support (NDRS) Cadre. 
Recovery Federal Interagency Operational Plan

A-7

 Mission Support Group: The Mission Support Group at the JFO is managed by the FDRC. This 

group supports the Operational Coordination core capability through its mission administrative 

support, including helping to coordinate Interagency Agreements (IAA) and Mission 

Assignments (MA) for the interagency.

 FDRC Representative: The FDRC may establish recovery liaisons, in coordination with local, 

state, tribal, territorial, and insular area recovery managers. The FDRC representative provides a 

central point of contact between local disaster recovery managers and the FDRC and RSFs. The 

role of the FDRC Representative is to provide a direct conduit and visibility for the FDRC and 

RSFs on local recovery issues and opportunities. The FDRC Representatives are often a helpful 

resource for the field branch structure; they especially provide the RSFs visibility as to how the 

Federal recovery mission is engaging with all local and regional stakeholders. The FDRC 

Representatives are especially sensitive to the frequency with which Federal entities engage local 

and regional stakeholders and can advise the RSFs as to how best to avoid undue burdens.

 RSF National Coordinator: The RSF National Coordinators are responsible for coordinating 

the delivery of staff and resources from their RSF primary agencies and supporting organizations 

to support the needs of disaster-impacted states.

 FEMA Incident Management Assistance Teams (IMAT): IMATs are interagency, regionally 

based response teams that provide a forward Federal presence to improve coordination and 

response to serious incidents. IMATs support the Recovery mission area through front-end 

situational awareness and information sharing on disaster data and impacts.

Structures for Coordination and Information Sharing Coordination and information-sharing are the 

key components for maximizing resources and ensuring that community recovery needs are 

effectively supported by every RSF across the whole community. The FDRC is responsible for a 

wide range of coordination of Federal recovery activities in order to achieve the core capability 

objectives. The Recovery Coordination Group can be staffed to support the FDRC in establishing and 

managing internal and external coordination as follows:

 Coordination within the JFO: This includes FDRC-RSF coordination with other JFO elements 

such as the ESFs, Operations Section, and program areas. Lead agencies and Field Coordinators 

should be proactive in communicating any emerging recovery issues or concerns applicable to all 

partners.

 Coordination between the FDRC and Advisors: Advisors (Mitigation Advisor, Disability 

Integration Advisor, Sustainability Advisor, UFR Advisor, External Affairs Advisor) assist the 

FDRC and RSFs to incorporate cross-sector issues into assessments and support strategies 

appropriately and effectively.

 Coordination among the RSFs: The RSF coordination activities include identifying potential 

program overlaps and linkages among the RSFs and determining how to best leverage and 

maximize RSF resources.

 Coordination with State/Tribal/Territorial/Insular Area Counterparts: FDRCs and RSF 

coordinators (field or national, as appropriate) should be proactive in maintaining communication 

to ensure identification of any emerging recovery issues or concerns that need to be shared with 

and acted upon by the FCO and Federal recovery partners.

 Efficient sharing of information is integral to successful coordination. This includes the flow 

of information between the FDRC and the RSFs; local, state, tribal, territorial, and insular

area governments; and other operational components such as the FDRC Representatives. 
Recovery Federal Interagency Operational Plan

A-8 

Successful coordination includes the coordination of activities and resources between the 

Response and Recovery mission areas. 

 The primary forum for coordinating cross-RSF support activities are regular meetings with

the RSF Field Coordinators and the FDRC Advisors, convened by the FDRC and the State

Disaster Recovery Coordinator (SDRC) or Tribal Disaster Recovery Coordinator (TDRC).

This meeting is analogous to the Command and General Staff meeting at a JFO. This meeting

will provide the FDRC, the RSFs, the FDRC Advisors, the SDRC/TDRC, and, when

applicable and feasible, the Local Disaster Recovery Managers (LDRMs) with the

opportunity to brief one another and ask questions.

 These meetings will set the stage for:

 Discussing and addressing local, state, tribal, territorial, and insular area objectives raised

by the SDRC/TDRC and the LDRM(s); and 

 Providing strategic guidance and direction to RSFs. 

Figure A-1: Interagency Recovery Coordination Structure 

Critical Functions & Activities 

As discussed under Pre-Disaster Considerations above, Federal agencies can undertake key 

activities to help build the foundation for effective coordination and delivery of Federal recovery 

support post-disaster. Coordination with other Recovery core capabilities, as well as engagement and 

collaboration with agencies and local, state, tribal, and territorial partners across all five mission 

areas will be essential for building the requisite capabilities and capacities prior to a disaster. 
Recovery Federal Interagency Operational Plan

A-9

Post-disaster, the ability to timely and effectively initiate and implement the same and likely more 

intensive levels of coordination, engagement, and collaboration will be critical to the delivery of the

Recovery core capabilities and maximization of their impact for local, state, tribal, and territorial

recovery. In addition to mobilizing all eight Recovery core capabilities, the FDRC and RSF Field 

Coordinators will engage the ESFs and agencies supporting the response mission to facilitate 

information sharing and coordination of efforts. This is to ensure not only mutual assistance and 

integration, but also to prevent actions carried out by either Response or Recovery that may inhibit 

one another’s efforts.

Overall, critical post-disaster functions and activities that encompass Operational Coordination may 

be divided into three phases—immediate/short-term, intermediate, and long-term. Each phase will 

have specific activities and objectives. The activities and phases often overlap and may be executed 

in parallel, depending on the scale and scope of the disaster.

Immediate/Short-Term 

During the immediate/short-term phase there are three major objectives to accomplish: mission

scoping, stakeholder engagement, and organization.

 Mission Scoping: Mission scoping goes beyond damage assessments and impact analysis. 

Instead, it focuses on determining local, state, tribal, and territorial recovery issues and needs—

especially those that must be or can best be addressed by the Federal Government. The Advance 

Evaluation, requested by the lead Federal official (the RA or FCO in Stafford Act events), 

determines whether capabilities are in place to help enable an effective recovery and anticipates 

the likely complexity of the recovery challenges. The FDRC in the impacted FEMA regional 

office usually leads the Advance Evaluation Process. If additional recovery coordination/support 

resources are needed, Federal agencies will be activated to deliver needed Recovery core 

capabilities.

Critical to the mission scoping process is engaging Federal agency representatives at the local, 

state, tribal, and territorial levels with key data and situational awareness that will inform 

assessment of recovery needs. This includes issues that are multi-sector and/or multijurisdictional 

that require coordination across agencies and departments. Operational Coordination will also 

facilitate engagement and information sharing with agencies supporting the response mission. 

The MSA is the product resulting from recovery issue analysis and assessment of local, state, 

tribal, and territorial capacity to address recovery needs. The MSA process may show that the 

needs or issues that were identified or anticipated in the Advance Evaluation Process are not 

beyond the capacity of existing local, state, territorial, or tribal capacities to address. In such 

cases, a Federal RSS may not be necessary, and one or more RSFs may be deactivated.

 Stakeholder Engagement: The objectives of stakeholder engagement are to ensure local input in 

the MSA and RSS development, maintain a continual flow of information between the recovery 

stakeholders and the RSF (state and Federal) agencies, and consolidate outreach to stakeholders 

to avoid duplication of effort. Stakeholders include key decision makers such as elected and 

appointed officials with jurisdictions and responsibilities to the impacted communities. 

Stakeholders also include non-elected authorities, such as individuals and organizations with

expertise and resources relevant to recovery planning and implementation. Governmental and 

nongovernmental stakeholders need to be engaged in order to successfully scope the mission. 

Examples of key nongovernmental stakeholders include community leaders, faith-based 

organizations, nonprofit organizations, private sector entities, and healthcare, public health, and 

behavioral providers. Ideally, relationships established pre-disaster will facilitate post-disaster 
Recovery Federal Interagency Operational Plan

A-10

communication and coordination and integrate the interests of the whole community into ongoing 

recovery efforts and future initiatives. 

 Organization: The FDRC will establish clear leadership and decision making structures for 

internal and external coordination. The mission scoping process will guide determination of 

whether RSFs will be activated to coordinate recovery support across agencies and departments. 

Identified recovery needs and the scale of the disaster will also inform the FDRC as to which 

administrative and logistical elements are needed as part of the recovery organization. The 

FDRC, supported by the FDRO, will document staffing, logistics, and organization structure in a 

management plan for internal use. In order to maintain the organization, the FDRC will convene 

and maintain a regular intergovernmental recovery working group with state and local leadership 

to coordinate and integrate recovery efforts. The FDRC and RSF Field Coordinators will also 

ensure that effective communications are maintained between Federal field operations and 

national leadership, including the RSFLG. 

Intermediate 

In this intermediate phase, Federal agencies will plan and coordinate recovery assistance, build 

partnerships to address recovery needs and support consensus-building across recovery partners. 

Agencies will also develop a plan for transitioning recovery responsibilities to regional Federal office 

or key stakeholders based on agency resources, achievement of recovery objectives, and local, state, 

tribal, and territorial capacity. 

 Plan and Coordinate Recovery Assistance: All agencies that provide assistance to an area are 

expected to be engaged in the Operational Coordination effort so as to best position their 

programs and resources to support the overall recovery strategy. Such engagement will develop 

approaches and/or solutions to mitigate the impacts of identified recovery issues and challenges. 

Depending on local, state, tribal, and territorial recovery needs, Federal agencies work within the 

RSF structure to ensure a streamlined, efficient, and effective application of Federal assistance in 

support of local priorities. The FDRC, in consultation with the SDRC/TDRC will oversee 

development of an RSS that integrates RSF and Federal agency approaches to best support local, 

state, tribal, and territorial recovery. In addition to serving as a mechanism for communicating 

Federal recovery support objectives, the RSS can also help the FDRC integrate, organize, and 

leverage resources. The FDRC seeks to implement the RSS in a timely manner, promoting the 

sharing of ideas and creative approaches for dealing with complex recovery challenges. Effective 

Operational Coordination ensures cross-mission and cross-capability integration through 

information sharing and coordination. This process must proceed efficiently so Federal agency 

actions are useful to local, state, tribal, and territorial partners and support and align with their 

recovery priorities. Recovery support actions developed by agencies should incorporate methods 

to promote ease of access for Federal assistance. 

 Build Partnerships: Federal agencies should build partnerships to address identified recovery 

issues. Building partnerships facilitates timely, relevant, and accessible recovery support. To 

effectively utilize resources, there needs to be an understanding of the contribution of expertise 

and resources governmental and nongovernmental partners bring to the recovery effort. The key 

is to build partnerships with local, state, tribal, and territorial partners that enable them to sustain 

and execute recovery efforts. Federal agencies should consider the timing of engagement to 

effectively and efficiently utilize the time and focus of stakeholders. 

 Consensus Building: Effective outreach and ongoing engagement with the public are critical to 

successful recovery planning. Federal agencies can support local, state, tribal, and territorial 

partners to develop methods for the public to contribute input on recovery plans and strategies. 
Recovery Federal Interagency Operational Plan 

A-11

Recovery leadership needs to ensure consistent and effective messaging to the public about 

recovery efforts. Coordinating an inclusive recovery planning process means engaging 

individuals with disabilities and others with access and functional needs; those from religious, 

racial, and ethnically diverse backgrounds; and people with Limited English proficiency (LEP). 

 Transition Planning: Federal transition plans guide recovery support from the active, fieldbased support by disaster-oriented programs through continued engagement of Federal staff and 

key stakeholders. The transition should reflect a predominantly seamless shift from more active 

recovery coordination efforts (represented by the full-time participation of the FDRC and 

supporting RSFs) to the regular engagement of Federal agencies through their existing regional 

or field offices. The transition plan should build on the RSS to provide useful guidance to the 

state, local, tribal, or territorial-based recovery coordination efforts for how to best engage the 

“steady-state” resources of the Federal agencies. A strong plan is developed early to ensure 

thorough understanding by both Federal agencies and local, state, tribal, and territorial partners. 

Effective transition planning starts early and actively engages local, state, tribal, and territorial 

recovery partners. 

Long-Term 

In the long-term phase, agencies are responsible for administering programs associated with recovery 

strategy implementation, monitoring progress toward recovery objectives, and turning the 

conversation to macro level issues that will facilitate recovery and reduce the impact of future 

disaster events. Federal agencies will shift leadership and coordination from disaster-specific 

mechanisms to steady state program management structures according to transition plans developed 

in the intermediate phase of recovery. 

 Program Administration: Federal agencies will administer programs associated with 

implementation of recovery strategies. Prior to field demobilization, the FDRC will establish 

mechanisms to track and communicate progress of interagency partners in RSS implementation 

and seek creative solutions to any obstacles or challenges encountered in the course of program 

administration. 

 Resilience and Sustainability: From the outset of the recovery mission, the FDRC and Field 

Coordinators will ensure a persistent effort to integrate resilience and sustainability measures into 

recovery efforts. As time progresses in the recovery, the balance of priorities shift from 

addressing immediate issues and barriers toward initiatives that support “building back better.” 

This includes developing approaches and strategies to harden critical infrastructure, diversify the 

economy, and incorporate mitigation measures for homes and businesses, to name a few. Federal 

agencies have funding and technical assistance programs to increase local, state, tribal, and 

territorial resilience and sustainability. 

 Transition: The FDRC and RSF Field Coordinators will execute the transition plans developed 

during earlier stages to ensure a seamless shift from on site and virtual support to steady state 

program administration and information sharing. 

Federal Agency Specific Critical Functions and Activities 

The two tables below describe the specific roles and responsibilities of Federal coordinating 

agencies. 
Recovery Federal Interagency Operational Plan

A-12

Table A-2: Operational Coordination Agency Specific Functions and Activities 

Agency Critical Functions and Activities

Federal Emergency 

Management Agency

As a Lead Agency for Operational Coordination, FEMA’s roles include:

 Operating the National Response Coordination Center (NRCC), which 

integrates the Nation’s emergency response teams, systems, and 

capabilities into a comprehensive, coordinated operational capability to 

provide an effective and efficient response to major disasters or 

emergencies.

 Operating the Regional Response Coordination Center (RRCC), which 

functions as the regional interface between the states and the FEMA 

NRCC to maintain situational awareness with all partners until a JFO 

opens. The RRCC coordinates personnel and resource deployments to 

support disaster operations and prioritizes interagency allocation of 

resources.

 Providing Federal leadership (the FCO and FDRC) for interagency 

coordination during Stafford Act events (other agencies may serve as 

lead Federal official during non-Stafford Act events).

 Providing technical and advisory assistance to affected local, state, tribal, 

territorial, and insular area governments for recovery activities, including 

disaster impact assessments and recovery planning. Additional support 

may include:

 Advising and providing training if needed to local officials in overall 

recovery leadership and recovery management.

 Improving local capability to effectively lead local recovery 

organizations and communications; apply evaluation and decision 

making techniques such as benefit cost analysis and technical study;

coordinate and resolve conflicts with other local governments; and 

establish policies and priorities in coordination with state, Federal, and 

other organizations’ policies.

 Supporting local governments to establish an LDRM or equivalent 

positions or functions as appropriate.

 Facilitating resources, such as funding, training, and technical 

assistance, to aid local governments in developing local disaster 

recovery management capabilities through recovery managers, grants 

management, municipal finance, project management, 

communications, outreach, and coordination.

 Aiding local leaders and recovery managers to integrate resilience, 

mitigation, and sustainability principles and approaches into leadership 

and recovery investments.

 Providing Voluntary Agency Liaison support to state voluntary agencies, 

including, but not limited to, their Voluntary Organizations Active in 

Disaster, and assisting in the formation of Long-Term Recovery Groups 

(LTRGs).

 Managing the NDRS Cadre of disaster reservists that support the FDRC 

and Community Planning and Capacity Building (CPCB) during field 

operations.

As a Coordinating Agency of the CPCB RSF, FEMA’s roles and 

responsibilities for Operational Coordination may include:

 Representing the CPCB RSF at the national level and at the JFO.
Recovery Federal Interagency Operational Plan 

A-13

Agency Critical Functions and Activities 

 Supporting the FDRC’s cross-capability coordination efforts, facilitating 

recovery support activities and assistance planning, and leading the 

coordination of the CPCB RSF with local, state, tribal, and territorial

partners and other core capabilities.

 Convening the RSF and formalizing communications/meetings with the 

CPCB RSF.

 Activating and deploying community recovery planning SMEs.

Department of 

Commerce 

As a Coordinating Agency of the Economic (ECON) Recovery RSF, DOC’s 

roles and responsibilities for Operational Coordination may include:

 Representing the Economic RSF at the national level and at the JFO.

 Supporting the FDRC’s cross-capability coordination efforts, facilitating 

recovery support activities and assistance planning, and leading the 

coordination of the ECON Recovery core capability with local, state, 

tribal, and territorial partners and other core capabilities.

 Convening the RSF and formalizing communications/meetings with the 

Economic RSF.

 Activating and deploying economic recovery SMEs.

Department of Health 

and Human Services 

As a Coordinating Agency of the Health & Social Services (HSS) RSF, 

HHS’s roles for Operational Coordination may include:

 Representing the HSS RSF at the national level and at the JFO.

 Supporting the FDRC’s cross-capability coordination efforts, and 

facilitating recovery support activities and assistance planning and 

delivery on the part of the HSS Recovery core capability with local, state, 

tribal, and territorial partners and other core capabilities. 

 Convening the RSF and formalizing communications/meetings with the 

HSS RSF.

 Activating and deploying HSS recovery SMEs.

Department of the 

Interior 

As a Coordinating Agency of the Natural & Cultural Recovery (NCR) RSF, 

DOI’s roles for Operational Coordination may include:

 Representing the NCR RSF at the national level and at the JFO.

 Providing technical expertise to the UFR Advisor in coordinating EHP 

compliance among the RSFs.

 Supporting the FDRC’s cross-capability coordination efforts, and 

facilitating recovery support activities and assistance planning and 

delivery on the part of the NCR Recovery core capability with local, state, 

tribal, and territorial partners and other core capabilities. 

 Convening the RSF and formalizing communications/meetings with the 

NCR RSF.

 Activating and deploying NCR recovery SMEs.
Recovery Federal Interagency Operational Plan

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Agency Critical Functions and Activities 

Department of 

Housing and Urban 

Development 

As a Coordinating Agency of the Housing RSF, HUD’s roles for Operational 

Coordination may include:

 Representing the Housing RSF at the national level and at the JFO.

 Supporting the FDRC’s cross-capability coordination efforts, and 

facilitating recovery support activities and assistance planning and 

delivery on the part of the Housing Recovery core capability with local, 

state, tribal, and territorial partners and other core capabilities.

 Convening the RSF and formalizing communications/meetings with the 

Housing RSF.

 Activating and deploying housing recovery SMEs.

U.S. Army Corps of 

Engineers 

As a Coordinating Agency of the Infrastructure Systems (IS) RSF, USACE’s 

roles for Operational Coordination may include:

 Representing the IS RSF at the national level and at the JFO.

 Supporting the FDRC’s cross-capability coordination efforts, and 

facilitating recovery support activities and assistance planning and 

delivery on the part of the IS Recovery core capability with local, state, 

tribal, and territorial partners and other core capabilities. 

 Convening the RSF and formalizing communications/meetings with the 

IS RSF.

 Facilitating the prioritization of infrastructure systems recovery efforts 

considering their regional and national-level impacts.

 Activating and deploying infrastructure recovery SMEs.

Resources 

This Annex should be used in tandem with the Recovery FIOP base plan, which contains guidance 

common to all eight Recovery core capabilities. 
Recovery Federal Interagency Operational Plan 

A-15

Table A-3: Key Guidance Documents: Operational Coordination Core Capability 

Title Description Location

ESF #15

Primary guiding document to coordinate 

an integrated Federal incident 

communications system.

http://www.fema.gov/medialibrarydata/965d87d8c5ffc4bcccb0197

9913e01fc/ESF15_SOP_08-30-

2013-02.pdf

Disability Integration 

Advisor SOP

Guidance for the Disability Integration 

Advisor.

In development

Mitigation Advisor 

CONOPS Guidance for the Mitigation Advisor. In development

UFR CONOPS Provides guidance for the UFR process. In development

UFR SOP Outlines the roles and responsibilities of 

the UFR Advisor.

In development

UFR website Central repository of tools and documents 

to support the UFR process.

https://www.fema.gov/unifiedFederal-environmental-andhistoric-preservation-reviewpresidentially declared-disasters

Additional Technical References for Community Resilience, Mitigation & Recovery Planning 

Title Description Location

Rebuilding for a More 

Sustainable Future: 

An Operational 

Framework (FEMA 

365)

Introduces principles and practices of 

sustainable development and explains the 

need for sustainable actions to be 

incorporated into the post-disaster 

recovery process and other community 

objectives related to economic health, 

environmental stability, and social wellbeing.

http://www.fema.gov/medialibrary/assets/documents/767

Planning for a 

Sustainable Future: 

The Link Between 

Hazard Mitigation and 

Livability (FEMA 364)

Illustrates how communities, can integrate 

the concepts and principles of sustainable 

development into each phase of mitigation 

planning.

http://www.fema.gov/medialibrary/assets/documents/2110

Community Recovery 

Management Toolkit, 

FEMA

Compilation of guidance, case studies, 

tools, and training to assist local 

communities in managing long-term 

recovery following a disaster.

www.fema.gov/national-disasterrecovery-framework/communityrecovery-management-toolkit
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Recovery Federal Interagency Operational Plan 

B-1 

Annex B: Planning 

Purpose 

The purpose of the Planning core capability annex is to identify and define how the Federal family 

will support implementation of the Planning core capability. The Planning core capability is defined 

in the National Preparedness Goal: Conduct a systematic process engaging the whole community as 

appropriate in the development of executable strategic, operational, and/or tactical-level approaches 

to meet defined objectives. This annex addresses both Federal operational planning to support 

disaster recovery and Federal support for community based recovery planning. 

Federal Recovery Planning 

The Planning core capability enables operational coordination and facilitates effective decisionmaking. The Planning core capability establishes the strategy to achieve the mission, goal, and target; 

outlines operational and support activities to address the situation and risks; and identifies resource 

requirements prior to and following an incident. It is necessary to accurately understand the risks 

presented and triggers for these risks to reduce vulnerability. Recovery leaders set the strategic 

direction, and objectives of the operation based on local, state, tribal, and territorial support needs. 

These objectives are documented in plans that serve as a tool for communication, priority setting, 

information sharing, training, and exercises. Plans serve as a common reference for decision making. 

This annex describes how the Recovery mission employs the operational planning process to 

organize recovery resources and activities. It describes the importance of and linkages between postincident planning processes in the field: Incident Action Planning, Incident Strategic Planning, MSA, 

and RSS development. 

Community Based Recovery Planning Federal Support 

The Federal Government coordinates support from Federal agencies and other partner organizations 

to assist local and tribal governments in carrying out their roles and responsibilities for local 

community-based recovery planning under the Planning core capability. The NDRF stresses the 

importance of the role of local and tribal government and community-based planning in successful 

recovery. The Community Planning Capacity Building Recovery Support Function is the Federal 

coordination element that brings together agencies and organizations that can assist state and local 

governments to conduct appropriate community-based recovery planning. 

Definitions 

Planning Core Capability 

The Federal Government’s Planning core capability critical task is to develop strategic, operational, 

and tactical recovery plans at the Federal level that will meet defined support objectives and support 

the local, state, tribal, and territorial governments to develop their own plans, as appropriate, to work 

in concert with Federal plans. To implement this task, Federal agencies must adequately identify 

critical objectives based on the planning requirements that provide a complete and integrated picture 

of the sequence and scope of the tasks to achieve the objectives, and are implementable within the 

time frame contemplated in the plan using available resources. 

Strategic Planning 

In the context of operations, strategy develops direction, broad objectives, or ideas in a synchronized 

and integrated fashion to achieve national, and/or inter-agency objectives. 
Recovery Federal Interagency Operational Plan

B-2

 End-state describing the desired situation that will exist when success is achieved.

 Mission statement: defining the purpose and operational objectives:

 What will the plan accomplish,

 Goals and objectives, and

 Who is responsible?

Operational Planning

The operational level links the tactical requirements to strategic objectives.

 Identifies the strategic specified and implied tasks.

 Sequences the tasks and identifies the time periods in which each can be started and must be 

completed.

 Identifies the mission-essential tasks from among these specified and implied tasks. A missionessential task is one of such importance that without its completion the mission will fail.

 The purpose, end state, and essential tasks into a specific and measurable description of the 

mission objectives.

 Use an integrated planning process to develop a coordinated operational plan across local, state, 

tribal, territorial, insular area, and Federal jurisdictions.

Tactical Planning

Tactics is the employment and ordered arrangement of personnel and resources in relation to each 

other to achieve a specific objective.

 Based on the operational plan, identify critical objectives across the mission areas and 

operational phases. 

 Identify required resources to achieve the critical objectives in the most effective and costeffective manner.

 Identify, sequence, and scope tasks to achieve measurable objective targets.

All recovery planning is generally conducted in partnership with other organizations. Planners 

coordinate the development of plans using the output of the RSF coordination efforts, apply a 

standard process, and recognize that the end users of a plan are not the planners, but the recovery 

managers within the Recovery Support Functions, local, state, tribal, or territorial governments, or 

partner organizations.

Planners must simultaneously think ahead at the strategic level, stay current at the operational level, 

and be informed by tactical level developments. Recovery requires an additional echelon, community 

approach to contribute to each jurisdiction’s attainment of the capacity to (1) develop, coordinate, 

manage, lead, and implement its own community recovery plans; and (2) help bridge resource 

shortfalls.

Community-Based Planning

Community-based recovery planning applies city and community planning principles and processes 

to assist communities and their whole-community partners and stakeholders in making informed 

decisions on goals, objectives, policies, priorities, and programs that will guide the overall 
Recovery Federal Interagency Operational Plan 

B-3 

community’s recovery. Community-based planning, along with local primacy, is a key element 

highlighted in the NDRF. 

Capacity Building 

Capacity building refers to strengthening the skills, competencies, resources, and abilities of people, 

governments, and communities so they can undertake community recovery planning processes 

effectively and efficiently. 

Objectives and Considerations 

The Recovery mission leverages the operational planning process to organize recovery resources and 

activities. There are critical linkages between post-incident planning in the field: Incident Action 

Planning, Incident Strategic Planning, MSA, and RSS development. At the same time, it is critical to 

note that the types of planning that occur under the Recovery mission are, while fully integrated, 

distinct—the difference between the types of planning that occur to ensure the day-to-day 

communication and resource flows are maintained, versus the planning done in concert with Federal 

agencies and whole community partners to coordinate the variety of support available to local, state, 

tribal, and territorial governments post-disaster. 

Figure B-1: The Recovery Operational Timeline 

Considerations 

Federal Planning 

Deliberate plans (developed under non-emergency conditions) are developed at all levels, from local 

to the Federal, and horizontally through departments and agencies responsible for delivering core 

capabilities. Incident plans adapt deliberate plans or portions of them for application to the specific 

incident at hand. Incident specific planning includes the following documents: 

Incident Action Plan 

The IAP is a written plan that contains the incident objectives and work assignments necessary to 

manage an incident during a specific operational period. It provides essential information regarding 

incident organization, resource allocation, work assignments, safety, and weather. It is also the 
Recovery Federal Interagency Operational Plan

B-4 

primary tool for managing incidents for all interagency partners involved in these operations. The 

incident action planning process includes a set of activities that are repeated each operational period 

to provide consistent rhythm and structure to incident management. IAP efforts are focused on 

gaining an understanding of the situation and establishing initial incident priorities, strategies, and 

tactics. Pertinent plans at the local, state, tribal, territorial, and Federal levels may identify or suggest 

incident priorities. 

Incident Strategic Plan 

The UCG produces an incident strategic plan (ISP) that lays out where the UCG wants response and 

recovery and mitigation operations to be at selected times along a complete incident timeline. All 

incident plans directly or indirectly support the ISP. It should be developed, at least in skeleton form, 

as soon as possible after an incident. Existing and applicable deliberate plans may provide notional 

goals, priorities, and an end state. They may also provide information to build an incident timeline, 

such as tasks by operational phase. It outlines the goals, operational priorities, and desired end state 

that enables the UCG to determine where it stands in the lifecycle of the incident and when goals 

have been achieved. Longer-term goals form the foundation of the ISP, laying out when the UCG 

wants Response, Recovery, and Mitigation operations to occur along an incident timeline. 

Recovery Support Strategy 

The RSS is the document that outlines the unified approach that the FDRC and the RSF agencies will 

take to support local, state, tribal, and territorial governments’ disaster recovery needs and goals. The 

RSS is developed by the RSFs with the support of the FCO/FDRC staff. The RSS is not a recovery 

plan for local, state, tribal, and territorial governments. The RSS identifies how the FDRC and RSFs 

will contribute to each jurisdiction’s attainment of the capacity to (1) develop, coordinate, manage, 

lead, and implement its own community recovery plans; and (2) help bridge resource shortfalls. The 

RSS provides an anticipated timeline for engaging with disaster-impacted communities, and the 

level, type, and duration of Federal support to be provided to the impacted jurisdictions. 

Community-Based Planning 

The responsibility of preparing for recovery begins with the individual and integrates with the larger 

responsibility of the community and local government. Community recovery planning efforts before 

and after disaster need to reflect and involve the whole community and be supported by voluntary, 

faith-based and community organizations; businesses; and local, state, tribal, territorial, and Federal 

governments. To support inclusiveness of all community members in community recovery planning, 

local governments should employ a whole-community engagement strategy that builds local 

resilience and promotes joint ownership of the community’s recovery by all stakeholders. 

Post-disaster community-based recovery planning is a decision-making process to adapt and 

implement pre-disaster priorities and policies. Community recovery planning facilitates and guides 

local leaders and community stakeholders through a process to make complex, community-wide 

decisions. The planning process is intended, first and foremost, to guide decisions and may not result 

in a formal plan document being produced. Community-based recovery planning results in 

establishment of community vision, goals, objectives, initiatives, programs, strategies and ultimately 

recovery actions. A post-disaster recovery plan document is often created when the complexity of the 

recovery and revitalization activities necessitates a more elaborate process. The resulting document 

communicates the outcome of that complex process through an integrated plan. 

Whether a formal document is created or not, a community-driven post-disaster planning process 

forms the foundation for optimal integration of public, private, and nongovernmental efforts across 

the Recovery core capabilities; the setting of recovery goals and priorities at the community level; 
Recovery Federal Interagency Operational Plan 

B-5 

and allocation of resources. The planning process aids community leaders in setting benchmarks that 

will be used to measure progress toward a community-defined recovery outcome. All affected 

communities can benefit by engaging in a disaster recovery planning process and developing 

inclusive strategies that are meaningful to multiple audiences, including members of the community, 

potential funders, nongovernmental organizations, other whole community stakeholders, and local, 

state, tribal, territorial, and Federal governments. 

Planning Outcomes 

Overall Survivor Outcomes Resulting from Effective Planning 

Federal planning and community-based recovery planning facilitate the following outcomes for 

survivors and communities: 

 Recovery occurs more quickly and effectively; 

 Recovery goals, objectives, actions, and investments are based on sound information and 

consistent with the needs of stakeholders and the whole community; 

 Local, state, tribal, territorial, and Federal governments and officials share appropriate 

accountability for successful disaster management; 

 Recovery plans and associated actions and progress are communicated to stakeholders allowing 

for more effective individual decisions and recovery; and 

 Resilience considerations are integrated are integrated into decisions, and actions and 

investments are more effective in building the long-term resilience. 

Desired Outcomes for Federal Planning 

Planning by Federal agencies and their partners facilitates the following outcomes: 

 Identification of significant recovery needs, challenges, and gaps across the relevant core 

capabilities; 

 Identification of strategies and objectives to address those recovery needs, challenges, and gaps; 

 Identification of critical actions and associated stakeholders, partners, and resources that can 

support resolution of those needs linked to executable and timely Federal support actions that 

meet defined recovery incident objectives; 

 Effective management and communication of expected and actual progress to local, state, tribal, 

territorial, and Federal recovery partners regarding achievement of Federal strategies and 

objectives; 

 Identification of mitigation opportunities and ensure coordination with mitigation plan(s); and 

 Identification of opportunities for greater resiliency. 

Desired Outcomes for Community-Based Recovery Planning 

Community recovery planning by local, tribal, and community leaders and governments facilitates 

the following outcomes: 

 A systematic, strategic, and inclusive post-disaster community-based recovery planning process; 

 Local recovery planning that applies an inclusive, accessible, culturally and linguistically 

appropriate local stakeholder engagement process; 
Recovery Federal Interagency Operational Plan

B-6 

 Incorporation of resilience, mitigation, and sustainability and long-range considerations into local 

recovery planning; 

 An improved local planning process that ensures a more effective and efficient use of state, 

Federal, nongovernmental, and private sector funds; 

 Increased community-wide support and understanding of sustainability and resiliency principles 

applicable to the needs and opportunities presented during disaster recovery; and 

 Communities are able to shorten and better communicate the timeline and improve specific 

recovery outcomes through more effective locally based decision-making and management. 

Recovery Targets 

Federal Planning 

Develop operational plans that adequately identify critical objectives based on the planning 

requirements, provide a complete and integrated picture of the sequence and scope of the tasks to 

achieve the objective, and are implemented within a time frame contemplated in the plan using 

available resources. 

1. Use of an integrated planning process to develop a coordinated operational plan across local, 

state, tribal, territorial, insular, and Federal jurisdictions. 

2. Based upon the operational plan, identify critical objectives across the mission areas and 

operational phases. 

3. Identify required resources to achieve the critical objectives in the most effective and costeffective manner. 

4. Identify, sequence, and scope tasks to achieve measurable objective targets. 

Federal Support to Community-Based Recovery Planning 

Each of the targets below represent a major activity in the community recovery planning process that 

the Federal agencies may support to improve local recovery planning outcomes. Success of the 

Federal effort is measured by the degree to which agencies can use their authorities to facilitate 

effective and efficient delivery of support that increases the affected communities’ capabilities in 

each of the below targets. Federal departments and agencies and their partner organizations can 

provide a wide range of support that addresses narrow or broader aspects of needed community 

planning capabilities, including provision of information, guidance, tools, training, staffing, funding, 

loans, mutual aid, and technical assistance. 

1. The community has the knowledge and resources to initiate a Recovery Planning Process 

1.1.Local and tribal leadership understand and, as appropriate, are able to make decisions on 

when to apply community recovery planning. 

Typical Federal support activities that support this target: Educate leaders on community 

recovery planning benefits, needs, outcomes, resources, and value of community engagement 

and need for a planning process to integrate resilience and mitigation into recovery. This 

often includes facilitation of peer-to-peer planner support, training, information, outreach to 

community leaders for awareness and basic education on the needs and benefits of 

community recovery planning. 
Recovery Federal Interagency Operational Plan 

B-7 

1.2.Local and tribal leaders and governments have the ability to establish the scope of and launch 

a community’s recovery planning effort.

Typical Federal support activities that support this target: Provide self-assessment resources 

to aid communities in defining needed and appropriate planning activities, gathering of 

information sharing information to facilitate informational and educational support, and 

targeting of technical assistance to communities to aid in defining the scope of a recovery 

planning process, as deemed necessary by the communities themselves. 

1.3.Local and tribal governments have information about and ability to organize the community’s 

recovery planning committee(s). 

Typical Federal support activities that support this target: Support establishment of local 

recovery structures that organize community elements (government, nongovernment, 

stakeholders) for participation in recovery planning efforts (development of a plan or other 

formal strategy or action plan decision-making process). 

1.4.Local and tribal governments have the capacity and capability to engage stakeholders in the 

community’s planning process, facilitating input, prioritizing and confirming recovery goals, 

objectives and actions. 

Typical Federal support activities that support this target: Support to local stakeholder 

engagement processes that improve involvement of whole-community in the recovery 

process. When this is not in support of a local planning process, the need or activity will be 

addressed by departments and agencies that support the Public Information and Warning core 

capability.

2. The community has the ability and capacity to conduct research and analysis to develop their 

plan for recovery. 

2.1.Local and tribal governments have the knowledge and experience available to conduct 

assessment and fact-based analysis to support the community’s planning process. 

Typical Federal support activities that support this target: Provide overall information to 

communities conducting planning to facilitate access to data, provide general decisionsupport tools, information, and training to communities for use during a development of a 

community recovery plan. Technical needs identified by agencies supporting planning will be 

referred to owners of the other core capabilities for application of any needed subject matter 

expertise. 

2.2.Local and tribal governments have access to information and expertise to integrate resilience, 

mitigation, sustainability, and state-of-the-art community design into recovery planning 

efforts. 

Typical Federal support activities that support this target: Provide information, training, 

guidance, tools, and technical assistance in various forms to support integration of resilience, 

mitigation, sustainability, and community design into local recovery planning. Achieving this 

target will require coordination and collaboration with agencies implementing the Mitigation 

core capabilities, particularly the planning and community resilience capabilities, to ensure 

that communities have access to future risk information, make use of mitigation planning 

tools, best practices, and partnerships. 
Recovery Federal Interagency Operational Plan

B-8 

3. The community has the capability to develop and adopt the plan 

3.1.Local governments are able to develop recovery plans or strategies, including developing 

goals, objectives, and actions that comprise the community’s recovery plan.

Typical Federal support activities that support this target: Provide information, guidance, 

training, facilitation, technical assistance, and funding resources to enable local governments 

to carry out their own planning processes and develop their own recovery plans. Also, 

support to states for development of disaster-wide local planning support programs. 

4. The community has the ability to implement the plan 

4.1.Local governments have access to the knowledge and ability to establish a recovery 

management systems, organization and capability to implement the community’s recovery 

plans. 

Typical Federal support activities that support this target: The Planning core capability does 

not directly support this target, but relies on departments and agencies implementing the 

Operational Coordination core capability to provide resources for local disaster recovery 

management capability development. This is key to success of the local capability to 

implement recovery plans. CPCB coordinates with and refers to the Operational Coordination 

core capability for local recovery management capacity building to ensure recovery 

management capacity building is integrated into planning supported by CPCB RSF partners. 

Federal Coordinating Structure 

Federal Planning 

All RSFs support the delivery of the Planning core capability. Each department and agency involved 

in Recovery adapts their plans for actual incidents and integrates them into a unified Federal effort. 

Federal Planning Roles and Responsibilities 

NDRS mission support staff is the node for RSFs to input requirements, information, and support at 

the JFO Level. The NDRS mission support staff connects to the JFO Planning Tactics Meeting. 

Federal Disaster Recovery Coordinator 

The FDRC provides the leadership and direction that will guide development and implementation of 

the RSS. The FDRC supports the local, state, tribal, territorial, and insular area recovery goals and 

priorities. The FDRC ensures the interagency recovery coordination group supports and leverages the 

overall JFO IAP and Incident Strategic Planning processes. 

Federal Disaster Recovery Officer 

The FDRO’s role is to assist the FDRC in the execution of the interagency recovery coordination 

mission, coordination of the assessment processes, and development and implementation of the RSS 

by providing general operational and management support. 

JFO Planning Section 

The Planning Section is responsible for collecting, evaluating, and disseminating operational 

information pertaining to the incident. This Section maintains information and intelligence on the 

current and forecasted situation, as well as the status of resources assigned to the incident. The 

Planning Section collects information from the Recovery Coordination Group to prepare and 

document IAPs, the ISP, and incident maps, and gathers and disseminates information and 
Recovery Federal Interagency Operational Plan 

B-9 

intelligence critical to the incident. They use geographic information system (GIS) mapping and 

analysis products to support recovery efforts. 

Federal Planning Critical Functions and Activities 

The primary incident operational planning activities to support the recovery mission in the field are 

JFO incident action planning, incident strategic planning, MSA, and RSS development. 

JFO Incident Action Planning 

The incident action planning process provides a tool to synchronize operations at the incident level 

and ensures that incident operations are conducted in support of incident objectives. The iterative 

incident action planning process provides FEMA and all interagency partners involved in incident 

management operations the primary tool for managing incidents. A disciplined system of planning 

phases and collaboration sessions fosters partnerships and clearly focuses incident operations. 

Incident Strategic Planning 

The ISP and planning process serves as a strategic management tool that provides decision makers 

and practitioners with a comprehensive understanding of whole community support aligned to 

UCG’s strategic priorities. 

These goals, priorities, and activities are representative of the whole community and furthermore 

aligned by the core capabilities as outlined in the National Preparedness Goal. 

The ISP will inform the IAP, as well as the MSA and RSS. The IAP, MSA, RSS, Management plans, 

etc., need to be informed by the ISP, as that outlines the incident priorities. 

The Planning Section will hold the initial responsibility for completing the ISP and submitting to 

UCG/FCO. As the incident transitions out of response, the FDRC and mission support group will 

begin providing significant input for the ISP. After the Planning Section demobilizes, the 

responsibility for managing the ISP lies with the FDRC, updated by and coordinated through the 

mission support group. 

Mission Scoping Assessment Process (See Base Plan Step 3) 

The goal of the MSA process is not to create a fully articulated plan, but to identify the recovery 

needs and issues that can be addressed within or across the responsibility, resources, programs and 

authorities of the RSF(s). 

The RSF Field Coordinators should use the initial findings in the AEP as a starting point for their 

MSA process. The MSA process should take about 30 days to complete from the time FDRC deems 

the RSF Field Coordinators mission capable to the time when the MSA Report is completed. 

While each RSF will have different information requirements and analytical approaches, RSF 

National Coordinators will ensure that established guidance developed in coordination with RSF 

partner agencies provides processes that are synchronized across all RSFs. FDRCs and Field 

Coordinators will collaborate to tailor the guidance to the specific conditions of an incident so as to 

minimize burdens on communities ask to provide data. 

The MSA Report contains the data findings, interpretation and, most importantly, the identification 

of the recovery issues and needs to be addressed in the RSS. The MSA process may also reveal and 

inform the FDRC and RSF National Coordinators and other stakeholders if continued work by 

specific RSF(s) is no longer warranted. 

The MSA process may also capture the following elements, as appropriate: 
Recovery Federal Interagency Operational Plan

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 Current and anticipated recovery issues and needs; 

 Jurisdictions that may require additional technical assistance; 

 Any area-wide or overarching, multi-sector, or regional recovery issues; and 

 Potential opportunities for improving community resilience. 

The MSA Report is an FDRC-RSF internal document that (with FDRC/SCO approval) may be 

distributed to local and state recovery stakeholders. These recovery stakeholders may have provided 

input into the MSA development process and will likely play a key role in the recovery process. 

The UFR Advisor will work with the FDRC, RSFs, local, state, tribal, territorial, insular area, and 

JFO counterparts during mission scoping to outline the coordination necessary under the UFR and 

how expedient the EHP review process can be achieved in this disaster recovery. 

Recovery Support Strategy Development Process (See Base Plan Step 4) 

The RSS serves a critical role in the effective management and application of a wide range of FDRC 

and RSF capabilities and resources in meeting local needs and priorities, accomplishing the 

following items: 

 Serves as an internal coordinating document for the RSF agencies and organizations; 

 Serves as the RSFs’ strategic roadmap to support local, state, tribal, and territorial partners in 

their recovery effort; 

 Provides a coordination platform to help integrate, organize, and manage the RSF support 

activities and resources into a cohesive recovery support effort that will yield a more efficient and 

effective recovery support outcome; 

 Identifies the RSFs’ strategic objectives and outlines the recovery support actions that each RSF 

will undertake to achieve those objectives; 

 Reflects integration of expertise from Mitigation Advisor, Disability Integration Advisor, and 

UFR Advisor into recovery support actions; 

 Serves as a cohesive and organized way to inform the recovery stakeholders of the type, scope, 

and nature of RSF recovery support that will be provided to local, state, tribal, territorial, and 

insular area governments; 

 Provides a timeframe for when Federal recovery support activities will be completed by 

identifying support milestones and deliverables; 

 Plays a critical role in helping each RSF Field Coordinator define their intended “end states” and 

how they define completion of their mission; and 

 Helps to integrate the resources of all RSFs into a coordinated recovery support effort aimed at 

supporting the local, state, tribal, territorial, and insular area governments to achieve their 

recovery goals as effectively and efficiently as possible. 

It is important to note that the RSS is not a state or local recovery plan. 

The audience for the RSS may shift as the recovery coordination mission evolves and information 

sharing requirements unfold, but in most cases there is an immediate audience that will be informed 

by the RSS that includes the following stakeholders: 

 Leadership of the RSF agencies, departments and collaborative partners; 
Recovery Federal Interagency Operational Plan 

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 FCO and FDRC; 

 TCO and TDRC; 

 SCO and SDRC; 

 FEMA RA; and 

 Other Federal leadership. 

The RSS is also useful for communicating Federal RSF activities to recovery partners and 

stakeholders: 

 Other state/tribal recovery officials; 

 State/tribal agency counterparts; and 

 National and state task forces. 

Certain components of the RSS may also be of interest to local recovery managers. Additionally, 

there may be other partners and stakeholders who may also utilize it as an outline to manage their 

recovery activities. 

While the RSS is still in development, recovery efforts and actions will be ongoing at the local, state, 

tribal, territorial, and insular area government levels. The RSS development process must stay 

attuned to ongoing recovery actions and incorporate those activities and considerations in 

determining how RSF recovery support activities can dovetail with ongoing activities to more 

effectively and efficiently support the recovery effort. 

The FDRC and RSF Field Coordinators must maintain an effective communication with the 

SDRC/TDRC and an awareness of ongoing recovery initiatives and activities. 

FDRC and RSF Field Coordinators need to coordinate their activities with local, state, tribal, 

territorial, and insular area counterparts and develop recovery support actions that are consistent, 

complementary, and contribute to ongoing recovery efforts. 

The RSS (when necessary) should be included as an annex to the ISP. 

Community Planning and Capacity Building Recovery Support Function (CPCB 

RSF) 

At the local, state, tribal, or territorial level there may be a need for additional capacity to undertake 

community-based recovery planning and management. The CPCB RSF was developed to better 

coordinate Federal support to these capacity needs for recovery planning when there is a need for 

enhanced coordination after large, unique or catastrophic disasters. 

The mission of the CPCB RSF is to enable local governments to effectively and efficiently carry out 

community-based recovery planning in the post disaster environment. Recovery planning in the postdisaster environment builds short- and long-term community resilience, empowers local leaders and 

stakeholders, and improves recovery outcomes at the individual and community levels. 

Under this mission, CPCB RSF coordinates Federal and non-Federal support to local and tribal 

governments to build their ability to apply the Planning core capability. CPCB also supports state or 

territorial governments to develop programs of support for local recovery planning. 

The CPCB RSF supports local, state, tribal, and territorial leaders and governments in undertaking 

community recovery planning and building the capacity of local governments to plan for themselves. 

CPCB RSF works with primary and support agencies and other participating partners to identify 
Recovery Federal Interagency Operational Plan

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disaster-wide issues or opportunities for improving local planning outcomes, identifies strategic 

issues or policy challenges, and works with partners to identify communities of interest and works to 

facilitate those partners collaboration with other organizations to support local planning. 

Table B-1: Members of the CPCB RSF 

Community Planning and Capacity Building 

Coordinating Agency: Department of Homeland Security(DHS)/Federal Emergency Management 

Agency(FEMA)

Primary Agencies: DHS/FEMA; Department of Housing and Urban Development

Supporting Agencies: American Red Cross; Corporation for National and Community Service; Delta 

Regional Authority; Department of Agriculture (USDA); Department of Commerce (DOC); Department 

of Education; Department of Health and Human Services (HHS); DHS; Department of Housing and 

Urban Development (HUD); Department of the Interior (DOI); Department of Justice (DOJ); 

Department of Transportation (DOT); Environmental Protection Agency (EPA); General Services 

Administration (GSA); National Voluntary Organizations Active in Disaster (NVOAD); Small Business 

Administration (SBA); U.S. Access Board; U.S. Army Corps of Engineers (USACE)

CPCB RSF Critical Functions and Activities 

The CPCB RSF provides the primary point of coordination of Federal and national partner support 

for community-based recovery planning post-disaster. 

Table B-2: Coordinating Agencies and Functions 

Coordinating Agency Functions

Federal Emergency 

Management Agency

 Provides the leadership, management, and support staff needed to 

coordinate the CPCB RSF. This includes the CPCB National 

Coordinator and Regional Coordinators, and CPCB RSF FEMA 

disaster reservists.

 Manages a coordination forum for non-federal partners to participate 

in CPCB coordination and information sharing pre- and post-disaster.

 Maintains communication within the CPCB RSF and with other RSFs 

and core capability owners pre- and post-disaster, and facilitates 

sharing of operational and disaster information relevant to CPCB.

 Communicates across RSF and mission areas about new and 

ongoing support activities. 

 Represents CPCB RSF at the JFO and at the state and Federal 

levels.

 Initiates the activation and deployment of recovery personnel by a 

partner agency by issuing a mission assignment to that agency.

 Monitors supported and implemented recovery programs.
Recovery Federal Interagency Operational Plan 

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Table B-3: Primary Agencies and Functions 

Primary Agency Functions

Department of Housing 

and Urban Development

 Administers funding for recovery planning and projects under the 

Community Development Block Grant (CDBG) Program.

 Provides assistance for housing, neighborhood stabilization, 

infrastructure, mortgage financing, and public housing repair and 

reconstruction.

 Assists in projects to promote the restoration or creation of inclusive, 

economically resilient and sustainable communities.

Federal Emergency 

Management Agency

 Provides Voluntary Agency Liaison support to State voluntary 

agencies, including but not limited to their Voluntary Organizations 

Active in Disaster, and assist in the formation of LTRGs.

 Provides Hazard Mitigation planning, technical and grants 

assistance, including the Hazard Mitigation Grant Program.

 Provides preparedness grants, technical assistance, and training, 

including the Homeland Security Grant Program and Emergency 

Management Performance Grants.

 Provides disaster assistance through the Public Assistance (PA) and 

Individual Assistance (IA) programs.

 Provides information on future risk and resilience considerations and 

strategies.

 Provides Community Planning Assistance (CPA), direct and advisory 

assistance to affected local, tribal, territorial, and insular area 

governments for recovery planning activities, (and states and 

territories to establish local programs of support).5

 Direct planning assistance in limited circumstances for support to 

local, tribal, territorial, or insular governments for conducting a local 

long-term community recovery planning process. This work is limited 

to the most challenged and limited capacity communities, with a high 

level of impact, and most in need of support for recovery planning. 

This support augments support that can be identified through the 

coordination activities under the CPCB RSF. This assistance 

requires a specific assessment, and must be developed in 

conjunction with the CPCB coordination process and concurred on 

by the state. This direct assistance concludes with the completion of 

a local recovery plan. This does not include assistance to conduct 

any technical studies.

 Advisory planning assistance, generally focused on informational, 

educational, and consultation activities, including training, peer to 

peer support, symposia, workshops, planning subject matter advice, 

and development and dissemination of recovery planning and related 

guidance. FEMA does not undertake work on behalf of a local 

government.

 

5

 FEMA authority under Stafford Act § 402(3)(A),(F) (codified at 42 U.S.C. § 5170a(3)(A),(F)). 
Recovery Federal Interagency Operational Plan

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Table B-4: Supporting Organizations and Functions 

Supporting Organization Functions

Corporation for National 

and Community Service

 Supports the RSF national and field operations with technical 

assistance and staffing support, as appropriate.

 Provides economic damage assessment information from its network 

of volunteer organizations and other stakeholders.

 Provides targeted capacity building assistance in the form of human 

capital.

Delta Regional Authority

 Works to improve the lives of residents in parts of eight states, 

including Alabama, Arkansas, Illinois, Kentucky, Louisiana, 

Mississippi, Missouri, and Tennessee.

 Assists communities in bringing together partnerships between local, 

state, and Federal levels.

 Leverages investments made by other Federal departments, state, 

territorial, tribal, and local partners, and private entities.

 Provides technical assistance regarding program eligibility, 

application processes, and project requirements.

 Provides flexible grants to help cities, counties, and states recover 

from disasters, especially in low-income areas, subject to availability 

of funding.

Department of Agriculture

 Provides technical assistance to improve the quality of life in rural 

communities, including strategies to increase employment 

opportunities, home ownership, and access to broadband.

 Provides economic and physical damage assessment on USDAfinanced community infrastructure and programs.

 Supports RSF national and field level operations with subject matter 

expertise and staffing support, as appropriate.

 Leverages investments made by other Federal departments, local 

state, tribal, and territorial partners, and private entities for 

community recovery.

 Provides technical assistance in assessment and developing plans 

and strategies to address pet and animal recovery issues 

(zoos/exhibitors, research laboratories, commercial breeders, animal 

transporters) and communities.

 Provides technical assistance to support recovery planning for 

agriculture based communities.

 Assists in community planning in rural communities.

Department of Commerce

 Supplies geospatial data and technological support through the 

National Oceanic and Atmospheric Administration.

 Supports recovery efforts through building science expertise through 

the National Institute of Standards and Technology.

 Promotes economic recovery support through coordination of 

Economic Development Administration programs.

 Provides economic assessment reports and subject matter expertise 

for economic recovery strategies post-disaster.
Recovery Federal Interagency Operational Plan 

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Supporting Organization Functions 

Department of Health and 

Human Services

 Provides technical assistance to support recovery planning and postdisaster activities for public health, health care, behavioral health, 

and social services infrastructure.

 Provides technical assistance regarding program eligibility, 

application processes and project requirements for Department of 

Health and Human Services programs as applicable under existing 

authorities.

 Provides assessment information regarding the consequences on 

the health and human services sectors in an affected community.

 Supports RSF national- and field-level operations with subject matter 

expertise and staffing support, as appropriate.

Department of Homeland 

Security

 Civil Rights and Civil Liberties—Provides guidance and coordinates

resources to assure that recovery activities respect the civil rights 

and civil liberties of all populations and do not result in discrimination 

on account of race, color, national origin (including LEP), religion, 

sex, age, disability, or other characteristics.

 Infrastructure Protection—Provides information and communicates

with relevant stakeholder networks, coordinates with relevant 

Federal interagency and nongovernmental organization partners, 

and participates in the impact assessment protocol.

 Assists in the prioritization and restoration of critical infrastructure.

Department of the Interior

 Supplies scientific data to protect and inform communities.

 Provides technical assistance on hazard and risk assessment and 

geospatial support through the U.S. Geological Survey.

 Provides critical information and guidance about protecting natural 

resources and cultural assets.

 Provides technical expertise for natural, cultural, and historic 

properties issues; fulfills responsibilities under the National Historic 

Preservation Act.

 Provides funding to Federally-recognized American Indian and 

Alaska Native tribes for social services, infrastructure support, 

education, and other community development projects/programs 

through the Bureau of Indian Affairs.

Department of Justice

 Ensures and supports the fair, impartial, efficient, and transparent 

administration of justice at the local, state, tribal, territorial, and 

insular area levels.

 Protects rights and prevents abuses wherever needed in 

coordination with disaster recovery partners.

 As appropriate, through the NDRF, ensures individuals are protected 

through law and order during phases of recovery.

Department of 

Transportation

 Administers transportation assistance programs and funds that can 

be used for repair or recovery of transportation systems.

 Supplies information about transportation projects, plans, and 

programs relevant to the disaster-affected areas.

 Provides technical assistance to efforts, including long-range 

planning and engineering of transportation infrastructure systems.
Recovery Federal Interagency Operational Plan

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Supporting Organization Functions 

Environmental Protection 

Agency 

 Provides leadership on human health and environmental protection 

issues, including planning sustainable, healthy, and efficient 

communities.

 Provides technical assistance on using environmentally sound and 

sustainable approaches in building projects.

General Services 

Administration

 Provides direct access to commodities, telecommunications and data 

systems, training, office furniture, transportation services, and other 

commercial products and services under the Federal Supply 

Schedules.

Small Business 

Administration

 Administers funding and programs to promote the economic health 

of businesses and the communities in which they operate.

 Provides low-interest, post-disaster loans to individuals and families.

CPCB RSF Operational Activities 

There are three primary CPCB RSF operational activities: 

 Operational Activity 1: Evaluate and share information on disaster impacts and local planning 

capacity throughout the disaster area to support partners’ understanding of potential needs for 

planning and support. 

 Operational Activity 2: Leverage resources, resolve conflicts, and optimize application of partner 

capabilities in support of local planning capacity needs. 

 Operational Activity 3: Identify and implement strategies and specific actions to aid communities 

in planning recovery. 

This section identifies the overall operational activities and tasks CPCB RSF is expected to undertake 

to address the targets and operational functions, and describes the CPCB disaster concept of 

operations consistent with the overall FIOP. This section also identifies linkages with the NRF, the 

Response FIOP, and with other RSFs. 

The CPCB RSF uses a strategic and collaborative approach to aid local, state, tribal, territorial, and 

insular area governments to secure or develop adequate capacity to plan efforts after a major disaster 

or supplement local capacity through coordinated application of CPCB RSF partner resources. This 

section of the Annex describes the following operational tasks and activities the CPCB RSF 

undertakes in support of its mission, objectives, functions and requirements further defined by the 

FDRC: 

 Activation and deployment; 

 Assessments (including the MSA); 

 RSS; 

 Implementation management; 

 Communication and information sharing; 

 Measuring outcomes and CPCB success; and 

 Transition and demobilization. 
Recovery Federal Interagency Operational Plan 

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Specific support strategies, actions, timelines, and outcomes are identified by the RSF Field 

Coordinator, in coordination with the FDRC, the Regional and National Coordinator and partners, 

based on field realities. These are documented in the RSS as well as CPCB management documents 

maintained by the Field Coordinator. 

Activation and Deployment 

See the base FIOP for a full description of the RSF activation and deployment process. If it is later 

determined after activation that the disaster incident does not require the support of the CPCB RSF, 

the Coordinating Agency will work with the FDRC and other RSFs to deactivate some or all 

members of the CPCB RSF, ensuring that the local or state governments have sufficient capacity to 

plan recovery without CPCB RSF coordination assistance. 

In situations where CPCB deployment is not warranted, or CPCB is deactivated after the MSA is 

completed, the FEMA National and Regional CPCB Coordinators may continue to monitor recovery 

issues or actions. In these situations, CPCB RSF Regional Coordinators and other CPCB partner may 

provide advisory assistance and remotely coordinate among CPCB partner agencies and 

organizations. In these circumstances, CPCB RSF will not prepare an RSS or implement formal 

operational objectives and tasks. 

Some events will warrant the field deployment of CPCB member agencies. Deployments of CPCB 

RSF Federal partners are authorized by the FDRC at the request of the Field Coordinator. Specific 

authorities, protocols, and policies for activating, deploying, and deactivating some or all CPCB RSF 

members are explained in the base plan. 

Coordination and Partner Engagement 

Following activation, CPCB RSF will hold early and ongoing regular coordination meetings among 

Federal, nongovernmental, and private sector partners to facilitate information exchange, group 

problem solving related to planning, and development of support strategies and actions. An initial 

partner coordination meeting will be held within two to three weeks of deployment to begin this 

effort. CPCB will work with national and regional Federal and nongovernmental partners to engage 

state or regional level components, and conduct additional outreach for new partners. The RSF will 

also coordinate with other RSFs to identify needs and coordinate opportunities for supporting local 

leadership, planning process, recovery management, and community engagement related to 

community planning. 

Assessments 

CPCB conducts two operational assessment tasks and outputs working closely with CPCB partner 

agencies and organizations. These assessments are updated regularly in the early stages of the 

disaster, and as needed as the event progresses. These two CPCB specific assessments, the 

Community Conditions Assessment (CCA) and the CPCB Issues, Opportunities and Needs 

Assessment (ION), also feed the information summarized and contributed by CPCB RSF to the MSA 

prepared by the FDRC. These assessments will be conducted in a way such that they provide a 

benefit to the partner agencies and organizations to better enable their operations. 

 CCA is a broad effort to develop and display comparable data for communities/jurisdictions 

across the entire disaster for use by CPCB partners to maintain holistic situational awareness of 

all impacted communities in the context of disaster impact in relation to community capacity 

factors. This provides the initial basis to begin the process of identifying issues and areas of 

concern among partners. This assessment begins with an aggregation of basic disaster, 

demographic and pre-existing trends data, and community capacity indicators. This information 
Recovery Federal Interagency Operational Plan

B-18

is augmented by partner information and improved as the disaster progresses with additional 

disaster and community capacity information. This assessment enables CPCB partners to 

understand the relative magnitude of impacts and potential planning and capacity data points for 

those affected jurisdictions. Partners also use this information to collectively identify 

communities of interest that should be evaluated further. The initial CCA will be provided to 

partners at the first partner meeting post-deployment, and updated for subsequent partner 

meetings or as needed. 

 The CPCB ION Assessment is an identification of CPCB related disaster issues (gaps, 

challenges, conflicts, policy issues, and unknowns), opportunities, or needs affecting individual 

communities, multiple communities or disaster-wide areas. It allows CPCB partners to begin to 

identify, organize, and coordinate actions, policy, and programs. This assessment is largely 

qualitative. Support strategies and specific actions, when developed, will be linked to the 

identified issues and needs. 

Engagement with and information from communities 

CPCB RSF, as a coordination entity, works through partners and other JFO organizational elements 

to gain, collate, share, and analyze information from the field/community level. When possible, it is 

preferable to utilize the existing connections between state and community, and Federal and nonFederal partners and communities to gain the information to assess the CPCB-related conditions and 

capacity needs. A key purpose of convening partners will be to collect this information and develop a 

joint approach to developing further needed collective situational awareness. When necessary, 

FEMA, as coordinating agency, will utilize existing FEMA operational contacts that work through 

the state, to gain information. FDRC Representatives and the Coordination Group will serve as the 

conduit for entry into this source of information. FEMA will also initiate operations by assembling 

key community data, and continue to build, through application of GIS, research, and other data 

analytic techniques, the compilation of additional analysis to support partner coordination. 

Recovery Support Strategy 

CPCB contributes to the overall RSS prepared by the Federal interagency and the FDRC by 

providing the element that addresses strategies to address needs associated with the capacity of 

communities and local government to effectively lead, plan, manage, and involve stakeholders in 

recovery planning. CPCB identifies strategies for disaster-wide approaches, builds general capacity, 

and identifies strategies for specific regions, geographic areas, and communities. Specific support 

actions to address disaster wide strategies or community specific needs and actions will be organized 

and tracked by the CPCB Field Coordinator. 

CPCB will also provide input to other RSFs on their contributions to the RSS with regard to needs 

for local planning and capacity building support. CPCB anticipates several iterations of update and 

refinement to the RSS once partners have greater awareness of community challenges and needs. The 

evolving nature of disasters and the different capacity and capabilities of impacted communities will 

require additional evaluation within the first six to eight months of a disaster. The level of 

coordinated assistance must be continually evaluated and revised as the recovery progresses, to 

account for the increased participation and capabilities of partners. 

In general, the RSS component for CPCB should address strategies for addressing the communitybased planning targets outcomes, as appropriate. See Federal Support to Community-Based Recovery 

Planning. 
Recovery Federal Interagency Operational Plan 

B-19

Implementation Management 

The CPCB RSF Field Coordinator will maintain a management tool to track the identification of 

local planning support needs, strategies, and corresponding actions from the initiation of a CPCB 

field deployment to completion of the field mission. This management tool will be developed in 

concert with and shared with CPCB partners. This tool will identify which partner is taking a lead 

role in a particular action and other partners that have a role. Status and expected completion will be 

tracked. This information will be shared on an ongoing basis with the state and partners. As 

necessary, coordination meetings will be called to conduct a review of the strategies, needs, and 

actions. When the most significant needs and the corresponding actions have progressed adequately 

toward completion or remaining actions require limited CPCB RSF coordination through the 

presence of the FEMA (Coordinating Agency), the CPCB RSF will be transitioned and then 

demobilized. 

Transition and Demobilization 

Transition is coordinated among all partners and communicated to all interested parties, including the 

local community. This strategy may detail key points in recovery that indicate local, state, tribal, 

territorial, insular area, nongovernmental organization, and private sector partners have established or 

re-established the ability to complete necessary planning without direct coordination support from 

FEMA CPCB RSF personnel. 

CPCB RSF coordination activities may conclude at a precise end date at which time community 

planning capacity building needs are supported and coordinated adequately by Federal, state, 

territorial, insular or local government or other partners. CPCB RSF support may also slowly phase 

out over weeks or months, as particular types of support that require more intensive coordination, 

such as a community planning forum, are taken on by partners. In this case, some needs may 

continue to be fulfilled by FEMA regional staff operating remotely during the transitional period. 

Specific CPCB RSF resources identified or developed to aid local, state, tribal, territorial, and insular 

area governments on an ongoing basis are documented and confirmed with the SDRC prior to 

demobilization. Fulfillment of the CPCB RSF mission is measured against the general targets 

established in the FIOP and the specific goals, objectives and measures established in the FDRC’s 

RSS. 

Linkages and Interdependencies 

The work of CPCB RSF and its partners is a holistic endeavor focused on enabling local recovery 

planning. The planning process, and other capabilities needed for effective planning and 

implementation of recovery plans, may be driven by issues found within the other RSF sectors. 

CPCB RSF coordinates with the other RSFs throughout its operation to ensure that local planning 

needs are addressed. 
Recovery Federal Interagency Operational Plan

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Table B-5: Components and Their Areas of Linkage or Dependency 

Functional/Operational 

Component Area or Scope of Linkage/Dependency

ESFs

Situational information and damage assessment information will be 

gathered from ESFs as appropriate, to develop community assessment 

components. Field level and community interactions will be coordinated 

with similar elements, particularly under ESF #3 (Public Works and 

Engineering), ESF #6 (Mass Care, Emergency Assistance, Temporary 

Housing, and Human Services), ESF #8 (Public Health and Medical 

Services), ESF #11 (Agriculture and Natural Resources), and ESF #15 

(External Affairs). Coordinate with the FEMA Voluntary Agency Liaison 

(ESF #6) to identify information related to activities of the local LTRGs, 

and to identify opportunities for CPCB RSF partners to coordinate 

community planning efforts with these groups.

Public Information and 

Warning Core Capability

ESF #15 (External Affairs) is the operational element responsible for the 

Public Information and Warning core capability. CPCB will coordinate with 

ESF #15 (External Affairs), including the Disability Integration Advisor, 

when there are needs or issues related to local capacity for 

communications and community engagement with the whole community 

during local recovery planning activities.

Operational Coordination 

Core Capability/FDRC/

FDRC Representatives/

All RSFs

CPCB will coordinate local planning capacity building support efforts with 

other relevant RSFs and will seek information on potential local recovery 

planning support needs from other RSFs. CPCB RSF will work 

collaboratively with and may defer to other RSFs for coordination of 

recovery planning technical assessment activities specific to the 

associated core capability of that other RSF needed to support a local 

planning process.

Building capacity for local leadership and local disaster recovery 

management is within the Operational Coordination core capability. FDRC 

Representatives serve as the primary conduit of information from RSFs to 

local leadership and local disaster recovery managers. CPCB will refer 

any general leadership development or local disaster recovery 

management capacity development to the FDRC or designated FDRC 

Representative, who will coordinate among agencies and organizations to 

address those overall capacity needs. CPCB will coordinate with FDRC 

Representatives when there is a need to educate local leadership on 

recovery planning or develop recovery management capability to 

implement a recovery plan.

Economic Core 

Capability/RSF

Community planning and capacity building for economic recovery are 

important elements within the mission of the Economic RSF. CPCB 

coordination and support for local planning processes is linked and should 

be coordinated with local, regional planning commissions and regional 

economic development organizations’ planning activities of Economic 

RSF and its agencies.

Housing Core 

Capability/RSF

The Housing RSF, along with its major sources of funding through the 

Department of Housing and Urban Development’s CDBG program and 

the Department of Agriculture’s (USDA’s) various housing programs has 

significant engagement with local, state, tribal, territorial, and insular area 

governments concerning planning for housing and a variety of populations 

served by government supported housing programs. CPCB coordination 

and support for local planning processes is linked and should be 

coordinated with local planning activities of the Housing RSF.
Recovery Federal Interagency Operational Plan 

B-21

Functional/Operational 

Component Area or Scope of Linkage/Dependency 

Infrastructure Core 

Capability/RSF

Reconstruction of major infrastructure system requires significant local, 

metropolitan and regional planning. CPCB coordination and support for 

local planning processes is linked and should be coordinated with the 

activities of this RSF.

Health and Social 

Services Core 

Capability/RSF

Health and Social Services (H&SS) supports CPCB in promoting and 

coordinating inclusion of health considerations in recovery planning in 

tribal and local recovery planning efforts. H&SS supports CPCB RSF with 

local planning when impacts include loss of access to or infrastructure for 

health care. H&SS RSF partners may be instrumental in providing 

guidance to local governments on engaging with and communicating to 

diverse populations. This community engagement support will be 

coordinated through ESF #15 (External Affairs), with H&SS for any 

community planning support efforts. CPCB coordination and support for 

local planning processes is linked and should be coordinated with the 

activities of this RSF.

Natural and Cultural 

Resources Core 

Capability/RSF

NCR issues often become substantial planning challenges for local 

governments. Some NCR RSF stakeholders will likely be dual participants 

in the CPCB RSF when planning, hazard mitigation, and sustainability are 

concerns.

Resources 

 Advance Evaluation SOP 

 FEMA Operational Planning Manual 

 Mitigation FIOP 

 MSA SOP 

 Region III Recovery All-Hazards Plan 

 Response FIOP 

 CPCB RSF: FEMA Management SOP (draft) 

 CPCB RSF: FEMA Assessment SOP (TBD) 

 Long Term Community Recovery Planning Process, Self Help Guide 

 FEMA Stafford Act, Section 402(3)(F) regarding FEMA capability to provide technical 

assistance for assessment and recovery planning. 

 FEMA Recovery Planning Technical Assistance Program Guidance (TBD) 

 FEMA CPCB RSF and TA program Cadre Position Task Books and baseline requirement 

 FEMA Training Courses for CPCB RSF: E83 Community Recovery Specialist and E85 

Managing the CPCB RSF 

There are several directives, laws, and other doctrine that influence or assign planning responsibility 

or entities, such as the Post Katrina Emergency Management Reform Act, Presidential directives, or 

Federal Continuity Directive-1. 
Recovery Federal Interagency Operational Plan

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Recovery Federal Interagency Operational Plan 

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Annex C: Public Information and Warning

Purpose 

The purpose of this annex is to describe the structure, activities, and resources for delivery of the 

Public Information and Warning core capability goal of delivering coordinated, prompt, reliable, and 

actionable information to the whole community through the use of clear, consistent, accessible, and 

culturally and linguistically appropriate methods to effectively relay information. 

Objectives and Considerations 

In the context of the recovery mission, ongoing clear, consistent, effective, accessible, and culturally 

appropriate communication and information sharing is critical to an inclusive recovery process. An 

inclusive recovery process engages the whole community, including individuals with disabilities and 

other access and functional needs, individuals with LEP, and those who provide services to children 

to ensure their needs are being met during the recovery process. 

Objectives 

 Develop a Communications Strategy to ensure stakeholders have a clear understanding of the 

available assistance and their roles and responsibilities throughout the recovery process. 

 Manage expectations through clear, accurate, and transparent messaging. 

 Engage the whole community and ensure information is in accessible formats. 

Considerations 

 Identify an ESF #15(External Affairs) Program Liaison for each RSF activated to support the 

recovery mission. 

 Ensure a long-term staff presence to support the FCO, FDRC, and Region. 

 Conduct whole community assessments to better understand affected stakeholder groups, 

including those with disabilities and other access and functional needs, and individuals with LEP. 

 Support local, state, tribal, and territorial governments to clearly and promptly identify and 

communicate the vision and objectives for recovery, establish clear milestones, and to 

communicate progress towards those milestones in an accessible and transparent manner. 

Recovery Targets 

Federal agencies are prepared to deliver the Public Information and Warning core capability for the 

recovery mission area using developed recovery specific target statements with the input of primary 

and supporting agencies and organizations. Target statements are key outcomes expected from 

applying a core capability during recovery operations. 

Core Capability Targets 

 Organize and execute external engagement in support of recovery operations. 

 Provide a Federal interagency communications strategy for long-term public information and 

engagement needs in support of the RSS. 
Recovery Federal Interagency Operational Plan

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Federal Coordinating Structure 

ESF #15 (External Affairs) coordinates public information and communications for all Federal 

departments and agencies that may require incident communications support or whose 

communications assets may be employed during incidents requiring a coordinated Federal response. 

The lead agency for ESF #15 will be dictated by the type of incident. For Stafford Act incidents, 

FEMA External Affairs leads interagency ESF #15 activities. For other types of responses, (e.g., 

terrorism events, radiological incidents, spills of national significance) other agencies may be 

identified as ESF #15 lead agencies. For example, during the Deepwater Horizon Oil Spill in 2010, 

U.S. Coast Guard was the lead agency for ESF #15. During the 2014 Ebola Outbreak, the U.S. 

Department of Health and Human Services led the ESF #15 response efforts. 

Overview of Partners 

Table C-1: Public Information and Warning Coordinating, Primary and Supporting Agencies 

Public information and Warning

Deliver coordinated, prompt, reliable, and actionable information to the whole community through the 

use of clear, consistent, accessible, and culturally and linguistically appropriate methods to effectively 

relay information regarding any threat or hazard and, as appropriate, the actions being taken and the 

assistance being made available.

ESF #15 Coordinating Agency: Department of Homeland Security (DHS)

ESF #15 Primary Agency: DHS/Federal Emergency Management Agency (FEMA)

Supporting Organizations: All

ESF #15 Overview 

ESF #15 provides accurate, coordinated, timely, and accessible information to affected audiences, 

including governments, media, the private sector, and the local population, including children, those 

with disabilities and others with access and functional needs, and individuals with LEP.6 External 

Affairs components and a summary of their functions are listed in Table C-2. 

 

6

 Emergency Support Function #15 – External Affairs Annex, May 2013. 
Recovery Federal Interagency Operational Plan 

C-3 

Table C-2: FEMA External Affairs Components 

External Affairs Components

Intergovernmental Affairs 

(Local, State, Tribal and 

Territorial) 

Intergovernmental Affairs incorporates local, state, tribal, and territorial 

coordination to assist the FCO, FDRC, and Unified Coordination 

Group with direct communications procedures to build partnerships 

with local, state, tribal, and territorial governments, and facilitates 

delivery of recovery programs and resources to support families, 

community livelihood, and cultural and environmental resources.

Joint Information Center 

Joint Information Center (JIC) activities ensure the coordinated and 

timely release of incident-related prevention, preparedness, response, 

recovery, and mitigation information to the media and the public. ESF

#15 provides the interagency coordination mechanisms and resource 

support for Federal JIC activities.

Congressional Affairs 

Congressional Affairs provides information to members of congress 

and their staff. It addresses incident-related questions, concerns, and 

problems expressed by their constituents.

Private Sector 

Private Sector coordination assists the FCO, FDRC, and Unified 

Coordination Group with communications involving counterparts in the 

nongovernmental and commercial areas. This could include setting up 

roundtables, workshops, recovery fairs, and industry-specific forums.

Planning and Products

This component develops all external and internal communications 

strategies and products for the ESF #15 organization and components 

to ensure consistent, coordinated messaging to all stakeholders. It 

also ensures information is available in accessible formats to the 

whole community, including those with LEP and accessible 

communication needs.

Source: ESF15 Standard Operating Procedures, August 2013

Staff Support for Recovery Communications 

ESF #15 staff assignments are based on pre-incident staffing plans and/or determined during 

communications between the Director, FCO, FDRC, departments and agencies, and component 

directors. 

The External Affairs Officer (EAO) supports the FDRC to ensure that accurate, actionable, and 

accessible information is shared with all external recovery stakeholders, including: 

 General public; 

 Media; 

 Local, state, tribal, and territorial government partners; 

 Private sector; 

 Nongovernmental organizations engaged in the recovery process; and 

 Members of Congress and their staff. 

Depending on the nature and scale of the disaster, an ESF #15 Program Liaison and additional staff 

may be assigned to the recovery operation to facilitate ongoing coordination and communication with 

recovery stakeholders. 
Recovery Federal Interagency Operational Plan

C-4 

The FDRC may stand up a Mission and Outreach Support Group as part of the Federal recovery 

organization to support the FDRC’s effort to develop community-based, interagency, and partnership 

outreach and communication approaches with local, state, tribal, territorial, and insular area partners. 

This group is generally staffed by the NDRS cadre. The ESF #15 Program Liaison will work closely 

with the Mission and Outreach Support Group to coordinate external engagement efforts. 

Critical Tasks 

Recovery staff and ESF #15 will have an ongoing partnership throughout the recovery operation to 

develop recovery-specific communication products and messaging. Federal agencies delivering 

Recovery core capabilities through the RSF coordinating structure may utilize a number of methods 

to communicate about disaster assessment, analysis and priorities of recovery stakeholders, as well as 

available agency resources. 

ESF #15 will provide active support to the FDRC and RSF Field Coordinators to ensure there is

broad visibility on recovery support actions and planning throughout the operation. All public 

engagement and communications should also involve coordination with the Disability Integration 

Advisor to ensure an accessible recovery planning process. Throughout the recovery operations, the 

FDRC will ensure that the recovery staff provides needed information to synchronize with ESF #15 

and support the smooth flow of information across mission areas. 

Below is a summary of recovery communications for each phase of recovery, divided into 

immediate/short-term, intermediate, and long-term activities. This timeline is based on the recovery 

continuum in the NDRF. The end of this section details how ESF #15 can support across the 

recovery continuum. 

Immediate/Short Term Activities 

If enhanced coordination is needed to address local, state, tribal, and territorial recovery needs, an 

FDRC will be appointed to serve as the central coordinator for recovery. The FDRC will establish a 

management structure based on the scale of the disaster and recovery support needs. In these initial 

stages of the recovery operation, the FDRC and the EAO will engage to initiate development of a 

communication strategy for recovery and determine initial and anticipated ESF #15 staff support 

needs. The FCO, FDRC, and EAO will coordinate information and facilitate a seamless transition 

between response and recovery. The communication strategy will include at a minimum, but not be 

limited to: 

 Projected timelines for major public-facing recovery actions (e.g. assessment and engagement

efforts, technical assistance initiatives, public meetings, and targets for announcing major

milestones with local, state, tribal, and territorial partners);

 Planned communications methods and pathways;

 Topline messaging priorities;

 Actions to enable coordinated outreach activities; and

 Update schedule.

Initial activity of activated RSFs will involve establishing communication with recovery partners and 

assessing recovery-related impacts, building on the information obtained during the response phase. 

As an example, a key objective for the Health and Social Services RSF is development and 

implementation of risk communications and public health messaging for the disaster. To increase 

effectiveness of messaging and to ensure alignment and visibility across Federal agencies, Public 
Recovery Federal Interagency Operational Plan 

C-5 

Information Officers for Federal agencies supporting recovery through the RSFs should ensure 

coordination and communication with FEMA ESF #15 staff throughout the recovery operation. 

Table C-3 outlines key stakeholders, messages/information to be conveyed and/or collected, and 

examples of how the communication may occur during the immediate/short-term phase of the 

recovery operation. The focus of communications at this stage will be on response-oriented 

messaging, including life-saving and life-sustaining information. As the FDRC and RSFs ramp up 

their engagement, ESF #15 will also begin communicating their efforts in the recovery planning 

process. 

Table C-3: Key Recovery Communication: Short Term/Immediate 

Short Term/Immediate Recovery Communication

Who are we 

communicating with? 

What is the message or information 

being shared?

How is the message/

information being 

communicated? 

 State, tribal, territorial 

recovery governmental 

stakeholders

 Nongovernmental 

organizations

 Private sector 

establishments

 Identify areas of need/capacity 

gaps

 Conference calls

 Sector-specific meetings

 Written reports 

 Develop and share data on disaster 

impacts

 Promote information sharing about 

Federal agency 

resources/programs

Intermediate Activities 

Recovery assessments and analysis will inform the development of an RSS. The process of gathering 

information and developing the RSS will involve engagement with governmental and 

nongovernmental partners and key stakeholders in the community to determine recovery-related 

impacts and priorities. The RSS is one mechanism for informing recovery stakeholders of the type, 

scope, and nature of RSF recovery support, which will be provided to state, local, tribal and 

territorial governments. The RSS should also include a plan for how the RSFs will coordinate and 

communicate with local, state, tribal and territorial recovery officials as well as nongovernmental 

partners.

In the intermediate phase of the recovery operation, Federal agencies will be acting on Federal 

agency strategies and recovery support actions outlined in the RSS. ESF #15 will continue to work 

with the FDRC and Federal agencies within the RSFs to develop messaging and products as part of 

state, tribal and local recovery support activities. Table C-4 provides examples of communications 

and coordination with key stakeholders. This table is not inclusive of all manner and type of recovery 

communications. The scale and nature of the disaster will determine outreach and communications 

needs for the recovery operation. 
Recovery Federal Interagency Operational Plan

C-6 

Table C-4: Key Recovery Communication: Intermediate 

Key Recovery Communication: Intermediate

Who are we 

communicating with? 

What is the message or information 

being shared?

How is the message/

information being 

communicated? 

 Recovery 

stakeholders (private 

sector, housing 

authorities, 

community based 

organizations, 

lenders/finance)

 Gaining understanding of issues, 

priorities

 Provision of information on available 

loans, grants, tax incentives to 

assist recovery and rebuilding

 Workshops

 Listening Sessions

 Focus groups

 Available technical assistance, 

subject matter expertise to address 

recovery issues

 Expected timeline for community 

recovery (overall/per sector)

 Community outreach initiatives 

(workshops, trainings, town 

halls)

 State, tribal, territorial 

recovery leadership, 

nongovernmental 

organizations and 

community members 

 Advising on the incorporation of 

mitigation, sustainability, and 

resilience-building measures into 

recovery plans and implementation

 Expected timeline for community 

recovery (overall/per sector)

 Community outreach initiatives 

(workshops, trainings, town 

halls)

 Stakeholder meetings with 

subject matter experts

 Written guidance

 Members of 

Congress and their 

staff

 Educating on the recovery planning 

process and current efforts taking 

place

 Expected timeline for community 

recovery (overall/per sector)

 Congressional advisories

 Congressional briefings and 

conference calls

 Media; general public

 Educating on the recovery planning 

process and current efforts taking 

place

 Opportunities for engagement 

(upcoming events and meetings)

 Expected timeline for community 

recovery (overall/per sector)

 News releases

 Community outreach initiatives 

(workshops, trainings, town 

halls)

 Interviews

Long Term Activities 

Implementation of the RSS will involve ongoing communication with local, state, tribal, and 

territorial recovery leadership and outreach to community members and sector-based recovery 

stakeholders. Governmental and nongovernmental stakeholders navigating the complexities of 

recovery need clearly defined expectations regarding the scope and nature of recovery support 

provided by Federal agencies and departments in support of local, state, tribal, and territorial 

recovery priorities. Stakeholders also need to know how they can participate in the recovery planning 

process. 

The FDRC will communicate progress toward milestones to JFO leadership and local, state, tribal, 

and territorial recovery leadership and maintain communication with local, state, tribal, and territorial 

recovery leadership to identify emerging, unresolved recovery issues. Communications needs during 

RSS implementation will vary based on the nature and scope of the disaster. Table C-5 provides 
Recovery Federal Interagency Operational Plan 

C-7 

some examples of communications as the strategies in the RSS are being implemented in 

collaboration with local, state, tribal, and territorial partners. 

Table C-5: Key Recovery Communication: Long-Term 

Key Recovery Communication: Long Term

Who are we communicating 

with? 

What is the message or 

information being shared?

How is the message/

information being 

communicated? 

 Key stakeholders in 

rebuilding/recovery:

 Business owners

 Finance sector

 Housing authorities

 Community based organizations

 Best practices (new building 

codes, NFIP compliance, 

workforce development, etc.)

 Tax relief, incentives available 

for rebuilding

 Workshops

 Written guidance

 Trainings

 Local, state, tribal, territorial 

recovery stakeholders

 Nongovernmental organizations

 Business owners

 Capacity building resources to 

address recovery needs

 Stakeholder meetings 

with subject matter 

experts

 Written guidance

 Training

 Local, state, tribal, territorial, 

recovery taskforces, committees

 Support that will be provided as 

Federal agencies transition to 

steady state; key points of 

contact, next steps

 Written report

 Community meeting

Closeout and Transition to Regional External Affairs 

After a JFO or recovery office closes, the public information function transitions back to External 

Affairs staff in the corresponding FEMA region. Prior to the transition to the FEMA regional office, 

ESF #15 will develop a transition plan to indicate to the FEMA External Affairs staff which Federal 

department or agency representative is the primary point of contact for all RSS-related actions. This 

staff will continue to support recovery operations and coordinate with external affairs staff from 

relevant Federal agencies. As recovery progresses, the FEMA regional External Affairs staff will also 

support local, state, tribal, territorial, and Federal partners in capturing and highlighting success 

stories. 

External Affairs Capabilities/Support for Recovery Communications 

External Affairs has expertise and resources to support recovery communications in a variety of 

ways. Below are examples of how External Affairs components can support critical communication 

activities for recovery in the course of public communication and stakeholder engagement. The 

External Affairs function is scalable and flexible with respect to supporting incident requirements. 

External Affairs staff serving as liaisons or co-located with the recovery operation staff continue to 

report to their External Affairs supervisor per their chain of command. 
Recovery Federal Interagency Operational Plan

C-8 

Table C-6: External Affairs Support 

Intergovernmental 

Affairs Staff

 Advises leadership on current and potential volatile issues and possible 

resolutions.

 Staff includes Tribal Affairs Specialists who have tribal experience and 

working knowledge of tribal governments, culture, and traditions.

 Conducts outreach to leaders of organizations representing traditionally 

underserved populations.

 Serves as point of contact for county and parish elected officials, mayors, 

borough and city council members, and other elected officials to address 

issues and concerns.

Joint Information 

Center Staff

 Coordinates media relations for the recovery operation, including 

conducting radio, TV, and print interviews.

 Monitors news coverage.

 Disseminates information through a variety of forums: website, blog, social 

media, and community meetings.

 Photography/videography at community events.

 Logistical support of public meetings and presentations.

Congressional 

Affairs Staff

 Serves as point of contact to congressional members and their staff.

 Stays apprised of congressional office needs and concerns.

 Maintains regular communication with affected congressional offices.

 Provides updates to congressional offices on key recovery efforts.

Private Sector Staff

 Conducts outreach to the private sector.

 Connects network of private sector contacts (chambers of commerce, major 

employers, industry/trade associations).

 Identifies critical issues for private sector. 

 Identifies opportunities for recovery leadership to speak to key private 

sector groups.

 Helps coordinate events to support private sector recovery, such as 

roundtables, workshops, recovery fairs, and industry-specific forums.

Planning and 

Products Staff

 Serves as the liaison and subject matter expert to recovery to facilitate 

information sharing and messaging planning and development.

 Develops a recovery communication strategy to support RSS, that includes 

outreach plans to reach the whole community.

 Develops written external products and internal communications 

documents.

 Ensures information is in accessible formats, managing multilingual 

translations and services for those with accessible communications needs 

(e.g., braille, large font).

 Develops press releases, briefing materials, flyers, presentation materials, 

talking points, summary reports, timeline tracking and other materials as 

needed.

 Collects and reports information on recovery support/engagement activities 

to support information sharing within a Unified Coordination Group, Region 

and Headquarters.

Source: ESF15 Standard Operating Procedures, August 2013
Recovery Federal Interagency Operational Plan 

C-9 

Resources 

For additional information on ESF #15 (External Affairs), please refer to the following resources: 

 Emergency Support Function #15: External Affairs Annex, May 2013 

 http://www.fema.gov/media-library-data/20130726-1914-25045-

7063/final_esf_15_external_affairs_20130501.pdf

 Emergency Support Function #15: Standard Operating Procedures, August 2013 

http://www.fema.gov/media-library-data/965d87d8c5ffc4bcccb01979913e01fc/ESF15_SOP_08-30-

2013-02.pdf
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Recovery Federal Interagency Operational Plan 

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Annex D: Economic Recovery

Purpose 

This annex describes the delivery of the Economic Recovery core capability. This core capability is, 

like the others, highly interdependent and applicable to disasters of any scale. The Economic 

Recovery core capability entails returning economic and business activities (including food and 

agriculture) to a healthy state and developing new business and employment opportunities that result 

in a sustainable and economically viable community. 

Objectives and Considerations 

This section addresses critical considerations associated with addressing economic recovery postdisaster. Economic assessments and recovery planning are centered on addressing these elements. 

Naturally, the opportunity exists for other issues to arise that are not enumerated under these 

considerations. Generally, these considerations tend to be common across most incidents and should 

be used to derive substantive input for both economic recovery impact assessments and the 

exploration of recovery actions. 

1. Assessment and Evaluation—Consideration for the integration, access, collection, and analysis 

of economic recovery related data. 

2. Community Planning—Consideration of alignment of economic recovery planning efforts with 

other community-driven planning efforts and issues. 

3. Cash Flow—Consideration of individual and business cash flow issues and the conduct of 

commerce. 

4. Business Resumption—Consideration of businesses returning, rebuilding concerns/issues, 

capital access resources and business planning. 

5. Capital Access and Insurance—Consideration of access to capital issues, insurance 

payments/coverage issues. 

6. Workforce Development—Consideration of post-disaster labor demand with supply, retraining 

programs, the unemployed, temporary employment, etc. 

7. Economic Development—Consideration of accelerated project development, repurposed 

initiatives, job creation opportunities, and other associated issues. 

8. Small Business—Considerations for small business issues like business planning, capital 

resources, and the need for technical assistance. 

9. Marketing and Communications—Considerations for promoting active and consistent 

communication between local, state, tribal, territorial, insular areas, Federal, and private sector 

stakeholders regarding the issues and opportunities affecting the economy. 

10. Resiliency—Considerations for promoting economic planning and strategies that enable local, 

state, and tribal communities to anticipate risk, limit impact, and bounce back rapidly postdisaster. 

Assessment and Evaluation 

Disasters present communities and businesses with information challenges. Post-disaster 

communities are over-tasked and usually understaffed. Depending on the state of economic 
Recovery Federal Interagency Operational Plan

D-2 

development planning in the community, pre-disaster data may be limited, post-disaster data 

unavailable, and analytical capacity sparse. Further, the assessment and evaluation needs of adequate 

recovery planning may necessitate the capture of a diverse set of data (e.g., economic development, 

community planning, workforce, business and industry output) not routinely tracked at the local 

level. 

The assessment and evaluation of circumstances post-disaster is critical to devising an attainable plan 

for recovery. Such appraisals are most effective when they are realistic, fact-based, and broadly 

integrative of information from a wide variety of sources. At the same time, the economies of many 

communities hinge on less tangible qualities—“southern hospitality,” “livability,” or “urban 

destination.” Disasters often threaten both the tangible and the intangible. Post-Katrina New Orleans 

provides an excellent example. A shift in population threatened the vast portion of businesses, but 

many feared that among the populace that moved was the heart of the music community, responsible 

for much of the city’s unique character and upon which much of the local economy was based. 

Assessments and evaluations must combine the quantitative and tangible with the qualitative and 

intangible. Often, a lack of pre-disaster business data can make the post-disaster impact assessment 

very difficult. Communities may also lack the technical expertise to conduct economic or 

demographic analyses to assess the impact of the disaster on their local economy. A lack of capacity 

to define the economic recovery challenges can contribute to the overall uncertainty and lack of 

confidence brought on by the incident itself. 

Community Planning 

Communities across the country vary in size, geography, and demographics. Community planning is 

a strategic planning process that addresses the unique needs of the community in a purposeful way, 

providing for and promoting the future wellbeing of the area by integrating land use, housing, 

transportation, economic, and social considerations. Such conditions include childcare, so parents can 

return to work, and supports and services used by individuals with disabilities and others with access 

and functional needs, such as accessible public transportation and paratransit and restoration of 

power for individuals who receive dialysis, utilize speech generating devices, ventilators or durable 

medical equipment, which depends upon a steady power supply. There are often many “good ideas” 

for what the economic recovery should look like. If these ideas are not deeply integrated in the 

community planning process they are likely unsustainable. Additionally, uncertainty about the “new 

normal” will be pervasive. This uncertainty can be better informed by the planning process.

Cash Flow 

Virtually every disaster results in a reduction, even near cessation, of the flow of cash throughout the 

affected area. Damage to a business’ property may cause it to cease operations, interrupting the predisaster commerce between consumers, merchants, and their suppliers. Thus the extent to which the 

conduct of commerce is impacted by the incident is a critical consideration. 

Businesses that remain open will lack customers due to evacuations until local residents address 

personal circumstances, or simply due to a display of consumer caution about impacted products. 

Some disasters create consumer safety concerns damaging a local or regional “brand,” such as the 

impact of the Deepwater Horizon oil spill on the Gulf seafood industry. Catastrophic disasters will 

disrupt banking operations, slowing the ability of businesses to access accounts and move funds. 

Access to new capital will also be severely reduced by a lack of investor confidence and other 

factors. 
Recovery Federal Interagency Operational Plan 

D-3 

The impact of the incident on the cash flow of an individual business will depend on the nature of the 

business. Large firms with diversified operational bases (e.g., geographic dispersion, multiple 

product lines, adequate continuity plans) will be effected less than a firm focused on the impacted 

region or one that owns a critical node there. Small businesses can face severe post-disaster survival 

issues. Even profitable businesses experiencing sudden, large-scale reductions in cash flow will find 

it difficult to sustain the operations they conducted pre-disaster. The economic cascade further 

devastates the affected region; bills to local suppliers go unpaid, the ability to meet payroll dries up, 

and new orders for supplies cease. The impact on commerce is a critical consideration in assessing 

overall needs. 

Business Resumption 

Businesses need to consider not only whether they will resume operations, but also how they will 

persevere if they do reopen. Business reopening decisions are often proprietary financial decisions 

based on evaluating the costs for rebuilding, the risks of the impact to the local market, and the 

overall risks of continuing to do business in the impacted community. Business resumption can often 

serve as the catalyst for the recovery-related decisions of many other community assets. Ultimately, 

it is important for the Economic RSF to understand the decision-making process that underpins the 

private sector primacy for how and when they make resumption decisions. For example, if a major 

employer decides to repair its facilities, the employees are more likely to return, as they have access 

to gainful employment. In addition, local suppliers and service-related businesses that depend on the 

business generated by impacted employers will also be more likely to return. Of course, the inverse is 

also true: if the major employer does not return, a possible series of negative ripple effects for the 

community may hinder the recovery effort.

This issue is not isolated to a single large employer deciding to return. It is closely tied to the 

effectiveness and speed of payment of insurance claims, FEMA IA, SBA Disaster Loans, and supplychain logistics. For example, if the producer, manufacturer, grower, consumer, vendor, distributor, 

and retailer of a particular good are all affected by the disaster, any delay in resuming the flow of 

cash, credit, and inventory can hinder the recovery effort. Pre-disaster business continuity planning 

makes this process less risky. Also, business-level risk/opportunity decisions may prohibit 

rebuilding. As a result, the departure of businesses may cause significant (but highly localized) 

economic impact. The role of the public sector in this area is centered on how it can improve the flow 

of information to better equip the establishment-level decision-making process and promote a 

positive environment for growth. Finally, a positive business environment pre-disaster will often be 

an indicator of the outcome post-disaster. 

Capital Access and Insurance 

Disaster creates uncertainty. To financial analysts, uncertainty equates to risk. Risk increases the cost 

of capital and insurance for businesses in the impacted area. Without available and affordable capital, 

businesses cannot rebuild capacity lost in the disaster and fund alterations to existing capacity to 

adapt to the post-disaster economy. Recovery thus entails mitigating and managing the risk such that 

the exposure to any firm is roughly at pre-disaster levels. 

Insurance is the first recourse for most businesses to recapitalize after a disaster, but has limitations. 

Insurance policies in effect at the time of the disaster may contain provisos restricting payment in 

certain circumstances. For example, flood and wind damage may be handled differently. Basic 

policies often do not cover earthquake or terrorist damage. Accidental manmade causes may or may 

not be covered. A variety of government and nongovernmental sources provide resources to close the 

gap between available insurance and actual replacement costs. Moving forward from a disaster, the 
Recovery Federal Interagency Operational Plan

D-4 

perceived or measurable risk remaining to the affected area may be viewed differently than predisaster judgments. When this reassessment of risk occurs, it almost always means increased 

insurance rates for businesses, which leads to some business relocations and closures. Actions to 

mitigate risks that are practical within the disaster area may be critical to preserving an individual 

business or an entire sector of businesses. 

Workforce Development 

Workforce issues include labor availability, workforce development, and retraining. A disaster may 

present a multitude of conflicting and compounding workforce issues. Much of the workforce will be 

completely, and in some cases permanently, displaced after a disaster. Workers may need retraining 

to meet new local workforce demands. Workforce dynamics change after a disaster. Often there is a 

near-term deficit in construction trades (needed to rebuild/repair damaged property), but a surplus of 

retail workers until stores are repaired and customers return. Affected communities face the 

challenge of integrating new labor market skills, while ensuring temporary booms are not overinvested. Unemployment caused by the disaster can also create workforce retraining opportunities. 

Economic Development 

A disaster may have lasting impacts on local economic development initiatives at all levels—local, 

state, tribal, territorial, insular area, Federal, private sector, and nonprofit. Existing economic 

development strategies need updating to meet the needs of a new normal and incorporate 

community-driven planning elements. Also, the need may arise to enhance the diversification of the 

economic base of the disaster-impacted and recipient communities to take advantage of shifts in the 

labor market. At the core of most economic development considerations is the establishment of a 

disaster coordinator to conduct economic development and recovery activities for the duration of the 

effort. Because many of the economic development applications in the disaster recovery environment 

are by definition long-term (e.g., diversification initiatives, business incubators, business retention, 

and expansion programs), it is vital to have the resources available to sustain those efforts for the 

duration of the recovery effort. 

In addition to these considerations, it is necessary to evaluate the pre-disaster economic development 

strategies and plans to consider their applicability in a post-disaster environment. In many cases, 

well-considered economic development projects may still have relevance in a post-disaster 

environment, if their primary goal was to promote businesses and spur job creation. Therefore, a 

community with an existing strategy for targeting key growth industry sectors or a business retention 

and expansion program should be in a better position to meet economic development needs postdisaster. However, some considerations must be made at the local level to evaluate how projects may 

be adjusted and appropriately accelerated to expedite the recovery process. The evaluation of the 

post-disaster economic development strategy should be a bottom-up effort to capitalize on the 

community’s assets. Generally, economic development projects are designed to create jobs and 

promote private investment. If they are still relevant, those projects should be accelerated. Also, 

economic development initiatives should make the most of post-incident opportunities. 

Small Business 

A disaster invariably impacts small businesses far more than large ones. Where bigger firms can rely 

on assets outside the affected region, the small firms’ lack of capital resources, existing debt burdens, 

and limited excess capacity serve as barriers to the resumption of business activity. Small business 

owners who survive the incident can succumb to its consequences. Contamination risks, 

infrastructure damage, or population shifts may make restarting a business untenable. As a result, 

many small businesses move after a disaster; but moving just outside the disaster zone or following a 
Recovery Federal Interagency Operational Plan 

D-5 

displaced population may be more expensive than staying put. Can the new location support the 

business? Can the owner compete when the firm’s presence creates a distinct tension between preexisting businesses in the recipient community and those owners trying to start fresh? In order to 

survive, businesses need to be flexible, innovative, and adaptive. Some situations require adapting 

existing businesses’ plans, over the long term, to accommodate a new normal. In other 

circumstances, the best course may be for a small business to make short-term shifts (e.g., a 

restaurant caters to responders until its customer base returns). 

Ultimately, economic success post-disaster is not predicated solely on the survival of existing 

businesses. True economic success occurs when the opportunities created by the disaster are fully 

understood. Post-disaster success requires creative entrepreneurs. At the same time, small businesses 

often define the character of a community; preserving that character may be an important factor in 

preserving the economy. 

Marketing and Communication 

Disasters frequently taint industries and regions, creating actual or perceived conditions that are 

undesirable or unsafe for consumers. The 9/11 attacks contributed directly to a 10 to 20 percent 

reduction in airline business, and demand for Gulf seafood decreased in the aftermath of the 2010 

Deepwater Horizon oil spill. Some of these conditions can be rectified by straightforward “open for 

business” messages in relatively conventional marketing efforts. Others can be solved only by time. 

The more problematic situations require a version of “rebranding” the product.

Because conditions can be dramatically changed by a disaster, new opportunities arise in its wake. 

Disasters can make apparent that old patterns of business are no longer tenable or communities may 

choose to alter their paths forward. Simply repairing the damage caused by the disaster creates 

opportunities for firms that did not previously exist. The communication challenges brought by these 

opportunities may range from making a customer base aware that there is a capability available to 

meet a new need, to making it clear that a firm is not opportunistically capitalizing on the pain and 

difficulty that follows disaster. Disaster-impacted markets tend to have more uncertainty and 

attraction issues—branding and regionalized business attraction can become an anchor recovery 

tactic. Also, open, frequent, and meaningful communications with business communities throughout 

response and recovery phases will improve business “up-time” and their likelihood to stay and hire 

locally. 

In addition to how the community or region is “branded” to prospective customers and investors, the 

mechanisms and manner in which the community communicates with the business community is 

critical. A two-way information flow is often pivotal in relaying unmet needs, recovery challenges, 

and resource opportunities “up” to the local, state, tribal, territorial, and regional government leading 

the recovery efforts and communicating resources, options, and restoration timelines “down.” Many 

states have taken this lesson to heart by establishing Business Emergency Operations Centers 

(BEOC) or other similar models that are dedicated efforts to enable communication across and with 

the business community pre- and post-incident. 

Resiliency 

A need exists to deepen the capacity of communities to become resilient and absorb the “shock” of 

acute disturbances. The enhancement of resilience becomes a multidimensional effort emphasizing 

the engagement and support of all aspects of the community. State governments are key partners in 

integrating resilience principles across regions and promoting capacity building for more 

economically resilient communities statewide. To promulgate resilience at the community level, 
Recovery Federal Interagency Operational Plan

D-6 

economic development practitioners are instrumental in building the capacity for economic 

resilience. The following are examples of how economic resilience can be realized: 

 Diversify the industrial base; 

 Enhance business retention and expansion programs; 

 Promote preparedness through business continuity planning and capacity-building; and 

 Foster comprehensive planning efforts that extensively engage the community to define and 

implement a collective vision for resilience. 

Integrating economic recovery considerations enhances Emergency Operations Plans and can build a 

strong baseline of data when disaster strikes. Also, local and regional planning initiatives (economic 

development plans, land use planning, etc.) benefit from integrating an understanding of the 

emergency management framework. Examples of the benefits from this “cross pollination” planning 

include avoiding locating debris removal corridors through a town’s central business district and the 

pre-prioritization of the resumption of major employers. 

Pre-disaster recovery planning is paramount when developing an active and sustainable mindset of 

resilience in communities. The private sector plays the primary role in most local economies; 

therefore, its incorporation of resilience strategies (such as business continuity planning) into daily 

operations is crucial. Communities that engage in highly inclusive, public-private partnerships to 

plan effectively for potential threats are generally able to function better, before, during, and after a 

disaster. In addition, businesses must be encouraged to view disaster preparedness and continuity 

planning as a fundamental part of their business model. The question should not be if a business 

disruption will occur, but instead how the business will mitigate, respond to, and recover from 

disruptions. Some examples of how businesses could make strategic investments in projects capable 

of making their organizations more resilient include insuring risk and diversifying 

telecommunications, power systems, physical space enhancements, and supply chains. 

Pre-disaster recovery preparedness efforts should be closely coordinated with the vulnerability 

reduction initiatives implemented under the National Mitigation Framework. Mitigation efforts help 

to minimize the consequences of disasters and put communities in position to recover quickly. To be 

most effective, resilience must be built into the day-to-day operations of local, state, tribal, territorial, 

insular area, Federal, and private development programs. This requires active efforts by local 

government, nonprofits, and businesses to consider ways of mitigating risk by becoming more 

resilient. 

When disaster strikes, the community reaps the benefits of pre-disaster planning and mitigation 

through reduced disaster impacts and, often equally important, by laying the groundwork for the 

“new normal.” Many communities, rather than repeatedly rebuilding a business district in harm’s 

way (e.g., in the flood plain) can use a disaster as impetus to relocate. If this move is preplanned, 

businesses and residents benefit from the lack of confusion moving forward and the reduced time to 

effect the plan. 

Recovery Targets 

Target statements are key outcomes expected from applying a core capability during recovery 

operations. The Economic Recovery core capability targets are as follows: 

1. Facilitate the sharing, aggregation, and integration of economic impact data and recovery 

information to support recovery decision making for economic recovery stakeholders. 
Recovery Federal Interagency Operational Plan 

D-7 

2. Provide technical assistance and program assistance to build local, regional, and state capacity to 

manage the short-, intermediate-, and long-term economic consequences of an incident. 

3. Facilitate, highlight, and provide resources to enhance capital access opportunities and cash flow 

for businesses and local governments. 

3.1.Integrate existing alternative financing informational resources about direct Federal 

assistance and that done through fiscal intermediaries. 

3.2.Expedite access to Federal post-disaster funding and reprogrammable steady-state funds. 

3.3.Facilitate local procurement opportunities. 

3.4.Provide technical assistance and highlight noteworthy practices for mitigating the 

consequences of disasters to a local government’s tax base.

4. Promote economic resilience principles to be integrated in locally-driven economic recovery 

efforts. 

5. Facilitate the integration and understanding of how Federal programs and resources support the 

community-level economy. Demonstrate and promote the post-disaster applicability for resources 

supporting economic development, workforce development, community development, small 

business assistance, and financial regulator programs. 

6. Provide access to and the needed availability of trained and knowledgeable agency staff to 

support recovery missions. 

These targets are implemented through the coordinated, and integrated efforts of all the agencies in 

the Economic RSF. Facilitated by the Coordinating Agency, these targets are set as expected 

needs/priorities for effectively every instance in which the complexity of the recovery consequences 

necessitates the activation of the RSF. Broadly, these targets are implemented through conducting 

three types of activities: information sharing, technical assistance, and leveraging existing resources. 

Federal Coordinating Structure 

This section outlines how Federal departments and agencies coordinate to deliver the Economic 

Recovery core capability through the Economic RSF. In support of the Economic Recovery core 

capability, the Economic RSF establishes a process for information sharing and coordination to better 

leverage the delivery of available resources. When Federal support is required to address economic 

recovery issues, the Economic RSF will seek to derive basic information and build capabilities 

related to the ten fundamental post-disaster economic recovery considerations. Ultimately, this RSF 

will seek to accomplish the following: 

1. Facilitate a long-term, sustainable economic recovery effort to effectively support communities 

challenged by the consequences of a disaster. 

2. Serve as a vehicle for enhancing Federal interagency coordination, information sharing, 

communication, and collaboration in both the pre- and post-disaster timeframes. 

3. Support the capacity of local, state, tribal, and territorial governments, nonprofits, and the private 

sector to produce a multi-dimensional strategy capable of supporting economic recovery and 

enhancing community resilience. 
Recovery Federal Interagency Operational Plan

D-8 

Overview of Economic RSF Partners 

Table D-1: Members of the Economic RSF 

ECONOMIC RECOVERY

The Economic Recovery RSF integrates the expertise of the Federal Government to 

help local, state, tribal, and territorial governments, and the private sector sustain and/or 

rebuild businesses and employment, and develop economic opportunities that result in 

sustainable and economically resilient communities after an incident.

Coordinating Agency: Department of Commerce (DOC)

Primary Agencies: DOC; Department of Agriculture (USDA); Department of Homeland 

Security (DHS); Department of Labor (DOL); Department of the Treasury (TREAS); 

Federal Emergency Management Agency (FEMA); Small Business Administration 

(SBA)

Supporting Organizations: Corporation for National and Community Service; Delta 

Regional Authority; Department of Health and Human Services (HHS); Department of 

Housing and Urban Development (HUD); Department of the Interior (DOI); 

Environmental Protection Agency (EPA); General Services Administration (GSA); 

Department of State (DOS)

Economic RSF Roles and Responsibilities

Table D-2: RSF Coordinating Agency Functions 

Coordinating Agency Functions

Department of Commerce

 Maintains communication within the Economic RSF and across other 

RSFs for economic recovery issues.

 Coordinates Economic RSF activities with other RSFs.

 Monitors RSF-initiated and -implemented recovery programs.

 Represents the Economic RSF at the national level and at the JFO.

 Coordinates and activates Economic Development Assessment Teams 

for the Economic RSF.

 Coordinates with the FDRC in post-disaster environments.

 Leads the conduct of RSF-based technical assistance initiatives.

 Appoints an Economic RSF National Coordinator to coordinate 

interagency activities at the HQ level.
Recovery Federal Interagency Operational Plan 

D-9 

Table D-3: RSF Primary Agency Functions 

Primary Agency Functions

Department of Agriculture

 Provides technical assistance and identifies current USDA programs that 

may be utilized for economic recovery, including determinations of 

eligibility, application processes, and project requirements.

 Provides financial programs to support essential public facilities and 

services.

 Promotes economic development by providing loans to businesses 

through banks and community managed lending pools.

 Assists communities to participate in empowerment programs.

 Supports RSF national and field level operations with subject matter 

expertise and staffing support, as appropriate.

 Provides economic damage assessment information on agriculture 

infrastructure and USDA-financed businesses, utilities, housing, 

community facilities, health and social service facilities, and NCR, as 

well as damage assessment information on USDA-regulated facilities.

 Executes agency mission during disaster recovery, supporting 

agriculture, farm assistance, and the economy and quality of life in all of 

rural America.

 Monitors, assesses, and provides technical support on the economic 

impacts on agricultural and the export activities and resumption of trade.

Department of Commerce

 Prepares demographic and economic baseline data (e.g., pre-disaster 

conditions) for regions impacted by disasters during Economic RSF 

activations, as needed.

 Provides technical assistance and subject matter expertise for 

manufacturing sector issues.

 Provides economic development technical assistance and subject matter 

expertise for regionalized economic recovery.

 Provides funding through competitive grants for economic recovery 

projects.

 Provides direct financial assistance, market access and technical 

assistance for minority business.

 Provides technical assistance to businesses for accessing foreign 

markets to encourage outside investment.

 Provides technical assistance and information regarding tourism 

consequences.

 Provides grants and technologies to spur the recovery of ecosystemdependent economies, to restore economically important habitats and to 

create mechanisms for the mitigation of damages.

 Administers the authority and priorities of the Defense Production Act 

through the Defense Priorities and Allocations System to implement 

priorities and allocations provisions for industrial resources.

Department of Homeland 

Security

 Coordinates with the private sector stakeholders across the 16 critical 

infrastructure sectors.

 Provides analytic capabilities to support the impact assessment process.
Recovery Federal Interagency Operational Plan

D-10

Primary Agency Functions 

Department of Labor

 Provides technical and financial assistance regarding program eligibility, 

application processes, and project requirements.

 Supports RSF national- and field-level operations with subject matter 

expertise and staffing support, as appropriate.

 Provides economic damage assessment information on the 

consequences to the local workforce, labor markets, and worker 

retraining needs.

 Executes agency mission during disaster recovery in support of 

workforce development, unemployment assistance, technical 

assistance, and labor market analysis.

Department of the 

Treasury

 Supports RSF national- and field-level operations with subject matter 

expertise and staffing support, as appropriate.

 Supports the RSF in the areas of financial literacy and tax-related 

assistance through education, outreach, and tax return preparation 

assistance.

 Provides program data for use in economic damage assessments, as 

appropriate.

 Facilitates the operation of the Financial and Banking Information 

Infrastructure Committee, including the identification of sector impacts 

and resource requirements.

Federal Emergency 

Management Agency

 Provides technical and financial assistance regarding program eligibility, 

application processes and project requirements.

 Supports RSF national- and field-level operations with subject matter 

expertise and staffing support, as appropriate.

 Provides economic damage assessment information regarding the 

insured and uninsured losses, economic recovery issues and other data 

sources gathered during Federal response and recovery efforts.

 Executes the agency mission during disaster recovery through its PA, 

IA, and mitigation programs.

 Supports the collection of impact assessment information and the 

outreach to strategic private sector partners through the EA Private 

Sector staff.

 Provides post-incident GIS impact data to inform economic impact 

assessments.
Recovery Federal Interagency Operational Plan 

D-11

Primary Agency Functions 

Small Business 

Administration

 Provides loans for property damages to non-farm businesses of all sizes 

and private nonprofit organizations; provides Economic Injury Disaster 

Loans (EIDLs) to eligible small businesses and private nonprofits.

 Provides technical assistance regarding program eligibility, application 

processes, and project requirements.

 Provides counseling and other free technical assistance to small 

businesses and entrepreneurs.

 Promotes small business access to capital through loans and 

investments aimed at sustaining businesses and encouraging 

entrepreneurial applications.

 Supports RSF national- and field-level operations with small business 

expertise and staffing support, as appropriate.

 Executes agency mission during disaster recovery in support of 

business loans, technical assistance and other forms of direct and 

indirect small business assistance.

 Provides program data for use in development of economic damage 

assessments, as appropriate.
Recovery Federal Interagency Operational Plan

D-12

Table D-4: RSF Supporting Organization Functions 

Supporting 

Organization Functions

Corporation for National 

and Community Service

 Assists communities across the Nation in preparing for, responding to, 

and recovering from disasters through two primary national service 

programs: AmeriCorps and Senior Corps.

 Provides trained members to support communities most pressing needs, 

particularly long-term recovery issues.

 Facilitates and leverages volunteer engagement for disaster recovery by

working closely with State Service Commissions, National Voluntary 

Organizations Active in Disaster (NVOAD), other local, state, tribal, 

territorial, insular area, and Federal partners to provide national service 

members and resources in a variety of recovery functions.

 Engages in recovery functions, such as case management intake, direct 

physical labor, volunteer management, and capacity building for local, 

state, and Federal government and nonprofit and faith-based 

organizations.

 Provides technical assistance to build upon and share best practices 

among State Service Commissions, nonprofits, communities, etc., to 

address specific regional and local needs throughout the long-term 

recovery process.

 Supports RSF national- and field-level operations with subject matter 

expertise and staffing support, as appropriate.

Delta Regional Authority

 Leverages investments made by other Federal departments, local, state, 

tribal, and territorial partners, and private entities.

 Provides technical assistance regarding program eligibility, application 

processes, and project requirements.

 Supports the growth and sustainment of small businesses.

 Supports the growth and development of broadband data 

communications technology.

Department of Health 

and Human Services

 Provides technical assistance to support recovery planning and postdisaster activities for public health, health care, behavioral health, and 

social services infrastructure.

 Provides technical assistance regarding program eligibility, application 

processes, and project requirements for HHS programs as applicable 

under existing authorities.

 Provides assessment information regarding the consequences on the 

health and human services sectors in an affected community.

 Provides technical assistance on the economic consequences to low- or 

moderate-income disaster survivors, including access to child care 

services.

 Supports RSF national- and field-level operations with subject matter 

expertise and staffing support, as appropriate.
Recovery Federal Interagency Operational Plan 

D-13

Supporting 

Organization Functions

Department of Housing 

and Urban Development

 Provides flexible grants to help cities, counties, and states recover from 

Presidentially declared disasters, especially in low-income areas.

 Provides technical and financial assistance regarding program eligibility, 

application processes and project requirements.

 Supports RSF national- and field-level operations with subject matter 

expertise and staffing support, as appropriate.

 Provides economic damage assessment information regarding the 

economic consequences of the loss of housing stock, the housing market 

and community development issues, from its network of regional and field 

resources.

 Executes the agency mission during disaster recovery in supporting home 

rebuilding, post-disaster housing, community recovery, and revitalization.

Department of the 

Interior

 Provides technical and financial assistance regarding program eligibility, 

application processes, and project requirements.

 Provides economic damage assessment information on the natural and 

cultural assets throughout the country, through its networks and available 

stakeholders.

 Supports RSF national- and field-level operations with subject matter 

expertise and staffing support, as appropriate.

Environmental Protection 

Agency

 Supports RSF national- and field-level operations with subject matter 

expertise and staffing support, as appropriate. 

General Services 

Administration

 Provides businesses the opportunity to sell products and services to 

Federal Government agencies.

 Provides small businesses with training, counseling, set-aside 

opportunities and sub-contracting opportunities among other activities 

through the Office of Small Business Utilization.

 Provides direct access to commodities, telecommunications and data 

systems, training, office furniture, transportation services and other 

commercial products and services under the Federal Supply Schedules.

Convening the Economic RSF 

Engaging the mechanism of the RSF at the field or HQ level is the first step in activating the RSF for 

supporting economic recovery. This engagement is facilitated (virtually or on-site) with the 

assistance of personnel from RSF Primary Agencies and Supporting Organizations, as well as other 

RSFs. The Economic RSF Field Coordinator is the primary point of contact for the FDRC and other 

RSF representatives engaged in each RSF activation, regarding economic recovery issues. Depending 

on the size and scope of the disaster and resulting Economic RSF activation, the Field Coordinator 

may operate out of the JFO or virtually from their existing duty station. Depending on the nature of 

the incident, community recovery requirements and the staffing capabilities of the RSF Coordinating 

Agency, the Economic RSF Field Coordinator can be assigned from any one of the Economic RSF 

Primary Agencies, with the approval of that agency. 

All activations of the Economic RSF will involve the execution of the Economic RSF Coordination 

Process Model, included as Figure D-1. 
Recovery Federal Interagency Operational Plan

D-14

Figure D-1: Economic RSF Coordination Process Model 

Starting at the top of the figure, the efforts of the Economic RSF are coordinated under the oversight 

of the FDRC. Each of the Economic RSF member agencies serves as a partner that is included and 

engaged to the extent required based on the size, complexity, and issues observed in the recovery. 

Minimally, all agencies are engaged to share available recovery and impact information. 

Economic RSF efforts are constantly informed by state and community input, efforts, and priorities. 

In support of these needs and goals to support of community-driven economic recovery, the RSF: 

 Shares information (impact, capability, and problem-solving); 

 Coordinates activities (leveraging available resources and multi-agency technical assistance); 

 Executes disaster and steady state programs (the focused and deliberative effort to utilize existing 

and applicable agency programs for supporting recovery efforts); and 

 Shares strategy (a common understanding of the recovery issues, challenges, and opportunities). 

These efforts are ultimately targeted to facilitate the support of community-driven economic 

recovery. 

The operating framework for the Economic RSF utilizes a partner-driven approach focused on 

enabling and coordinating collaborative opportunities to facilitate private sector economic recovery 

efforts. Each RSF partner agency will continue in their statutory missions to assist post-disaster 

communities. A principal role of the Coordinating Agency is to identify opportunities (informed by 
Recovery Federal Interagency Operational Plan 

D-15

the impacted state and communities) for interagency collaboration to execute a more effective 

recovery effort in conjunction and in support of the impacted jurisdiction. 

Engaging the Whole Community 

When activated, RSF partner agencies work with state and community partners through coordination 

with the FDRC. Recovery activities will likely require direct relationships with non-Federal, private, 

and nonprofit sector partners. 

The Economic RSF Coordinating Agency and its partner agencies will work closely to support their 

local, state, tribal, territorial, insular area, private, and nonprofit partners in the recovery effort. 

Community-based economic recovery strategies will be integrated into the RSS. These economic 

recovery strategies identify the economic recovery issues, challenges, and types and levels of 

recovery assistance that the specific local communities and state will need. 

It is important that the Economic RSF and the FDRC work with the local, state, tribal, territorial, 

insular area, private, and nonprofit partners to: 

 Develop a coordinated recovery strategy that addresses specific economic recovery needs for the 

local, state, tribal, territorial, and insular area communities; 

 Establish a process for obtaining baseline data/information; 

 Identify metrics to measure progress; 

 Designate local, state, tribal, and territorial organizations that will coordinate the economic 

recovery efforts; 

 Identify sources of funding, including private sector and philanthropic organizations, to meet 

specific objectives; 

 Put in place mechanisms to reduce fraud, duplication, and waste; and 

 Determine local, state, tribal, territorial, and insular area capacity and training needs for Federal 

assistance applications. 
Recovery Federal Interagency Operational Plan

D-16

Table D-5: Partner Relationships 

External 

Stakeholder

Potential Economic RSF 

Output Potential Economic RSF Input

State/Territory

 Grants and loans for 

statewide economic 

priorities

 Economic damage 

assessment information 

 Encouragement of economic recovery initiatives 

within the state; implementation of cooperative 

agreements with other states for economic 

recovery

 Collection of economic impact assessment 

information

Local/Tribal

 Economic development 

support that helps

residents and 

businesses stay in the 

area by creating and 

restoring jobs; economic 

damage assessment 

information

 Strategic planning/direction on the community’s 

economic recovery priorities

 Collection of economic impact assessment 

information

 Implementation of programs to improve long-term 

economic resilience and sustainability; 

collaboration with adjoining communities for 

multi-local and regional recovery

Private Sector

 Loans, tax, and potential 

targeted regulatory relief 

to specific businesses

 Provision of jobs and services/goods to the local 

community; investment in business 

improvements and expansion; coordination to 

provide technical assistance and investment in 

post-disaster communities; collection of 

economic impact assessment information

Nonprofit

 Grants and loans to run 

programs to assist their 

communities

 Help for residents, businesses, and their 

employees to recover quickly after an incident 

and improve disaster resilience; collection of 

economic impact assessment information

RSF Operational Activities 

The Economic RSF Field Coordinator must be proactive and strategic in reaching out to Economic 

RSF field/regional representatives to identify economic recovery issues and organize a practical and 

measured response. At a minimum, the Economic RSF Field Coordinator should be engaged in the 

following activities: 

 Holding regular conferences calls to share recovery information, issues and strategize with field 

RSF agencies; 

 Developing field-level Economic RSF strategic objectives and support actions for submission to 

the National Economic RSF Coordinator and eventual inclusion in the RSS; 

 Meeting with local, state, tribal, territorial, and insular area government representatives, as well 

as business, nonprofit, and private sector stakeholders; 

 Serving as a primary Federal point of contact in the field for all economic recovery coordination 

issues; 

 Coordinating support for and informing other RSF representatives of any community-driven 

economic recovery initiatives; and 
Recovery Federal Interagency Operational Plan 

D-17

 Coordinating with field RSF representatives on their respective agencies’ recovery activities 

(e.g., DOL workforce development initiatives/grants, SBA counseling and capital access 

activities, USDA grant, loan-making and farm assistance activities, HUD CDBG). 

RSF Operations Sequence of Events 

The activation and engagement of the RSF will generally follow the sequence of events captured in 

Figure D-2. 

Figure D-2: RSF Operations Sequence of Events Model 

Economic RSF Activation Options 

The engagement and activation of the Economic RSF is a progressive approach where the level of 

activity is contingent on the extent of coordination needs in the disaster area. To support the on-site 

and off-site coordination needs, the Economic RSF has adopted four options for activation to 

describe the scale of its on-site and off-site engagement. Generally, the on-site location is considered 

“on-site” is considered the JFO, recovery office, or other unified command center. The RSF may step 

progressively from one option to the next or rapidly achieve an advanced option. The maximum 

option to be achieved will depend on the scope of the disaster and the need of impacted communities. 

Activation—Option 1: Virtual 

 No on-site activities required (virtual only), episodic site visits 

 Will convene RSF field assets virtually by conference call and email 

 No specific technical assistance deliverables 
Recovery Federal Interagency Operational Plan

D-18

 Generally no MA required, unless site visits required

 Major activity—coordinate information sharing and connecting available resources with 

expressed need

Activation—Option 2: Heightened Virtual

 Episodic site visits coupled with virtual RSF engagement

 Will convene RSF field assets primarily by conference call and email

 Deliverables may include economic impact assessment and Economic Development Assessment 

Team report(s) (see Follow-On Impact Assessment and Technical Assistance Options section)

 MA required for travel, per diem, and overtime to meet deliverable development

 Major activity—coordinate information sharing and RSF agency contribution to deliverable

Activation—Option 3: Coordinator On-Site

 Full time on-site presence of Field Coordinator, episodic presence of RSF field agency staff

 Will convene RSF on-site and by conference call

 Deliverables may include economic impact assessment, Economic Development Assessment 

Team report(s), support of state taskforce activities, RSF issue tracking, and project 

coordination/tracking

 MA required for travel, per diem, and overtime to meet deliverable development

 Major activity—coordinate information sharing, RSF engagement of targeted issues, impact 

assessments, extensive coordination of direct Federal recovery support (SBA counseling, HUD 

CDBG, etc.) and indirect support (technical assistance)

Activation—Option 4: RSF On-Site

 Full-time on-site presence of Field Coordinator and of at least one other (non-FEMA) RSF 

Primary Agency

 Will convene RSF on-site and by conference call

 Deliverables may include economic impact assessment, Economic Development Assessment 

Team report, and support of state taskforce activities, RSF issue tracking, and project 

coordination/tracking

 MA required for travel, per diem, and overtime to meet deliverable development

 Major activity—coordinate information sharing, RSF engagement of targeted issues, impact 

assessments, extensive coordination of direct federal recovery support (e.g., SBA counseling, 

HUD CDBG) and indirect support (technical assistance)

Initial Impact Assessment

Once the Economic RSF is activated, one of the first activities likely to be necessary is the 

completion of an initial impact assessment to understand the severity of the economic issues 

associated with the disaster. This assessment is intended to be a very high-level synopsis of known 

economic recovery issues in the communities affected by the disaster. The assessment is not intended 

to capture a definitive dollar value of the economic impact or to derive the full scope of the economic 

recovery challenges; instead, it is a snapshot of the economic issues and damages resulting from the 
Recovery Federal Interagency Operational Plan 

D-19

disaster, and it is intended to guide short-term actions. In order to start the process, the Economic 

RSF Coordinating Agency convenes an interagency meeting of the Economic RSF members. 

Economic RSF partner agencies will be expected to provide a summary of impact-related 

information to describe the known issues, concerns, and program activities, as they relate to their 

respective agency’s networks and capabilities. This should include information that is readily 

retrievable from field and regional staff that may have already “checked in” with their local 

stakeholders. Some examples of the information that should be gathered include, but are not limited 

to, concentrations of business outages/disruption, known capital access issues, workforce 

supply/demand issues, infrastructure issues, technical assistance needs, financial literacy issues, 

impacts on critical supply chains, and local industries. 

To be actionable, the initial impact assessment contains three basic sections of information: 

 Economic baseline of the affected geography (e.g., demographics, economic activity, 

employment); 

 Actual and projected economic issues/damage and uncertainties of the disaster aligned to the ten 

economic recovery considerations; and 

 Existing or forecasted agency recovery activities. 

The Economic RSF Coordinating Agency will review all the information contained in the initial 

impact assessment and provide that information to the FDRC with a recommendation for next steps, 

based on RSF partner agency input. Depending on the incident and the geography affected, existing 

information resources may be used to project the anticipated impact through FEMA’s HazardsUnited States tool (for flood, earthquake, and hurricane incidents) and other damage estimating 

resources, to target inquiries in identifying economic damage and recovery issues. 

Ultimately, one of the goals of the initial impact assessment will be to triage exceptional recovery 

issues in specific communities, or issues trending across multiple communities. This way the 

Economic RSF will be able to apply a “right-sized” approach to supporting the community’s 

economic recovery effort. A graphical depiction of this process is captured in the following figure. 
Recovery Federal Interagency Operational Plan

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Figure D-3: Initial Assessment Process Overview 

Follow-On Impact Assessment and Technical Assistance Options 

Depending on the outcome of the initial impact assessment, the issues and milestones in the RSS, and 

the needs of the community, additional impact assessment and technical assistance options are 

executable by the Economic RSF. Some of the technical assistance options available to the RSF for 

communities include the Economic Impact Assessment and deployment of the Economic 

Development Assessment Team. 

Economic Impact Assessments will generally seek to achieve the following objectives: 

 Capture the pre-disaster economic environment; 

 Identify indicators of economic consequence; 

 Aggregate available economic recovery information; and 

 Highlight economic recovery best practices for consideration in the on-going recovery process. 

The intent of the final Economic Impact Assessment report is to provide a value-added resource for 

state and community disaster recovery professionals as well as the region as a whole to target areas 

of economic recovery need and identify economic impact trends to help inform the whole 

community’s long-term disaster recovery and new resilience efforts. 

Economic Development Assessment Teams leverage the subject matter expertise of RSF partner 

agencies and invited economic recovery experts to provide customized technical assistance for 

impacted communities. Whenever possible, they build on the local, regional, and state economic and 
Recovery Federal Interagency Operational Plan 

D-21

community development planning already in place. Teams work closely with local government, 

community, and business leaders, regional planning organizations, and economic development 

organizations to explore issues ranging from infrastructure challenges to development and financing 

needs, attempting to look at the total economic picture for each community. 

Scalability of Coordination Activities 

Depending on the outcome of the initial impact assessment and the resulting RSS, the field-level and 

HQ-level RSF agencies should scale the needs of the community with the operational tempo of the 

RSF activities, to avoid overwhelming local capacity and to ensure the interagency coordination 

efforts can be sustained. In conjunction with the activation steps described above, the scalability of 

coordination activities describes the intensity of RSF coordination. The table below captures a few 

broad options for how the coordination of activities can be scaled to meet levels of recovery 

coordination needs (severe, strong, moderate, and low). 

Table D-6: Scalability of Coordination Activities 

Coordination 

Need Unit Operational Tempo Coordination Options

Presence at JFO 

Options

Operational Model 

Options

Severe

HQ Weekly conference 

calls As appropriate

Active effort to coordinate 

programs, senior officials, 

share information, and 

mitigate new/unique 

issues

Field Daily face-to-face and 

call interaction

Likely, for RSF 

Coordinating 

Agency; as needed, 

for Primary and 

Supporting Agencies

Intensive 2105/ 

regional/local/private 

sector stakeholders

Strong

HQ Bi-weekly conference 

calls As appropriate

Active effort to coordinate 

programs, senior officials, 

and mitigate issues raised 

by field staff

Field Weekly scheduled 

coordination meetings

Episodic to full-time 

for RSF 

Coordinating 

Agency

Active effort to support 

recovery efforts, align 

programmatic capabilities, 

and share information

Moderate

HQ Monthly conference 

calls Not likely

Ongoing coordination of 

programmatic execution, 

information sharing and 

mitigation of policy-level 

issues, as appropriate

Field Bi-weekly scheduled 

coordination meetings

Episodic; virtual 

support of JFO likely

Ongoing effort to 

coordinate recovery 

project development, 

needs identification, 

information sharing and 

coordination/collaboration 

with local, state, territorial, 

tribal, and private sector 

stakeholders
Recovery Federal Interagency Operational Plan

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Coordination 

Need Unit Operational Tempo Coordination Options 

Presence at JFO 

Options 

Operational Model 

Options 

Low

HQ

Integrated in regular 

RSF meetings, as 

appropriate

Not likely

Mitigation of policy-level 

issues and information 

sharing

Field Monthly or ad hoc 

coordination Not likely

Recovery needs fully 

executed from agency 

program office, ongoing 

outreach to partner 

agencies, information 

sharing

RSF Coordination 

Following the completion of the initial impact assessment or the Advance Evaluation Report, the 

Economic RSF Coordinating Agency will continue to engage with field-level, and potentially 

national-level, RSF agencies and applicable state agencies to coordinate the immediate actions 

requiring RSF engagement. The RSF Field Coordinator remains in consultation with the FDRC 

throughout the process. The RSF Field Coordinator, in coordination with partner agencies, will 

provide analysis supporting the mission scoping assessment. The RSF will then define clear 

objectives, actions, or deliverables to mitigate issues identified in the mission-scoping assessment to 

inform the development of the RSS. Some examples of elements often included in the RSF planning 

are specific milestones to ensure information sharing, actions to deliver technical assistance to 

support state-driven recovery committees, efforts to conduct more in-depth economic impact 

assessments, and interagency efforts to support the establishment of business one-stop resources. 

Implementation and Monitoring 

The implementation of the recovery effort under the Economic RSF is intended to be a flexible, 

adaptive, coordinated effort on the part of the Federal Government, in partnership with local, state, 

tribal, territorial, insular area, and private sector partners. The implementation of these activities will 

be delegated to the agency originating the program activity. For example, SBA’s disaster loan 

program is implemented and monitored by the SBA. However, agencies must share the outcomes, 

issues and progress among their partners in the Economic RSF. This way, the Economic RSF 

Coordinating Agency can track the progress of the recovery effort and continually evaluate when 

opportunities exist for creating leverage through interagency collaboration. This will be part of a 

continual reassessment process to track RSF progress and its effort to meeting the milestones 

established by the FDRC. 

Over time, recovery efforts progressively transition into the steady state efforts of the agencies in the 

RSF. While recovery issues will likely persist, the scope and applicability of the issues will 

eventually be addressable by steady state programs. For example, workforce development issues 

such as retraining and job placement likely existed pre-disaster. While the impact may have become 

more acute post-disaster, the need persists and the steady state effort to mitigate those issues must be 

integrated into the day-to-day operations of the local, state, tribal, territorial, insular area, Federal, 

private, and nonprofit stakeholders. 

Transition to Steady State 

There is no standard or predetermined pathway for a community’s or a region’s economic recovery. 

The particular path a community takes when recovering from a major disaster will differ from other 
Recovery Federal Interagency Operational Plan 

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localities as a result of multiple factors, including the scale of the disaster's impact, specific 

community needs and conditions, and the resources available. While such circumstances prevent the 

development of a “canned” approach for effective economic recovery, potentially valuable insights 

can be learned from the experiences of communities that have already grappled with the disasterrecovery process. 

The active engagement and coordination of Economic RSF agencies must be responsive and flexible 

to the demands and ongoing recovery needs experienced by communities. The engagement of the 

RSF at the field and national levels will vary in intensity and modality depending on a regular 

evaluation of these needs. The level of engagement must always be proportional to the needs of the 

community. Based on the recovery continuum in the NDRF, coordination needs during the 

intermediate- and long-term stages will almost invariably be considered “steady state,” as enough 

time will have passed that most persistent coordination needs can be addressed through existing 

agency efforts to conduct business. As the need for active coordination diminishes, the Economic 

RSF Field Coordinator will work with the FDRC to establish a scaled-back approach that can ensure 

ongoing coordination and communication needs can be satisfied. 

Following the transition to a steady state of Economic RSF engagement, the Economic RSF 

Coordinating Agency will convene an after-action review process to capture lessons learned. These 

lessons will be identified in a Corrective Action Plan. Some items will be integrated in future 

iterations of the Economic RSF Annex and appropriate Economic RSF Standard Operating 

Procedures. Others may enhance steady state programs and their ability to mitigate the impacts of 

future disasters. 

Economic RSF Critical Tasks/Activities 

Post-Disaster Recovery 

An economic recovery effort in a post-disaster environment is often framed by the iteration of issues 

through immediate/short- (days–weeks), intermediate (weeks–months), and long-term (months–

years) timeframes. The manner in which the Economic RSF supports post-disaster recovery efforts 

must, at its core, focus on improving information sharing, leveraging existing resources for recovery, 

and supporting the efforts of the state and community in building common objectives for recovery. 

Acknowledging that the disaster may have irreparably altered the local economy, the Economic RSF 

can provide technical assistance by supporting the community's efforts to build local market 

confidence and define the “new normal” for the local economy. The list of elements below is not 

exhaustive, but it includes common needs in post-disaster environments. 

Immediate/Short Term 

 Conducting assessments of economic recovery issues and preparing demographic and economic 

baseline data. 

 Considering the impacts on critical supply chains and local industries. 

 Identifying and, where possible, troubleshooting cash flow issues for businesses and individuals. 

 Facilitating and supporting insurance claim processing through information sharing and technical 

assistance. 

 Facilitating and supporting businesses reopening. 

 Providing technical assistance to promote economic recovery, financial literacy, and strategic 

planning. 
Recovery Federal Interagency Operational Plan

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 Encouraging local procurement.

 Promoting information sharing with the economic development, workforce development, and 

business communities.

 Facilitating and supporting local decision making.

 Addressing local employment issues (e.g., workers available to work).

 Mitigating “false economies” resulting from post-disaster construction and response.

 Addressing supply chain and physical infrastructure interdependency issues (e.g., producer, 

supplier, distributor, and vendor are impacted by physical damage).

 Supporting community efforts to identify short-term, intermediate, and long-term strategies for 

maintaining and restoring the tax base.

 Promoting information sharing to highlight existing sources of financial assistance.

 Providing regulatory relief, if applicable and available.

 Addressing local market issues (e.g., facilitating customers, suppliers, and retailers engaging in 

commerce).

 Restoring community infrastructure and support services for individuals with access and 

functional needs such as those with disabilities (e.g., accessible paratransit and other public 

transportation, neighborhood pharmacies) so that those individuals can transition back to their 

communities along with the rest of the community.

Intermediate

 Reviewing and monitoring economic impact assessments.

 Reviewing tax and regulatory relief opportunities.

 Implementing recovery initiatives identified in the short term, including initiatives to restore 

critical supply chains and local industries.

 Continuing recovery investments initiated in the short term.

 Restoring private sector capacity (e.g., supporting investment in restoring infrastructure 

development and redevelopment, encouraging business retention and expansion).

 Furthering economic diversification initiatives.

 Facilitating, promoting, and encouraging outside investment.

 Facilitating the leveraging of public and private sector resources to further catalytic projects that 

encourage job replacement and job growth in the community.

 Facilitating the timely disbursement of direct financial assistance (e.g., claims, loans, and grants).

Long Term

 Providing economic impact assessments once damage assessments are completed, as appropriate.

 Continuing recovery investments initiated in the short-term and intermediate phases.

 Supporting community efforts to define and pursue the establishment of a “new normal” in the 

local economy.

 Continued facilitation and investment in economic diversification initiatives.
Recovery Federal Interagency Operational Plan 

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 Phasing in tax and regulatory relief requirements. 

 Providing support to local, state, tribal, territorial, and insular area governments in the 

incorporation of after-action recommendations and lessons learned into their community 

planning efforts. 

 Capturing disaster-related opportunities (e.g., chance to innovate, bring in new industries, create 

green spaces, and revise economic development strategy based upon lessons learned). 

 Transitioning from post-disaster to disaster readiness. 

How the Economic RSF addresses the critical considerations for Economic Recovery: 

1. Assessment and Evaluation

2. Community Planning

3. Cash Flow

4. Business Resumption

5. Capital Access and Insurance

6. Workforce Development

7. Economic Development

8. Small Business

9. Marketing and Communications

10. Resiliency

Assessment and Evaluation 

Generally, in order to regain its economic footing, a community impacted by disaster must 

understand three parameters. First, it must know what existed before the disaster. The community 

must honestly appraise the basis and trends of its pre-disaster economy. Second, the community must 

measure lost economic capabilities and assess opportunities created by the disaster. Finally, it must 

understand its achievable economic recovery options. 

As emergency responders stabilize the disaster’s consequences, data collection will shift to on-scene 

assessment by multidisciplinary teams working with local economic planners, private sector 

leadership, and elected officials. The Economic RSF will deploy these teams as it becomes practical 

for local leaders to engage in the economic planning for the path forward. The output of these teams 

will be shared with communities quickly, for local use, and will inform the ongoing efforts to 

develop intermediate and long-term plans to support economic recovery. 

The Economic RSF mines data repositories (governmental and academic) and combines the results 

with data gathered on scene. Initial assessments, used to scope the effort, are based on such inputs as 

pre-disaster data, disaster modeling outputs, and initial on-scene reports. The RSF works with the 

FDRC; local, state, tribal, and territorial coordinators; and the private and nonprofit sectors to 

continually expand its understanding of the local and regional economy. The efforts of the RSF assist 

the community in developing economic goals and defining the means of achieving them in their 

recovery plan. The Coordinating Agency will coordinate with the RSF Primary and Supporting 

Organizations to identify the application of the steady state Federal programs supporting community 

plans. It will, where appropriate, coordinate the development and application of disaster-specific 

recovery programs for the economy and the innovative use of existing programs individually or 

collectively. 

RSF agencies can facilitate the ongoing evaluation and assessment that communities will require to 

implement/adapt economic plans, through technical assistance provisions of programs such as 

FEMA’s PA, HUD’s CDBG, and USDA’s rural assistance. In general, the assessment and evaluation 

function will inform the plans to apply disaster assistance programs and steady state programs 

adapted to disaster purposes. Strategies emerging from assessment and evaluation facilitate and 
Recovery Federal Interagency Operational Plan

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expedite the transition from disaster-specific efforts to steady state programs aimed at economic 

development. Early assessment will be needed to provide the Infrastructure Systems RSF information 

necessary in prioritizing short-term and intermediate infrastructure restoration needs and to provide 

the power and telecommunications needed for business resumption, as well as support the 

transportation system needs to reestablish supply chains. Similarly, more robust assessments will 

frame support to rebuild business capacity and encourage the private sector to begin opening access 

to capital. The transition to steady state programs—a goal of long-term recovery—will depend on 

assessments of the “realm of the possible” for developing the new normal for the post-disaster 

economy. Capabilities include the following: 

 DOC: EDA Economic Adjustment Assistance, International Trade Administration—Travel and 

Tourism TA; 

 HUD: CDBG; 

 USDA: Technical assistance grants, post-disaster crop assessment services, and loan programs; 

and 

 All: Economic Development Assessment Teams, economic impact assessments. 

Table D-7: Assessment and Evaluation—Examples of Federal Support and Whole Community 

Economic RSF 

Consideration

Common 

Elements

Federal Support

(Examples)

Opportunities For Private And 

Nonprofit Sectors

Assessment and 

Evaluation

Establishing an 

accurate baseline

Technical 

assistance and 

data provision

Cooperation of local businesses and 

related supply chains to provide 

accurate and timely data and 

participation of universities and 

nonprofit economic think tanks

Post-disaster data 

gathering and 

analysis

Technical 

assistance and 

program support

Involvement in consortiums to monitor 

data and participation of university 

researchers

Setting priorities Community 

planning 

assistance and 

technical 

assistance

Setting and sharing long-term-oriented 

business plans and needs

Establishing 

metrics

Technical 

assistance

Sharing of best practices, involvement 

in shared vision, and provision of 

industry advisors to help with the 

process/analysis 

Program evaluation 

and transition to 

steady state 

programs

Technical 

assistance and 

program 

monitoring

Public-private partnerships for long-term 

recovery and formation of public-private 

organizations to govern special districts 

or funds allocated

Community Planning 

After a disaster, communities have the opportunity to review their pre-disaster state, to create a vision 

for the future that may include rebuilding or “building back better.” Thus, the consideration of the 

community’s plans for economic recovery is at the forefront of any Economic RSF initiative. The 

role of the Economic RSF facilitates and enables the recovery capabilities of the community; it is not 
Recovery Federal Interagency Operational Plan 

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the sole driver of the recovery. Naturally, these efforts are heavily informed and coordinated with the 

CPCB RSF. 

Technical assistance grants to provide expert support and additional capacity: 

 DOC EDA: Technical Assistance Grants, Economic Adjustment Grants; 

 FEMA: Community Recovery Planning Assistance; 

 USDA Rural Development: Grants; and 

 HUD: CDBG. 
Recovery Federal Interagency Operational Plan

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Table D-8: Community Planning—Examples of Federal Support 

Economic RSF 

Consideration Common Elements Federal Support

(Examples)

Opportunities For Private 

And Nonprofit Sectors

Community 

Planning

Planning and capacitybuilding supportTechnical support Foundation grants, technical 

expertise on private assets, 

volunteers, private capacity 

(e.g., electricity, 

telecommunications)

Mitigating losses from 

future hazards

Technical and financial 

assistance (e.g., to buy 

flood-prone property)

Foundation grants, technical 

assistance, nonprofit role in 

educating businesses on best 

practices

Creating mixed-use 

and urban-rural 

interfaces

Rural development 

programs, funds for 

parks and recreation, 

farm assistance, 

infrastructure assistance

Nonprofit recreation and 

centers, creation of public 

spaces in private buildings

Addressing social 

issues indirectly tied to 

economic 

development

Disaster assistance 

programs

Nonprofit assistance for needs 

such as food, housing, and 

care for the elderly

Rehabilitation or 

creation of new 

housing stock

Technical support and 

funds for acquisition, 

construction, repair, and 

tenant rental assistance

Nonprofit home ownership 

programs, real estate 

development

Cash Flow 

Agencies at all levels of government can contribute to reestablishing cash flow, especially by 

rebuilding of customer bases. Within the Economic RSF, some key programs rapidly inject cash into 

impacted communities. These include the FEMA IA, DOL Disaster Unemployment Assistance, and 

SBA disaster loans. Longer term support of cash flows within the community include FEMA PA

spending, HUD CDBGs (both Disaster Recovery and annual), and SBA’s Traditional Loan 

Programs. Economic RSF engagement with the private sector can encourage similar actions by 

nongovernmental entities. 

 DOL: Disaster Unemployment Assistance, National Emergency Grants; 

 HUD: CDBG effected through variety of local, state, tribal, territorial, and insular area programs; 

 SBA: Disaster Loan Programs, government contracting and business development, and 

traditional loan programs; 

 TREAS: Grant funding to Community Development Financial Institutions (CDFIs), New Market 

Tax Credit authority to Community Development Entities (CDEs); and 

 USDA: Loan, grant and subsidy programs. 
Recovery Federal Interagency Operational Plan 

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Table D-9: Cash Flow—Examples of Federal Support 

Economic RSF 

Consideration

Common 

Elements

Federal Support

(Examples)

Opportunities For Private 

And Nonprofit Sectors

Cash Flow Availability of 

working capital and 

bridge loans

Working capital loans for small 

businesses, small agriculture 

co-ops, farms, and most 

private and nonprofit 

organizations to meet ordinary 

and necessary financial 

obligations that cannot be met 

due to the disaster

Micro lending, publicprivate partnerships, 

special business 

improvement districts, and 

financing

Direct ways to 

maintain customer 

base

Direct/targeted contracting, 

special business districts

Targeted contracting or 

support of local businesses, 

resumption of normal 

operations themselves, 

creation of special business 

districts 

Indirect ways to 

maintain customer 

base

Assistance to individuals via 

IA, disaster assistance, 

traditional and disaster 

unemployment insurance to 

maintain individual income for 

purchase of goods and 

services

Involvement of community 

organizations that can help 

provide essentials to 

residents so residents do 

not relocate, resumption of 

normal business (especially 

of anchor tenants) 

Maintaining/ 

repairing brand 

damaged by the 

disaster

Assertions of public safety via 

reports/statements, very 

important person (VIP) visits, 

marketing assistance

Positive media attention on 

the area, VIP visits, 

marketing campaigns

Availability of cash 

through financial 

institutions

Coordination with Critical 

Infrastructure Protection, 

coordination of infrastructure 

service restoration

Deployment of mobile 

banking facilities with 

independent 

communications, low-value 

short-term loans

Business Resumption 

The role of the Economic RSF in the individual business’ decision to reopen can be a delicate one. 

Generally, if there are anchor employers that have been affected by a disaster, it should be the role of 

the Economic RSF to engage with the local, state, tribal, territorial, and insular area governments to 

work with the business to demonstrate support for staying in a community, identify financial 

incentives the local or state governments and private sector can offer, or find alternative roles for 

facilities and the labor force. 

 FEMA: PA and IA Programs; 

 DOC: EDA: Economic Adjustment Assistance; National Institute of Standards and Technology 

Manufacturing Extension Partnership; 

 HUD: CDBG; 

 USDA: Grant, subsidy, and loan programs; 
Recovery Federal Interagency Operational Plan

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 SBA: Disaster Loan Programs, counseling servicing; and 

 TREAS: CDFI Fund. 

Table D-10: Business Resumption—Examples of Federal Support 

Economic RSF 

Consideration

Common 

Elements

Federal Support

(Examples)

Opportunities For Private 

And Nonprofit Sectors

Business 

Resumption

Continuing 

operations

Loans to businesses, 

farms, and government 

(for operations); 

continuity of operations 

planning assistance

Sharing/donating resources like 

office space, telecom services, 

equipment; formation of co-op 

agreements

Rehabilitation of 

commercial 

buildings

Loans to rehabilitate 

commercial buildings

Private investment and 

partnership, coordinated 

renovations; use of joint 

contracting

Replacement of 

real estate, 

inventory, supplies, 

and equipment

Loans to repair or replace 

damaged property 

including equipment and 

inventory

Asset management and 

tracking services, supply chain 

and sourcing services, and 

expertise

Mitigating 

displacement

Relocation assistance for 

displaced businesses and 

individuals

Public-private partnerships, 

formation of special districts, 

and formation of co-ops

Capital Access and Insurance 

The key to financial recovery is the engagement of the private sector. The RSF serves as a 

clearinghouse for ideas and innovation and as a facilitator to bring businesses, ideas, and capital 

together. The programs reestablishing cash flow are an initial step in the overall financial 

underpinning of a recovering community. Governmental programs at any level can provide critical 

capital for rebuilding capacity and seed money for new initiatives. While some initial capital may 

come from disaster-specific programs, most comes through targeted application of steady state 

programs, such as annual grant funding programs through TREAS’s CDFI Fund and HUD’s CDBG, 

and incentives for private investment (e.g., tax incentives such as the Gulf Opportunity Zones). 

The ability to draw new capital to a community impacted by disaster is closely linked to other 

elements of the Economic RSF. Assessment and evaluation of the community is fundamental in order 

to establish a reasonable vision of what a “new normal” can be. Capitalizing on entrepreneurial 

opportunities—whether pre-existing or resulting from the disaster—will be critical to energizing 

recovery for both large and small businesses. 

One of the key qualitative metrics of economic recovery is the resumption of steady state channels 

for capital and the transition from governmental disaster programs to steady state ones must be 

encouraged. In fact, a more direct and transparent transition can be engineered by the early inclusion 

of certain steady state programs into the RSF’s efforts.

 HUD: CDBG; 

 SBA: Small business (7a/504) loans, Small Business Investment Corporations, Innovation 

Cluster Initiative; 

 TREAS: CDFI Fund grant programs; 
Recovery Federal Interagency Operational Plan 

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 USDA: Loan, subsidy, grants, and insurance programs; and 

 DOC: EDA Revolving Loan Fund Program and Economic Adjustment Assistance. 

Table D-11: Finance and Insurance—Examples of Federal Support 

Economic RSF 

Consideration

Common 

Elements

Federal Support

(Examples)

Opportunities For Private 

And Nonprofit Sectors

Finance and 

Insurance

Assistance for 

existing loans

Assistance to meet financial 

obligations

Renegotiated terms of 

agreements, including deferred 

loan payments

Protecting 

commercial 

investment

Activities to protect improved 

property such as public 

facilities and residential and 

commercial developments; 

financial assistance for 

mitigation efforts to protect 

damaged property from, and 

reduce the cost of, future 

disaster damage

Special loans, disaster 

mitigation, and recovery 

education

Relief for 

community and 

local banks

Ease of banking regulations 

and publication requirements

Formation of consortiums to 

share information and best 

practices

Maintaining or 

increasing private 

sector investment

Tax breaks, special business 

districts, disaster recovery 

bonds, “clawback” provisions

Strong leadership and 

leadership support, business 

incubators, marketing

Maintaining 

confidence in the 

private sector

Community planning and 

capacity building, 

coordinated recovery efforts, 

VIP visits, private-public 

partnerships

Strong leadership and 

leadership support, positive 

media on recovery efforts, 

private-public partnerships, and 

continuity of former expansion 

plans

Assistance 

getting credit

Guaranteed loans to bolster 

private sector structure

Education and training, 

community outreach

Workforce Development 

Ultimately, the RSF must work with its partners to create conditions or otherwise facilitate the 

renewed provision of capital investment from the private sector. For some disasters, this entails 

establishing conditions such that perceived risk returns to, roughly, pre-disaster levels. For example, 

in more limited disasters, assuring the continuation of operations by a major source of employment 

and lending enough money to adequately supplement insurance payments will be sufficient. In 

catastrophic disasters such as Hurricane Katrina in 2005, or when dealing with unique circumstances 

(e.g., the 9/11 terror attacks), much more specific approaches will be required. Such approaches—

whether business incubators, forgivable loans, disaster recovery bonds, or others—hinge on private 

sector engagement, which, in turn, rests on confidence. 

The following key workforce development capabilities available to the Economic RSF are located 

within the Departments of Labor and Commerce: 
Recovery Federal Interagency Operational Plan

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 Compiling unemployment insurance statistics, processing grant awards, and providing response 

teams; 

 Administering programs that provide temporary income support to unemployed individuals; 

 Providing Dislocated Worker Grants for employment and training assistance; 

 Providing Division of Unemployment Assistance information to eligible individuals when the 

disaster declaration(s) provide for FEMA’s IA Program; 

 Assistance through Office of Workers’ Compensation Programs; 

 Mobilizing the American Job Centers system; and 

 Providing workers’ compensation coverage to Federal workers and eligible dependent survivors 

for employment-related injuries or death. 

Additional capabilities are also available: 

 USDA: Grants, loans, subsidies; and 

 DOC: EDA Economic Adjustment Grants. 

Table D-12: Workforce Development—Examples of Federal Support 

Economic RSF 

Consideration

Common 

Elements

Federal Support

(Examples)

Opportunities For Private And 

Nonprofit Sectors

Workforce 

Development

Retaining and 

creating jobs

Technical and financial 

assistance for job creation 

and retention programs, 

entrepreneurship, and 

business development

Education/training, community 

outreach, foundation grants, 

business incubators, and job fairs

Job training Job training technical 

assistance; financing

Provide training facilities and 

mentoring programs

Assessment of 

workforce 

available and 

needs

Data provision, technical 

assistance, and technical 

planning

Data gathering, volunteer 

assistance, participation of local 

university talent and research

Assistance for 

dislocated 

workers

Funds to provide retraining 

and job-search assistance 

Nonprofit education and training 

and community outreach, job fairs, 

resume assistance, and job/work 

(online) bulletin boards

Economic Development 

The key to economic development is an effective, coordinated plan that takes into account the will of 

the community and the interests of all stakeholders, especially nonprofit and for-profit elements of 

the private sector. Such a plan must, of course, be rooted in economic reality. Planning requires 

technical assistance for feasibility studies, impact assessments, investment projects, identification and 

exploitation of entrepreneurial opportunities and similar efforts. Whenever possible, economic 

recovery planning should build on pre-disaster economic development plans. To be most useful in a 

post-disaster situation, these economic development plans should account for risks and identify 

potential post-disaster courses of action for most probable risks. Post-disaster plans should account 

for the disaster’s impacts, but build on surviving elements of the local economy, which can be best 
Recovery Federal Interagency Operational Plan 

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understood from the pre-disaster plans. To be effective, plans, especially post-disaster, may require 

various types of tax and regulatory relief: 

 Economic RSF Coordinating Agency: Nonprofit/private sector coordination; 

 DOC: Economic Adjustment Assistance, National Institute of Standards and Technology 

Manufacturing Extension Partnership, other grant programs; 

 HUD: CDBG; 

 USDA: Business development loan guarantees, grants, micro entrepreneurship loans, workforce 

retraining/development grants; 

 TREAS: CDFI Fund grant and New Market Tax Credit programs; and 

 SBA: Innovation Cluster Initiative. 

Table D-13: Economic Development—Examples of Federal Support 

Economic RSF 

Consideration

Common 

Elements

Federal Support

(Examples)

Opportunities For Private 

And Nonprofit Sectors

Economic 

Development

Construction of 

infrastructure

Funds for planning, technical 

assistance, and infrastructure 

construction; funds to 

acquire, construct, or 

reconstruct public facilities; 

improvements such as 

streets, neighborhood 

centers, and water and sewer 

facilities

Foundation grants, technical 

assistance, infrastructure 

investment, and public-private 

partnerships

Encouraging 

entrepreneurs

Entrepreneurship programs, 

technical assistance, grant 

programs, and special 

business zones

Mentoring programs, business 

panels, business incubators, 

funding entrepreneurship 

programs in schools, and 

trade shows

Encouraging 

economic 

diversity

Community/comprehensive 

planning assistance, tax 

incentives, special districts, 

and feasibility studies

Construction in mixed-use 

zoning, public-private 

partnerships, and creation of 

community-focused amenities 

that attract other business and 

residents

Sustainable 

economic 

development

Technical assistance Foundation grants, 

involvement of research 

institutions, and encouraging 

business continuity planning

Expanding 

business and 

employment 

opportunities

Loan guarantee, business 

improvement districts, and tax 

incentives

Foundation grants and 

business education and 

training

Small Business 

While SBA offers programs, post-disaster and steady state, aimed at supporting the unique needs of 

small business, this capability will seldom be the whole solution. SBA loans, combined with 
Recovery Federal Interagency Operational Plan

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counseling services, are key first steps, but all RSF partners have a role to play in understanding and 

supporting the small business environment. The small business environment, in turn, may be critical 

to supporting major employers. Small businesses may be critical suppliers and they may provide the 

character to a community that is influential to retaining major employers (and their employees). 

Agencies other than SBA possess loan programs that can better adapt under certain circumstances. 

Cash flow, finance, and workforce issues are all of vital importance for small businesses. Capabilities 

supporting small business recovery include the following: 

 SBA: Disaster Loan Programs, Government Contracting, and Business Development; Small

business (7a/504) loans, Small Business Investment Corporations, Counseling Services,

Innovation Cluster Initiative;

 DOC: EDA Revolving Loan Fund Program; and

 USDA: Business development loan guarantees, grants, micro-entrepreneurship loans, workforce

retraining/development grants.

Table D-14: Small Business—Examples of Federal Support 

Economic RSF 

Consideration

Common 

Elements

Federal Support

(Examples)

Small Business Furthering 

entrepreneurship

Technical assistance and 

entrepreneurship initiatives

Small business loans and 

mentoring programs

Moving vs. staying Technical assistance, 

disaster assistance, and 

community planning

Business development and 

planning assistance 

Balancing business 

and personal 

recovery needs

Technical assistance, 

disaster unemployment 

insurance, business 

assistance

Involvement of voluntary 

organizations and internship 

and job pool programs

Tax-related 

assistance

Tax refunds for lost alcohol 

and tobacco products, free 

tax information, and 

assistance for damaged or 

lost property

Education/training, community 

outreach

Mitigating losses in 

future disasters

Technical assistance and 

financial assistance

Education on continuity and 

disaster planning and loans 

and grants for commercial 

improvements

Marketing and Communication 

The Economic RSF can facilitate conditions conducive to the marketing efforts of individual 

businesses, but it cannot market on behalf of even a specific community, much less an individual 

business. Resources can be made available to communities to encourage the return of customers. 

Typically, state tourism and/or economic development offices receive Federal funds to spread the 

“open for business” and “all cleaned up” messages.

Certain disasters reveal pre-existing conditions that suggest alterations in government regulations, 

which can also contribute to a favorable business climate. For example, the creation of the 

Transportation Security Administration facilitated trust in airline travel after the 9/11 attacks. Similar 

Opertunities For Private

And Nonprofit Sectors 
Recovery Federal Interagency Operational Plan 

D-35

regulatory changes have stemmed directly from the loss of consumer confidence in the housing and 

mortgage markets since 2007. 

Rebranding can be more complex than marketing or regulatory change. If an area or a product is 

viewed as unsafe, confidence in its safety must be restored. However, the RSF would not be involved 

in the brand restoration of an individual product. The Economic RSF can serve as a coordinator in 

the orchestration of measures that support claims of safety, statements by governmental experts, or 

VIP use of a product. The following tools assist marketing and communications: 

 DOC: EDA Economic Adjustment Assistance, International Trade Administration—Travel and 

Tourism Technical Assistance; and 

 SBA: Government Contracting and Business Development, Innovation Cluster Initiative. 

Table D-15: Marketing and Communication—Examples of Federal Support 

Economic RSF 

Consideration

Common 

Elements

Federal Support

(Examples)

Opportunities For Private And 

Nonprofit Sectors

Marketing and 

Communication

Maintaining 

customers

Funds to state tourism or 

economic development 

organizations, VIP visits, and 

other media

Marketing campaigns, VIP visits, 

and targeted and positive media 

attention

Industry-specific 

marketing

Creation of new 

administration/agency/group 

for that industry and new 

industry regulations

Industry group marketing and 

media attention

Rebranding 

geographic area 

or local product

Statements by government 

experts, VIP use of a 

product, or visits

Tourism board advertising in 

regional and larger publications

Linkages and Interdependencies 

Relationship with Other RSFs 

The Economic RSF must make sure its recovery activities are coordinated with those of the other 

RSFs. While the ultimate coordination of activities is the responsibility of the FDRC, adequate 

coordination between RSFs is necessary. The Economic RSF Field Coordinator must work 

collaboratively with the other RSF Field Coordinators to: 

 Assemble multi-disciplinary assessment teams and resources when appropriate; 

 Leverage issue and impact information gathered by other RSF activities; 

 Share information via multi-RSF meetings and other communications; 

 Identify how the Economic RSF can contribute to the efforts of the other RSFs; 

 Identify areas where the other RSFs may contribute to meeting goals of the Economic RSF; 

 Collaborate with other RSF initiatives and take appropriate steps to make adjustments as 

necessary to ensure that the end result meets agreed-upon goals; and 

 Review lessons learned from each disaster and incorporate them into practice to improve 

recovery efforts for future disasters in that region and around the country. 

There are a multitude of interrelated and interdependent issues that require extensive inter-RSF 

coordination. In some situations, the Economic RSF can provide input such as economic information 
Recovery Federal Interagency Operational Plan

D-36

and subject matter expertise for other RSF efforts. In other situations, the Economic RSF can benefit 

from the work of the other RSFs, thereby leveraging their outputs. Some of the projected 

interdependencies are captured in the tables below. 

Table D-16: RSF Interdependencies 

Recovery Support 

Function

Potential Support To Economic 

RSF Potential Support From Economic RSF

Community 

Planning and 

Capacity Building

Community priorities for economic 

recovery and development

Programs that encourage/support strategic 

planning for economy/community

Health and Social 

Services

Assistance with health and social 

service networks, facilities, child 

care, and/or providers that impact 

employment and support a 

customer base for local businesses

Technical assistance to H&SS networks 

and providers for business recovery

Housing

Meeting the housing needs of 

employers and employees of 

businesses receiving Economic 

RSF assistance

Facilitation of local purchasing efforts to 

assist businesses with housing 

rehabilitation and development. Technical 

assistance to housing developers for 

access to capital

Infrastructure 

Systems

Restoration status of sewer, 

roadway, electricity, 

communications, and other 

infrastructure needs impacting the 

economy

Information on infrastructure needs of 

businesses by geographic service areas

Natural and 

Cultural 

Resources

Rehabilitation of buildings for 

businesses within historic districts 

or landmarked/historic buildings. 

Status of tourism assets

Integration of NCR into the promotion of 

economic growth through tourism and 

other conservation initiatives

The collaborative approach at the Federal level must be responsive to the needs of the local 

stakeholders who will continue the long-term recovery efforts when Federal engagement returns to 

the steady state. The “ground truth” of economic damage and recovery issues will be ultimately 

derived from information assembled by the local, state, tribal, territorial, insular area, private, and 

nonprofit partners. For that reason, the Economic RSF will be heavily dependent on active and 

regular communication with the appropriate stakeholders. This communication will seek to collect 

and disseminate information on the economic issues affecting the communities/region and 

collaboration in identifying methods to mitigate effects. 
Recovery Federal Interagency Operational Plan 

D-37

Resources 

Table D-17: Economic Recovery Resources 

Name of Resources Description and Website

RestoreYourEconomy.org

One-stop shop of disaster preparedness, post-disaster 

economic recovery, and disaster resiliency resources, tools, 

event announcements as well as opportunities to connect with 

peers through social media groups.

www.RestoreYourEconomy.org

EDA’s Disaster Recovery Page

Captures resources that may be useful in furthering a 

community's economic recovery efforts.

http://eda.gov/about/disaster-recovery.htm

Resilience Resources

Community Resilience System

The Community Resilience System (CRS) brings together the 

resources, tools, and processes needed to improve community 

resilience.

http://www.resilientus.org/recent-work/community-resiliencesystem/

HUD Exchange Community 

Resilience Planning Resources

This portal catalogues a set of resources that local planners 

could use to help plan and prepare for changing natural 

hazards when undertaking HUD-funded activities.

https://www.hudexchange.info/manage-a-program/communityresilience

Leadership in a Time of Crisis: A 

Toolkit for Economic Recovery and 

Resiliency

Provides strategies and tactics for community leaders to focus 

on for economic recovery and preserving jobs, incorporating 

useful information for convening private and public 

stakeholders to identify key economic recovery strategies, tips 

on how to navigate federal resources for response and 

recovery, and implementation of recovery initiatives.

http://restoreyoureconomy.org/toolkit/ 

Risk Assessment 

Building Code Effectiveness Grading 

Schedule (BCEGS)

The Insurance Services Offices (ISO) administers the BCEGS 

to assess building codes and building code enforcement in 

municipalities which highlights vulnerability in the built 

environment.

http://www.isomitigation.com/

HAZUS - FEMA

A national model for estimating potential disaster losses.

http://www.fema.gov/hazus-software

Economic Data/Analysis

Bureau of Labor Statistics

Provides extensive county-level data on various economic 

factors.

www.bls.gov
Recovery Federal Interagency Operational Plan

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Name of Resources Description and Website 

StatsAmerica

Provides provide actionable data for economic developers to 

use in site requests, developing metrics, grant writing and 

strategic planning. Offers side-by-side comparisons, plus 

innovation metrics and distress indicators.

www.statsamerica.org

EDA’s Cluster Mapping project

Provides data on industry sectors for different geographic 

scales.

www.clustermapping.us
Recovery Federal Interagency Operational Plan 

E-1 

Annex E: Health and Social Services

Purpose 

The purpose of the Health and Social Services (H&SS) core capability and Recovery Annex is to 

outline how Federal agencies and national nongovernmental organizations plan to support the health 

and social services disaster recovery efforts of local, state, tribal, territorial and insular area 

jurisdictions. This annex outlines planning factors in coordinating Federal health and social services 

recovery operations in support of locally led recovery efforts. The Recovery FIOP and this annex are 

flexible, scalable, and adaptable in order to best support impacted individuals and households 

through Federal support to and coordination with local, state, tribal, territorial, insular area, 

nongovernmental organization, and private sector organization efforts. 

Objectives and Considerations 

The overarching Recovery Capability as described in the National Preparedness Goal for health and 

social services is “the ability to restore and improve health and social services systems to promote the 

resilience, health (including behavioral health), independence, and well-being of the whole 

community.” Timely restoration of health and social services is critical to a community’s disaster 

recovery and requires a unified effort from all stakeholders in the affected area. Stakeholders include 

government agencies; disability, nonprofit, philanthropic, voluntary, faith-based, and community 

organizations; for-profit businesses; service providers; and individuals and families accessing 

services—the whole community. By working together, recovery stakeholders can promote the health 

and well-being of affected individuals and communities and foster community resilience. 

The H&SS core capability is composed of nine key objective areas. These objective areas are 

categorized to provide structure for the coordination of programs, partners, and resources in recovery 

planning. These areas include public health, healthcare services, behavioral health, environmental 

health and safety, food safety and regulated medical products, long-term responder health, social 

services, disaster case management, and children in disasters. 

The descriptions within the objective areas detail the general scope of associated recovery actions or 

activities. These activities are not intended to represent an exclusive or exhaustive list of potential 

Federal support, nor are they designed to represent support that will be provided under every disaster 

circumstance. Rather, these statements reflect—in broad strokes—important considerations within 

the various objective areas to assist in structuring and organizing recovery planning for partner 

entities. 

Core Capability Key Objectives 

Public Health 

 Implementation of strategies to assess and monitor the public health, disease surveillance, and 

injury prevention of the impacted community in order to identify and mitigate health problems. 

 Development and implementation of risk communications and public health messaging for the 

disaster. 

 Training and technical assistance (e.g., instructional staff, curriculum development experts, 

subject matter experts and professional staff) regarding site-specific hazards related to recovery. 
Recovery Federal Interagency Operational Plan

E-2 

Health Care Services Impacts 

 Assessment of disaster-related structural, functional and operational impacts to health care 

facilities (e.g., hospitals, clinics, nursing homes, assisted living centers, blood banks, laboratories, 

dialysis centers, substance abuse treatment facilities, poison control centers, medical and dental 

offices). 

 Identification of healthcare services that can no longer be met with community resources due to 

the disaster. 

 Development of strategies to address interim and long-term health care services while damaged 

facilities are permanently repaired, replaced, or restored. 

 Assessing the health care services of disaster-impacted individuals and the applicability of 

program flexibilities and waivers that may be strategically leveraged to enhance the capacity to 

meet health care deficits. 

Behavioral Health Impacts 

 Assessment of disaster-related structural, functional, and operational impacts to behavioral health 

facilities and programs. 

 Leveraging of the Crisis Counseling Assistance and Training Program—a state grant program 

administered by HHS/Substance Abuse and Mental Health Services Administration and funded 

by FEMA—under ESF #6 (Mass Care, Emergency Assistance, Temporary Housing and Human 

Services). 

 Leveraging existing resources to meet disaster-caused community deficits identified during the 

response phase, such as increasing surge capabilities of existing behavioral health service 

systems. 

 Engagement with behavioral health partners to assess disaster-caused service deficits, develop 

strategies including population-based strategies, connect practitioners with resources, and 

identify best practices that include prevention to address ongoing surveillance and long-term 

treatment assistance. 

 Development and dissemination of consistent messaging and guidance concerning stress 

management and stress mitigation strategies. 

Environmental Health Impacts 

 Surveillance of the environment in an affected community to determine whether post-disaster 

conditions may cause adverse public health effects. 

 Identification and mitigation of public health threats in sheltering, potable water, and wastewater 

that can cause or exacerbate negative environmental health outcomes. 

 Provision of technical assistance (e.g., scientific data and models) and environmental health 

training. 

Food Safety and Regulated Medical Products 

 Technical assistance for regulated biologics, medical devices, drugs, animal feed, and human 

food establishments to protect public health. 

 Technical assistance to support the safety of the Nation’s supply of meat, poultry, and processed 

egg products. 
Recovery Federal Interagency Operational Plan 

E-3 

 Assessment of an impacted community’s food supply networks to support food safety.

Long-Term Health Issues Specific to Responders 

 Identification of responder groups to potentially be included in long-term health (including 

behavioral health) monitoring and surveillance. 

 Establishment of long-term health monitoring and surveillance capacity of disaster responders 

and, where appropriate, communities. 

 Technical assistance to help determine the appropriate duration and content of long-term health 

monitoring. 

Social Services Impacts 

 Assessment of disaster-related structural, functional, and operational impacts to social services, 

facilities (e.g., community congregate care, child care centers, Head Start centers, senior centers, 

homeless shelters), and programs (e.g., domestic violence services, child support enforcement, 

foster care, family support programs). 

 Assessment of survivors within the impacted area, including children; people with disabilities 

and others with access and functional needs; populations with LEP; racially and ethnically 

diverse communities; and identification of disaster-related social services deficits that cannot be 

met with community resources due to the disaster. 

 Technical assistance in assessing the social services deficits of disaster-impacted individuals and 

the applicability of Federal programs’ flexibilities and waivers that may be strategically 

leveraged to enhance the state’s capacity to meet those deficits.

Referral to Social Services/Disaster Case Management 

 Implementation of coordinated system(s) for referral of individuals and families with unmet 

disaster-related deficits to appropriate social services and maximize existing social services 

programs to support local and nongovernmental organization efforts to mitigate social disruption 

and transition individuals and families back to self-sufficiency. 

 When requested by the state, tribal, territorial, or insular area government, facilitate or provide 

immediate delivery or subject matter expertise and grant support of the Federal Disaster Case 

Management Program—a partnership of HHS/Administration for Children and Families and 

FEMA—and transition to the impacted state, tribal, territorial, or insular area leadership of 

disaster case management to address unmet disaster-related recovery deficits. 

Children and Youth in Disasters 

 Support efforts to mitigate disaster-caused environmental health threats in facilities where 

children congregate (e.g., schools, gymnasiums, child care centers). 

 Support children and youth that are displaced as a result of the disaster by facilitating enrollment, 

transportation to and from educational facilities, and provision of free and reduced meal services. 

 Support the disaster-related health and behavioral health deficits of expectant and nursing 

mothers. 

 Support disaster behavioral health deficits of children and youth by providing age-appropriate 

messaging that parents and guardians can use to discuss their children’s post-disaster concerns. 
Recovery Federal Interagency Operational Plan

E-4 

 Support disaster behavioral health deficits of children and youth by providing age-appropriate 

messaging that educators, pediatricians, and caregivers can use to discuss the post-disaster 

concerns of children in their care. 

 Support efforts to prevent post-disaster related neglect or emotional, psychological, verbal, 

physical, and/or sexual abuse of children and youth. 

 Support post-disaster efforts to prevent trafficking of children and youth that may be 

unaccompanied as a result of the disaster. 

 Support post-disaster efforts to restore services, systems, and networks that support runaway and 

homeless youth. 

 Support coordination of strategies to ensure children and youth with disabilities and/or children 

and youth with access and functional needs are not experiencing reductions in service and/or 

access or increased isolation as a result of the disaster. 

Considerations for Cross-Capability Coordination 

As discussed in the base plan of the FIOP, disaster-affected communities do not recover in isolation. 

Consequently, it is necessary to highlight the potential intersections, supports or areas of conflict 

with other core capabilities. Post-disaster opportunities may exist for applying the principles of a 

“Health in All Policies”7

approach and incorporating sustainable, resilient principles to the recovery 

process and community capacity. 

The environment—inclusive of the future built environment—has a connection to community health, 

social service and direct healthcare provision. According to the Institute of Medicine, there are 

important relationships between traditional post-disaster (e.g., mitigation, debris removal) and steady 

state (e.g., urban planning) programs in the Operational Coordination, Housing, Natural and Cultural 

Resources, Infrastructure Systems, and Health and Social Services core capabilities.

8 Opportunities 

may also exist for collaboration on remediation and sustainable redevelopment through the execution 

of community health assessments, health impact assessments and environmental impact statements 

(e.g., Brownfields remediation) in support of enhancing healthy, livable communities. Further, 

potential may exist to incorporate novel community, urban and housing development resilience with 

health and/or social service provision for impacted populations.9

The healthcare facilities sector also has clear connection to other core capabilities. Focus in this area 

may include collaboration with stakeholders on mitigation, hazard vulnerability principles, and how 

these considerations impact or influence design and use of facility space. The Operational 

Coordination and Infrastructure Systems core capabilities, paired with guidance from the National 

Mitigation Framework, connect to the aforementioned areas. 

Health and social service networks may constitute key community economic drivers. As such, 

economic analysis expertise and health care delivery systems expertise may be needed for recovery 

planning support from the Economic core capability. 

 

7 Health in All Policies is a collaborative approach to improving the health of all people by incorporating health 

considerations into decision making across sectors and policy areas. The goal of Health in All Policies is to ensure 

that all decision makers are informed about the health consequences of various policy options during the policy 

development process. http://www.phi.org/resources/?resource=hiapguide 

8 Healthy, Resilient, and Sustainable Communities After Disasters: Strategies, Opportunities, and Planning for 

Recovery—http://iom.nationalacademies.org/Reports/2015/Post-Disaster.aspx 

9

 NIST Community Resilience Planning Guide, http://www.nist.gov/el/resilience/index.cfm 
Recovery Federal Interagency Operational Plan 

E-5 

Finally, ongoing communication is also important for health and social services. Public Information 

and Warning capability could be the development and issuance of consistent public messaging and 

risk communications concerning post-disaster food handling and preparation guidance. All of these 

potential opportunities are key to promoting healthy, resilient, and sustainable communities 

following a disaster. 

Federal Recovery Challenges 

 Long-term, multifactorial, and disaster-caused issues with recovery implications will require 

root-cause identification, analysis, strategy, and partnership identification and development. To 

conduct this analysis, Federal elements will require close coordination and support from the 

disaster-affected jurisdiction and senior leadership within the health and social service sectors. 

 Along the recovery pathway, there will be an ongoing need for the immediate provision of 

services to address the acute needs of individuals and families in the post-disaster environment. 

This support will continue to be provided through existing channels until or unless these concerns 

demonstrate a connection to long-term recovery issues and require enhanced collaboration to 

address the problem’s root cause.

 Some issue areas identified will have barriers or real limitations based upon statutory, regulatory 

or other conditions. These challenges may necessitate engagement from senior leadership and 

policy directors; this might not, however, result in a different outcome. 

 A key principle in the disaster recovery process is the need to ensure equity and transparency in 

the implementation of and support from Federal programs and entities. The mere perception of 

inequitable distribution of support could significantly undermine the implementation of projects 

and, particularly, any new partnerships sought through the recovery process. Local jurisdictions 

will identify concerns and choose to address from their own identified priorities. Federal support 

will strive to apply policies, programs, and rules as equitably and transparently as possible. 

 Recovery strategies may require the inclusion or application of various policies or Executive 

Orders. Such requirements may affect timeline, scope, funding source, and flexibilities afforded 

during the recovery process. 

 Multiple partners at the local, state, and Federal levels have access to data points or systems that 

will be relevant to the ongoing analysis of the individual and community level recovery process 

for health and social service networks. The ability to leverage the best available data will better 

enable targeting of resources to various communities to anticipate or project recovery needs. A 

key challenge may be identifying which entities have ownership of what data and how best to 

coordinate these resources to quantify recovery need or areas of focus (e.g., data obtained 

through post-disaster population needs assessments or surveys, regular health care data feeds 

[syndromic surveillance]). Accessing data is not the only area requiring additional coordination. 

Data monitoring, interpretation and epidemiological analysis—particularly for indicators of need 

for social services—and associated findings may be necessary. 

 Identified priority areas may be addressed over time and may be subject to change. Additionally, 

the particular tactics of implementation as identified within other recovery strategies (e.g., state 

government or local jurisdictions) may need to adjust accordingly. Similarly, the level and type 

of engagement of partner entities would need to adjust in order to address the outstanding issues 

over the recovery process. 
Recovery Federal Interagency Operational Plan

E-6 

Recovery Targets 

Federal agencies comprising the H&SS RSF have developed a set of disaster recovery targets 

necessary for delivering this core capability. These recovery targets are identified in the National 

Preparedness Goal and represent the critical steps in the overall recovery planning process. 

1. Identify affected populations, groups and key partners in short-term, intermediate, and long-term 

recovery. 

2. Complete an assessment of community health and social service needs, and prioritize these 

needs, including accessibility requirements, based on the whole community’s input and 

participation in the recovery planning process, and develop a comprehensive recovery timeline. 

3. Restore health care (including behavioral health), public health, and social services functions. 

4. Restore and improve the resilience and sustainability of the health care system and social service 

capabilities and networks to promote the independence and well-being of community members in 

accordance with the specified recovery timeline. 

Depending on the type of impacts from the disaster, some elements in each area may be affected. It is 

important to conduct an assessment to make a complete determination to ensure a comprehensive 

picture is available to inform decision-making. 

Federal Coordinating Structure 

Overview of H&SS RSF Partners 

The NDRF identifies the H&SS RSF Coordinating Agency, along with its Primary Agencies and 

Supporting Organization members in the table below. 

Table E-1: Members of the H&SS RSF 

Health and Social Services

Coordinating Agency: Department of Health and Human Services (HHS)

Primary Agencies: Corporation for National and Community Service; Department of Agriculture 

(USDA); Department of Homeland Security (DHS); Department of Housing and Urban 

Development (HUD); Department of the Interior (DOI); Department of Justice (DOJ); 

Department of Labor (DOL); Environmental Protection Agency (EPA)

Supporting Organizations: American Red Cross; Department of Commerce (DOC); 

Department of Education; Department of Transportation (DOT); Department of the Treasury

(TREAS); Department of Veterans Affairs (VA); National Voluntary Organizations Active in 

Disaster (NVOAD); Small Business Administration (SBA)

As the Coordinating Agency for the H&SS RSF, the Department of Health and Human Services 

(HHS) will facilitate disaster recovery collaboration between Primary Agencies, Supporting 

Organizations, local, state, tribal, and territorial jurisdictions, and private and nonprofit sector 

partners. To facilitate pre-disaster recovery planning and coordination activities, the Department has 

designated a National H&SS RSF Coordinator within the Office of the Assistant Secretary for 

Preparedness and Response. 

Primary agencies have pre-defined authorities, roles, resources, and/or capabilities to support health 

and social services recovery after a disaster. H&SS RSF Primary Agencies are those entities that may 

have specific or direct programs, policies, procedures, or personnel—pre- or post-disaster—with 

significant impact or influence in shaping, informing or facilitating health and social service 
Recovery Federal Interagency Operational Plan 

E-7 

recovery. H&SS RSF Supporting Organizations are those entities that may have programs, policies, 

procedures or personnel with an indirect or connecting role to supporting the recovery of health or 

social service networks. 

RSF Critical Tasks and Activities 

Pre-Disaster Preparedness 

Before a disaster occurs, RSF agencies, organizations, and partners can prepare for recovery by 

developing strategic priorities to address health and social services recovery issues that may impact 

the whole community. This includes identifying and developing relationships with key partners, 

identifying programs and systems that could be leveraged after a disaster, and building an 

understanding of their resources, capabilities and constraints. 

RSF agencies and organizations may also develop recovery plans that address the concurrent nature 

of response and recovery operations in addition to the transition from recovery to steady state

operations. Plans should seek to promote the principles of sustainability, resilience, and mitigation. 

RSF agencies and organizations can encourage and support local, state, tribal, and territorial recovery 

planning efforts through participation in trainings, stakeholder workshops, and/or exercises for 

disaster recovery. As the RSF Coordinating Agency, HHS will engage RSF partners to support predisaster recovery planning efforts, identify opportunities to collaborate, and strengthen partnerships 

to align and formalize recovery efforts. 

Post-Disaster Recovery 

The National Response Framework focuses on response actions as well as short-term recovery 

activities that immediately follow a disaster. The NDRF does not address short-term activities such 

as lifesaving, life sustaining, property protection, and other measures intended to neutralize 

immediate threats to life, environment, and property, and stabilize the community. However, these 

actions may influence recovery activities, necessitating a structure to identify and advise on recovery 

implications during the early phases of incident management. The NDRF establishes a structure to 

encourage early integration of recovery considerations into disaster response operations. The core 

principles and organizational constructs introduced in the NDRF coexist with and build upon the 

NRF to effectively address recovery issues. 

As previously identified, disaster response and recovery operations are interdependent, overlapping, 

and often conducted concurrently. Depending on the size and magnitude of the disaster, the activities 

described in the following sections may be initiated or conducted concurrently, across response and 

recovery phases. For example, an impacted community may begin assessing and identifying 

individuals with health or social services deficits while response operations are ongoing. 

To ensure health and social services deficits are addressed during response and recovery, it is critical 

that the H&SS RSF coordinate with ESFs to the NRF, primarily ESF #8 (Public Health and Medical 

Services), ESF #6 (Mass Care, Emergency Assistance, Temporary Housing and Human Services), 

ESF #3 (Public Works and Engineering), and ESF #11 (Agriculture and Natural Resources). 

Depending on disaster conditions, coordination may also be necessary with additional ESFs such as 

ESF #10 (Oil and Hazardous Materials Response) that are conducting response missions with health 

and social services impacts. 

Recovery Authority and Funding 

The NDRF is not intended to increase overall Federal agency activity in support of recovery planning 

during steady state. Federal agencies with NDRF roles, responsibilities, and recovery programs will 

fund the costs of these activities out of their base budgets and staffing levels, which are subject to 
Recovery Federal Interagency Operational Plan

E-8 

available resources, except for those expenses authorized for reimbursement under the Stafford Act 

or otherwise provided by law. This may include other mechanisms for reimbursement, supplemental 

appropriations, and/or increased direct appropriations. Existing Federal programs can be leveraged to 

support recovery operations only to the extent of the authority and appropriations for those programs. 

Nothing in the NDRF alters or impedes the ability of local, state, tribal, territorial, or Federal 

departments and agencies to carry out their specific authorities or perform their responsibilities under 

all applicable laws, executive orders, and directives. 

Immediate Tasks 

 Activation 

Although activation of the H&SS RSF is at the request of the FDRC, activation is generally 

considered when one or more of the following factors apply: 

 When the President declares a major disaster under the Stafford Act and Federal assistance is 

requested by the appropriate state authorities to assist with their health and social services 

recovery efforts; 

 When there is a Public Health Emergency declaration by the Secretary of HHS; 

 When there is an activation of ESF #6 (Mass Care, Emergency Assistance, Temporary 

Housing, and Human Services) and/or ESF #8 (Public Health and Medical Services);

 When a jurisdiction is designated for both FEMA PA and IA; and 

 When recovery activities to address health and social services disaster impacts involve more 

than one H&SS RSF Primary Agency and, consequently require enhanced coordination. 

Intermediate Activities 

 Identify Impacts 

Once activated,10 the Coordinating Agency will designate or formally appoint a National 

Recovery Coordinator to serve as the senior-level headquarters coordination lead. In this 

capacity, the individual will monitor and identify disaster impacts with health and social services 

recovery implications. The National Coordinator will assign a staff-level Coordinator to engage 

with ESF #6 (Mass Care, Emergency Assistance, Temporary Housing, and Human Services),

ESF #8 (Public Health and Emergency Medical Services), and other partners as necessary to 

develop an impact analysis. The Coordinator will engage with ESF #3 (Public Works and 

Engineering) to identify infrastructure impacts with longer-term implications for H&SS and other 

RSFs that may be activated. 

If the H&SS RSF National Coordinator and the FDRC determine that deployment is warranted, 

the National Coordinator will collaborate with other H&SS RSF agencies and organizations to 

designate an H&SS RSF Field Coordinator who will execute field operations for the RSF. 

Depending on the scope and magnitude of the disaster, more than one H&SS RSF Field 

Coordinator may be designated and coordination across multiple communities may occur. In the 

case of multiple Field Coordinators for one disaster, an alternative structure may be employed as 

outlined in the FIOP base document. 

Following deployment, the H&SS RSF Field Coordinator will conduct an impact analysis. This 

information will be used in the development of a MSA. The development of the MSA is 

 

10 See FIOP Base Plan for information for more specifics on the data utilized and activation process for RSFs. 
Recovery Federal Interagency Operational Plan 

E-9 

supported by the Federal interagency and the FDRC. It will assist the FDRC and the RSFs in the 

process of identifying which (if any) health and social service mission areas may require 

enhanced Federal recovery support within impacted jurisdictions. It is important to note that the 

MSA is only representative of a “snapshot in time” during the disaster recovery cycle and, as 

such, recovery priorities, decisions, and activities at the individual, organization, and community 

level will change over time. Finally, information from the MSA is utilized and referenced in the 

development of the RSS. The RSS outlines the potential programs, policies, and approach that 

Federal agencies may use in partnership with the jurisdiction to support recovery efforts. 

In conjunction with the RSF, the National Coordinator and the FDRC will use the impact 

analyses and the MSA in concert to determine which H&SS RSF Primary Agencies and 

Supporting Organizations should be requested to activate or deploy to the field. Should the 

provision of assistance require deployment, overtime, or enhanced support or assistance, it is the 

responsibility of the FDRC to identify and secure other reimbursable funding (e.g., IAAs) to 

enable deployed interagency support. 

 Coordination Linkages and Interdependencies 

If deployed, the H&SS RSF Field Coordinator will work with the appropriate Primary Agencies 

and Supporting Organizations, the FDRC, SDRC/TDRC, and Local Disaster Recovery Managers 

to conduct joint assessments in order to identify the community’s health and social service 

disaster-related recovery issues and priorities. 

A key component of the recovery process will be complementing mitigation projects and 

principles with other initiatives to enhance the disaster resilience of affected communities, 

individuals, and businesses. Opportunities for this integration through various programs and 

initiatives should be pursued as available and feasible throughout the recovery process. Doing so 

will reduce the likelihood of repetitive loss in future disasters and enhance a community’s ability 

to recover through adaptation of present systems and enhancement of social community 

networks. 

The H&SS RSF Field Coordinator will engage and consult RSF partner agencies and 

organizations and other RSF Leads throughout the implementation of the RSF’s mission to 

facilitate participation in decision making. As H&SS RSF-specific missions are implemented, 

continued and regular RSF engagement and consultation will be used as a mechanism to reassess 

needs, priorities, available resources, and plans for transition to steady state. 

 Provide Technical Assistance 

Federal H&SS RSF agencies and organizations may have existing authorities, programs, waivers, 

and technical assistance that can be implemented or provided without deploying personnel to the 

field. In such cases, the H&SS RSF National Coordinator and the FDRC may determine that 

deployment of RSF agencies and organizations to the field is not warranted. Instead, RSF 

partners may be activated in order to provide remote technical assistance and coordination to 

address health and social services recovery issues. 

Long-Term Activities 

 Transition to Steady State 

The mission is considered complete once long term recovery impact assessments have been 

analyzed and the requested technical support (on-site or remotely) to assist communities in 

developing their recovery plans and strategies has been provided and/or is no longer needed. The 

Federal role in each mission is scalable and adaptable for every incident, consequently the scale 
Recovery Federal Interagency Operational Plan

E-10

of deployment affects the time needed to return to steady state operations. When a mission is 

considered complete and H&SS RSF recovery efforts are no longer needed, the H&SS RSF 

National Coordinator will lead the development of an H&SS RSF-specific after-action report to 

evaluate the effectiveness of the mission, identify lessons learned, and share best practices. If 

needed, the H&SS RSF National Coordinator will lead the development of an H&SS RSF 

corrective action plan to address any outstanding issues identified during the transition from 

recovery to steady state. 

Roles and Responsibilities 

Table E-2: RSF Coordinating Agency Functions 

Coordinating Agency Functions

Department of Health 

and Human Services

 Represents H&SS RSF at the national level.

 Establishes communication and information sharing forum(s) for H&SS RSF 

partners.

 Provides technical assistance to support recovery planning and postdisaster activities for public health, health care, behavioral health, and social 

services infrastructure, including to other RSFs.

 Provides technical assistance regarding program eligibility, application 

processes, and project requirements for HHS programs as applicable under 

existing authorities.

 Conducts health and social services assessments with local, state, tribal, 

and territorial governments, and Federal RSF Primary Agencies.

 Coordinates with other local, state, tribal, territorial, and Federal partners to 

assess food, animal, water, and air conditions to ensure safety.

 Provides assessment information regarding the consequences on the health 

and human services sectors in an affected community.

 Identifies and coordinates H&SS RSF-specific missions with Primary 

Agencies and Supporting Organizations.

 Supports RSF national- and field-level operations with subject matter 

expertise and staffing support, as appropriate.

 Develops and implements a plan to transition from Federal health and social 

services recovery operations back to a steady state.

 Provides communities and responders with behavioral health resources that 

help them prepare, respond, and recover from disasters.

 Evaluates the effectiveness of Federal H&SS RSF efforts.
Recovery Federal Interagency Operational Plan 

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Table E-3: RSF Primary Agency Functions 

Primary Agency Functions

Corporation for 

National and 

Community Service

 Represents National Service at the national level.

 Provides trained members form National Service programs, AmeriCorps 

and Senior Corps, to support communities’ most pressing needs, including 

disaster recovery.

 Facilitates and leverages volunteer engagement for disaster recovery by 

working closely with state service commissions; NVOAD; and other local, 

state, tribal, territorial, and Federal partners to provide national service 

members and resources in myriad recovery functions.

 Engages in the following recovery functions (this is a partial list): case 

management intake; direct physical labor; volunteer management and 

leadership; and capacity building for local, state, tribal, territorial, and 

Federal governments, nonprofit, and faith-based organizations.

 Provides technical assistance to facilitate sharing of best practices among 

state Service Commissions, grantees, and communities to address specific 

regional and local needs during long-term recovery.

Department of 

Education

 Supports the restoration of the learning environment for students and staff 

in impacted communities as available and appropriate.

 Supports Federal partners in the coordination of health and social services 

delivered through impacted schools.

 Supports local, state, tribal, territorial, and Federal partners in the 

coordination of enrollment, educational services, and health and social 

services for students who are homeless or displaced prior to, or as a result

of the disaster.

 Provides incident-specific technical assistance and training to schools and 

higher education institutions in impacted areas, as available and 

appropriate.

Department of 

Homeland Security/

Immigration and 

Customs Enforcement 

(ICE)

 Enforces over 400 federal laws and regulations governing the movement 

of goods and people through the international border, including

investigating illicit proceeds of crime (i.e. fraud profits), human smuggling 

and trafficking, intellectual property theft or abuse, contraband, and the 

movement of arms/weapons.

Department of 

Homeland 

Security/National 

Protection and 

Programs Directorate

 Provides information and technical expertise through the Office of 

Infrastructure Protection, Sector Outreach and Programs Division, in 

protective measures, for critical infrastructure and has sector liaisons who 

coordinate between all 16 critical infrastructure sectors and the private 

sector.
Recovery Federal Interagency Operational Plan

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Primary Agency Functions 

Department of 

Homeland 

Security/Office for 

Civil Rights and Civil 

Liberties

 Communicates with relevant stakeholder networks, to include individuals

with disabilities and others with access and functional needs; diverse

ethnic and racial communities; and LEP populations, to share accurate

information and to obtain public perspective.

 Coordinates with relevant Department of Homeland Security components

and Federal interagency and nongovernmental organization partners as

needed to identify resources to ensure equal access to physical/

architectural, programmatic, and communications aspects of the recovery

process for all populations within the impacted community.

 Participates in the impact assessment protocol to obtain information

regarding impacts to protected populations (individuals who are statutorily

protected on the basis of race, color, national origin, age, disability,

religion, sex, and other characteristics) and to provide civil rights guidance

to ensure recovery activities address these impacts in an equitable

manner.

 Provides guidance and resources to assure that recovery activities respect

the civil rights and civil liberties of all populations and do not result in

discrimination on account of race, color, national origin (including LEP),

religion, sex, age, disability, or other characteristics.

 Monitors recovery activities to ensure equal opportunity and civil rights

laws are upheld.

 Monitors complaints received to identify trends and respond accordingly.

Department of 

Homeland 

Security/Science and 

Technology 

Directorate

 DHS’s Science and Technology Directorate (S&T) laboratories provide

research and development and subject matter expertise reachback

capabilities on a 24/7 basis to meet the requirements in Homeland Security

Presidential Directive 10 and 22 (Classified). S&T’s laboratories are

focused on the following mission areas based upon S&T’s line of business:

 Bioforensics and threat characterization (National Biodefense Analysis

and Countermeasures Center [NBACC]).

 Accurate and rapid detection of explosives at transportation hubs

(Transportation Security Laboratory [TSL]).

 Objective test and evaluation of tools critical to first responders

(National Urban Security Technology Laboratory [NUSTL]).

 Timely knowledge products essential for expert planning and response

to chemical threats (Chemical Security Analysis Center [CSAC]).

 Diagnostics and vaccines vital to protecting our nation’s livestock industry

from foreign animal diseases (Plum Island Animal Disease Center

[PIADC]).

Department of 

Homeland 

Security/Office of

Disability Integration 

and Coordination

 Communicates with relevant stakeholder networks, to include individuals

with disabilities and others with access and functional needs; diverse

ethnic and racial communities; and LEP populations, to share accurate

information and to obtain public perspective.

 Participates in the impact assessment protocol to obtain information

regarding impacts individuals who are statutorily protected on the basis of

access and functional needs disability and to provide civil guidance to

ensure recovery activities address these impacts in an equitable manner.

 Monitors complaints received to identify trends and respond accordingly.
Recovery Federal Interagency Operational Plan 

E-13

Primary Agency Functions 

Department of 

Housing and Urban 

Development

 Provides content, standards, and best practices to efforts regarding 

housing related health hazards such as lead, mold, asbestos, safety and 

radon, for recovery and rebuild materials and intervention activities as well 

as training for responders.

 Provide technical assistance to support recovery planning and post 

disaster activities for grantees, local and regional partners and contractors.

 Provide technical assistance regarding lead and healthy homes grant 

program eligibility as applicable under existing authorities.

 Coordinate with grantees to serve as an access point for message delivery 

regarding disaster recovery and extreme weather preparation, recovery 

and rebuild as well as provide available HUD resources.

 Coordinate and contribute “joint assessment” items to include assessment 

of housing stock needed, used and historical.

 Assist in shared data collection in the impacted communities that will allow 

an applied perspective by HUD as a contributor to the assessment tool and 

ensure all relevant data to measure the need and outcomes of services to 

be provided.

 Engage in review of collected assessment data by event and utilize the 

shared data as tool to direct future services, programs and activities.

 Collaborate with the FDRC to ensure all available resources are being 

made available and utilized by the disaster survivors and volunteer 

responders as applicable.

 Manages grant programs providing safe and healthy homes for at-risk 

families and children by promoting and funding housing repairs to address 

conditions that threaten the health of residents, support key research, and 

enforce laws that protect occupant health.

 Assists states and local governments in remedying unsafe housing 

conditions and addressing the acute shortage of decent and safe dwellings 

for low-income families.

Department of the 

Interior

 Implements welfare programs for tribes under Title 25 Code of Federal 

Regulations Part 20, including the administration of the “Emergency 

Assistance” fund, which is limited in scope and provides essential needs 

assistance directly to individuals who suffer from fire, flood, or other 

destruction of their home or personal possessions that are not covered by 

a primary resource.

 Provides technical assistance, guidance and direction on Bureau of Indian 

Affairs welfare assistance program policies, implementation and 

interpretation through social service workers within the Bureau of Indian 

Affairs.
Recovery Federal Interagency Operational Plan

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Primary Agency Functions 

Department of Justice

 Coordinates as needed with tribal governments and tribal courts.

 Coordinates via the U.S. Attorney with the Attorney General and with the 

district’s other Department of Justice law enforcement agencies to ensure 

a comprehensive response.

 Enforces the criminal laws of the United States and conducts affirmative 

and defensive civil litigation.

 Coordinates anti-fraud enforcement efforts and serves as a clearinghouse 

for disaster fraud matters through the National Disaster Fraud Command 

Center.

 Monitors recovery activities to ensure compliance with equal opportunity 

and civil rights laws.

 Enforces by prosecution and civil litigation, promulgates regulations, and 

provides guidance on compliance with Federal civil rights laws, including 

the Americans with Disabilities Act, Section 504 of the Rehabilitation Act 

and the Civil Rights Act of 1964.

 Receives complaints of, investigates, and prosecutes violations of Federal 

criminal civil rights statutes.

 Provide confidence in public safety by the enforcement of Federal law.

Department of Labor

 Coordinates assistance programs to help individuals, households, and 

businesses meet basic needs and return to self-sufficiency.

 Provides funding to support immediate need for worker training, 

particularly health care workers.

 Provides technical assistance and support to protect the health and safety 

of recovery workers.

 Establishes communications infrastructure that could be used to 

communicate with employers nationwide. (Note: The Department of Labor 

performs this function as part of the Economic RSF.)

 Provides expertise in economic assessment of emergency impacts and 

special economic impact analysis. (Note: The Department of Labor 

performs this function as part of the Economic RSF.)

Environmental 

Protection Agency

 Provides technical assistance to support recovery planning of public 

health, health care, and social services infrastructure.

 Provides technical assistance for long-term cleanup to minimize public 

health threats, including environmental sampling and monitoring, site 

assessment, decontamination, and disposal.

Federal Emergency 

Management Agency

 Provides technical assistance and guidance on Hazard Mitigation Grant 

Program eligibility.

 Provides technical assistance and guidance on the reimbursement 

eligibility of disaster-related medical, dental, funeral, and burial costs.

 Provides technical assistance and guidance on PA Grant Program 

eligibility.

 Provides technical assistance, coordination, and grant funding of Federal 

Disaster Case Management Program.

 Provides grant funding in crisis counseling.
Recovery Federal Interagency Operational Plan 

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Table E-4: RSF Supporting Organization Functions 

Supporting 

Organization Functions

American Red Cross

 Provides case management assistance with unmet needs and health and 

mental health services, as local resources are available.

 Supports community recovery by providing health education, preventative 

measures (e.g., vaccinations), or assisting public health with long-term 

health monitoring, as local resources are available.

 Provides mental health recovery and resilience information, tools, and 

resources to school personnel, community members, mental health 

providers, community service providers, and other key stakeholders.

 Provides psychological first aid and resilience training to community 

members, as needed.

 Provides information to the public on the adequacy of the blood supply to 

meet current needs or request public support in scheduling blood 

donations to support post-disaster requirements.

 Provides information, in coordination with the AABB Task Force, to the 

public on the adequacy of the blood supply to meet current needs or 

requests public support in scheduling blood donations to support postdisaster requirements.

Department of 

Agriculture

 Provides technical and financial assistance regarding health and social 

services and USDA-related program eligibility (childcare centers, 

hospitals, nursing homes) application processes and project 

requirements.

 Supports RSF national- and field-level operations with subject matter 

expertise and staffing support, as appropriate.

 Provides economic and physical assessment of disaster impacts on 

USDA financed health related infrastructure programs.

 Provides technical advice on health impacts associated with 

animal/zoonotic disease or plant pest infestation, carcass disposal, and 

disease management to safeguard public health.

 Safeguards health of human, animal, and environment (including 

agriculture); for premises or areas under USDA regulatory control in the 

affected region, helps evaluate the extent of exposure to susceptible 

species (plant or animal) from the loss of a premises’ or area’s biosecurity 

and ensures that the premises or area reestablishes their biosecure 

status as soon as possible.

Department of 

Transportation

 Provides technical assistance in long-term recovery planning and 

engineering of transportation infrastructure systems, including paratransportation systems, necessary to support health care and social 

services facilities.

Department of the 

Treasury

 Supports RSF national- and field-level operations with subject matter 

expertise, as appropriate.

 Supports the RSF in the areas of financial literacy and tax-related 

assistance through education, outreach, and tax return preparation 

assistance.
Recovery Federal Interagency Operational Plan

E-16

Supporting 

Organization Functions 

Department of 

Veterans Affairs

 Provides priority services to veterans, when requested, subject to the 

availability of resources and funding, and consistent with the Department 

of Veterans Affairs (VA) mission.

 Coordinates with participating National Disaster Medical System (NDMS)

hospitals to provide incident-related medical care to authorized NDMS 

beneficiaries affected by a major disaster or emergency.

 Furnishes available VA hospital care and medical services to individuals 

responding to, involved in, or otherwise affected by a major disaster or 

emergency, including members of the Armed Forces on active duty.

 Designates and deploys available medical, surgical, mental health, and 

other health service support assets.

 Provides a Medical Emergency Radiological Response Team for 

technical consultation on the medical management of injuries and 

illnesses due to exposure to or contamination by ionizing radiation.

 Alerts VA Federal Coordinating Centers to activate NDMS patient 

reception plans in a phased, regional approach, and, when appropriate, in 

a national approach.

 Buries and memorializes eligible veterans and advises on methods for 

interment during national or homeland security emergencies.

National Voluntary 

Organizations Active 

in Disaster

 Facilitates communication, cooperation, coordination, and collaboration 

between NVOAD members and partners and throughout communities to 

better prepare for and respond to disasters and other emergency 

incidents.

 Assists in communicating to the government and the public the services 

provided by its member organizations.

 Facilitates information sharing during planning, preparedness, response, 

recovery, and after a disaster incident.

 Provides NVOAD members with information pertaining to the severity of 

the disaster, needs identified and actions of volunteers and others 

throughout the response, relief, and recovery process.

 Provides guidance on standards, guidelines, or best practices for survivor 

mass care, case management, emotional and spiritual care, housing, 

rebuild and repair, long-term recovery, and the management of 

unaffiliated volunteers and unsolicited donated goods.

Small Business 

Administration

 Provides loans for property damages to non-farm business of all sizes 

and private nonprofit organizations and Economic Injury Disaster Loans 

to eligible small businesses and private nonprofits.

 Provides technical assistance regarding program eligibility, application 

processes, and project requirements.

 Provides counseling and other technical assistance to small businesses.

 Promotes small business access to capital through loans, investments, 

etc., aimed at sustaining businesses applications.

 Supports RSF national- and field-level operations with small business 

expertise and staffing support, as appropriate.
Recovery Federal Interagency Operational Plan 

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Resources 

For available resources, please visit http://www.phe.gov/about/oem/recovery/Pages/resources.aspx. 
Recovery Federal Interagency Operational Plan

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Recovery Federal Interagency Operational Plan 

F-1 

Annex F: Housing

Purpose 

This annex describes the delivery of the Housing core capability for the Recovery mission area. The 

Housing core capability implements housing solutions that effectively support the needs of the whole 

community and contribute to its sustainability and resilience. Recovery core capabilities are 

primarily, but not exclusively, delivered by the Federal Government through the RSFs. 

The Housing RSF establishes a focal point for coordinating Federal housing and community 

development recovery operations in support of locally led recovery efforts. This annex provides the 

coordinating agency, primary agencies, supporting agencies, and non-Federal partners with the 

following: 

 Overall understanding of the Housing RSF mission and objectives, as well as key challenges; 

 Overview of critical tasks, including core capabilities and pre- and post-disaster activities; 

 Description of partner roles and capabilities; 

 Understanding of the coordinating structure for the Housing RSF; and 

 Overview of long-term housing recovery resources, including took kits and reference materials. 

Objectives and Considerations 

Mission 

As defined in the NDRF, the mission of the Housing RSF is to address pre- and post-disaster housing 

issues and coordinate the delivery of Federal resources and activities to assist local, state, tribal, 

territorial, and insular area governments as they rehabilitate and reconstruct destroyed and damaged 

housing, when feasible, and develop new accessible, permanent housing options. 

Scope 

Permanent housing for disaster survivors relies on the successful intersection of individual and 

community choices and financial ability. One of the key goals of disaster housing is to move disaster 

survivors into permanent housing as quickly as possible. Many individuals and households may be 

able to return and live in their homes following a disaster, even while repairs are underway. 

However, when a disaster event severely damages the housing of a community, attaining permanent 

housing in a timely manner becomes an immense challenge. It requires making difficult choices and, 

ultimately, requires the alignment of the goals of individuals and the local government, as well as the 

availability of financial resources through both public- and private sector sources. 

Key Challenges 

Many factors affect the process of attaining permanent housing. These factors represent an intricate 

matrix of individual and community decisions along with availability of personal, private sector, and 

public resources. Community practices to rehabilitate or rebuild permanent housing focus on four 

distinct groups: homeless individuals and families, renters, homeowners, and landlords. A number of 

factors or obstacles may affect the ability of these groups to retain, obtain, or create permanent 

housing and challenge recovery efforts. 
Recovery Federal Interagency Operational Plan

F-2 

Financing Availability and Affordability 

 The financial ability to secure and/or repair or rebuild permanent housing presents a baseline 

challenge. For renters, this includes the ability to find and afford post-disaster rental housing. For 

homeowners and landlords, this includes whether they had adequate insurance and/or the ability 

to finance the cost of repairs or rebuilding. 

 The financial ability to secure and/or repair, rebuild, or newly construct homeless shelters or 

other continuum of care housing for the homeless creates additional challenges. 

 The availability of construction loans and permanent financing will impact all but those projects 

that are owner-financed. 

Insurance Availability and Affordability 

 The ability to obtain and afford adequate hazard and flood insurance in the future will impact the 

availability of financing. Lenders will not lend in the absence of adequate insurance coverage. 

 Property owners who rehabilitate or rebuild without lender financing who choose not to carry 

insurance or adequate insurance may compound their future housing and financial risk from 

future disasters. 

 The speed of adopting updated Flood Insurance Rate Maps that better reflect post-disaster risks 

can impact whether rebuilding occurs in high risk areas. It can also affect insurance premiums. 

Local Decisions and Capacity 

 The availability and cost of labor and building materials, as well as local housing permitting and 

inspection staffs, can halt, stall, or speed up recovery. Remoteness of a location may exacerbate 

both cost and availability. 

 Contractor fraud and fraud by assistance recipients (e.g., property owners and renters) may affect 

the pace and viability of recovery. Local, state, and Federal officials should work to deter and 

prosecute such illegal activities. 

 The timeliness and effect of local land use decisions and ordinances, EHP laws, building and 

housing codes, and permitting processes, affect where, how, and whether homes can be rebuilt. 

 Jurisdictions with outdated codes and ordinances will need to update them or perhaps suffer 

the results of not doing so. 

 Likewise, jurisdictions with inadequately staffed inspection services will need to devise 

alternative delivery systems, such as mutual aid, to meet demand and not slow recovery. 

 Status quo land use patterns in high-risk areas may need to be weighed against more resilient 

approaches that mitigate future damage and cost while providing affordable housing 

opportunities for residents. 

 Decisions by neighboring property owners to rebuild or abandon damaged structures—a large 

number of owners deciding not to rebuild can create substantial problems for the neighbors that 

do rebuild and reduce the viability of the neighborhood. This includes financial impacts on the 

communities as tax revenues would decrease and infrastructure costs would increase. Also, in 

more sparsely populated or “Swiss cheese” neighborhoods unit costs of service delivery (e.g., 

trash removal) will increase and retail market viability (e.g., for grocers, pharmacies, gas 

stations) may decrease. 
Recovery Federal Interagency Operational Plan 

F-3 

Objectives 

The Housing RSF supports the development of local, state, tribal, territorial, and insular area longterm housing recovery strategies in the areas described below. 

Identify Strategies to Strengthen the Housing Market 

The state of the housing market plays a big role in shaping our well-being as individuals, the stability 

of our neighborhoods, and the strength of our National economy. It also plays a critical role in 

determining the resilience of communities to rebound from disasters and attract new capital 

investments. Communities that face declining property values, lost equity, increased foreclosures, 

and sharp blows to the financial system will face extraordinary challenges in rebuilding housing 

compared to those with strong housing markets. The strength of the local housing market is central to 

long-term disaster recovery. Without adequate housing resources,11 efforts to reconstitute the 

community will falter and local economic recovery may stall. Even in areas where some housing 

stock survives, efforts to combat housing foreclosures can be critical to help stabilize the community. 

The development of replacement housing for returning families and the stabilization of weak housing 

markets to limit foreclosures will ensure that communities have the foundation needed to speed 

recovery, reducing the likelihood of blight and decline that can follow disasters. Community choices 

on how and where to rebuild can also revitalize and strengthen the housing market and improve longterm community growth. 

Meet the Need for Quality Affordable Rental Homes 

Many communities have substantial gaps in affordable rental homes long before disasters strike. 

Renters in America face serious difficulty finding affordable housing in a broad range of 

communities because of the dual problems of a shortage of units in some areas and a lack of income 

to afford units in the existing market. Communities work through existing plans and programs to 

address these gaps and provide adequate housing to meet the needs of their residents. This is 

especially critical for communities located in regions that experience frequent occurrences of disaster 

activity that result in repetitive loss of housing stock. Lack of affordable housing in the impacted and 

nearby areas means that even minor damages to housing stock can result in significant housing gaps. 

This issue becomes even more critical following a disaster, where pre-existing gaps are exacerbated 

and communities can face severe shortages, particularly when property owners are competing with 

displaced long-term renters for available rental housing. 

Utilize Housing as a Platform for Improving Quality of Life 

Recovery planners must understand what housing means as a fundamental human need and in terms 

of quality of life for individuals and families. Housing is not just a physical structure, it connects 

communities to the way they live their lives and can provide access to quality schools, jobs, health 

care, places of worship, social services, and other facets of our communities. Planning for and 

recovering from disasters includes an opportunity to rethink how housing can meet the diverse needs 

of the community. Long before disasters strike, families may face challenges that affect their ability 

to obtain housing, such as housing costs, weak employment histories, poor health, substance abuse, 

and criminal records. People with access or functional needs, including those who are homeless, 

people with HIV/AIDS, people returning from prisons, returning veterans, the elderly, persons with 

LEP; individuals with disabilities and others with functional needs; and people with animals, 

including household pets and service and assistance animals, can all experience significant barriers to 

 

11 Housing resources include, but are not limited to, available funding for repairs or reconstruction, and available 

land for development, contractors and trades capable of reconstructing homes, availability of building materials, and 

the availability of housing for short or long term rental, all at affordable prices. 
Recovery Federal Interagency Operational Plan

F-4 

both obtaining and maintaining housing. For some, financial assistance alone is sufficient to ensure 

access to housing, while others require housing with supportive services to assist with activities of 

daily living or long-term self-sufficiency. 

Planning for long-term disaster recovery must include those with access or functional needs and 

people with animals, including household pets, service and assistance animals. Before disaster 

strikes, it is critical to engage stakeholders and advocates in the planning process to ensure that 

planning addresses the whole community and includes the necessary supportive services that can 

make housing options viable for those with access or functional needs. Following a disaster, 

communities have an opportunity to rethink how to rehabilitate or redevelop housing in a manner that 

addresses the diversity of the community and related supportive services. This may mean exploring 

mixed income housing, examining how to better integrate social services or wrap-around services, or 

exploring options to provide permanent housing for people who are homeless. Planning for people 

with animals includes access to pet-friendly housing options, payment of reasonable pet fees, and 

provision of animal day care services, when appropriate. While disaster recovery may bring complex 

choices and difficult trade-off decisions, post-disaster choices on long-term housing redevelopment 

can also serve as a unique opportunity to strengthen our communities and improve quality of life. 

Build Inclusive and Sustainable Communities 

Housing and related community development efforts in disaster recovery must address a complex 

network of individual, social, economic, and environmental factors. These efforts should be 

undertaken in a way that promotes more diverse, inclusive communities and improves the 

sustainability of neighborhoods, communities, and regions. Many of the neighborhoods most 

impacted by the housing and economic effects of a disaster are racially isolated and among the least 

sustainable. These neighborhoods tend to have limited access to economic opportunity, the longest 

commuting times to jobs, the most homes that pose health risks, and the poorest quality schools. 

Capacity building efforts should focus on tools, training, and technical assistance necessary for local, 

state, tribal, territorial, and insular area governments to overcome the underlying challenges and 

implement permanent housing options consistent with the community’s needs. In rebuilding housing, 

recovery efforts should promote the development of sustainable and accessible mixed-income 

communities with a range of affordable housing options that maximize return of displaced 

households, regardless of income or functional needs. These strategies should include post-disaster 

links to employment, services, and transportation, which are critical to the sustainability and 

inclusiveness of communities. 

Integrate Disaster Mitigation Measures into Community Design and Development to Improve 

Disaster Resilience 

Many communities are already taking actions that can help improve housing resilience, including 

developing hazard mitigation plans. The Disaster Mitigation Act of 2000 required states and 

localities to develop mitigation plans to help reduce or eliminate risk to existing buildings and 

infrastructure using techniques such as retrofitting to strengthen the structural components of 

buildings, elevating buildings above predicted flood levels, and expanding the capacity of culverts 

and storm water facilities. Mitigation activities can also reduce risk to future development through 

administrative and regulatory tools such as building codes, zoning, and planning mechanisms that 

influence the location, timing, and methodology and technology of new construction, rebuilding, and 

rehabilitation. 

Some communities also have started to look at housing resilience as part of ongoing community 

planning activities. All rehabilitation, reconstruction, and new construction should be designed to 

incorporate principles of sustainability, including water and energy efficiency, resilience and 
Recovery Federal Interagency Operational Plan 

F-5 

mitigating the impact of future disasters. However, one of the greatest challenges is to incorporate the 

tools, resources, and specific actions that can make communities more resilient. Resilience plans 

should encourage construction methods that emphasize high quality, durability, energy efficiency, a 

healthy indoor environment, sustainability, and water or mold resistance, including how it will 

support adoption and enforcement of modern building codes and mitigation of hazard risk, including 

possible sea level rise, storm surge, and flooding, where appropriate. 

In the aftermath of a disaster, the affected community should also consider the risks of future disaster 

events when making reconstruction land use decisions. Greater emphasis on land use planning would 

likely improve the resilience of many communities. In the immediate aftermath of a disaster, there 

may be local community support for land use changes that preclude reconstruction in particularly 

risky areas. The ability of the community to change their land use is greatly reduced once 

reconstruction begins, so communities should plan ahead or act quickly in order to incorporate land 

use changes in reconstruction plans. 

Considerations 

 There is no “one size fits all” strategy for facilitating a disaster survivors’ return to permanent 

housing. 

The size, location, and type of disaster play a very large role in defining the approach to 

permanent housing. This section presents the key principles learned from past efforts to 

rehabilitate and rebuild permanent housing. Permanent housing begins with individual and 

community decisions on where and how to rebuild, which is a challenging task that often puts 

individual sense of place and property ownership against the need for safety and long-term 

community viability. Ultimately, permanent housing should be better built (more disaster 

resistant; more energy-efficient; more accessible for those with disabilities and others with access 

and functional needs; and healthier), more safely located, and more adequately insured than the 

housing it replaces. 

 Rebuilding usually takes more time than people would like. Individuals need to prepare for this 

eventuality. 

Homes that are structurally unsafe to inhabit following a disaster, for example, often require 

more than two years to repair or to replace. In the best of situations, the process of obtaining 

insurance claims payments or alternative financing, redesigning or specifying the repairs to be 

made, obtaining local building permits, soliciting and hiring a contractor, and the time for the 

contractor to schedule and do the work can take a year or much longer, depending on the scope of 

the disaster. A catastrophic disaster can double or triple this timeline. Many factors can slow the 

pace of permanent housing recovery. These include community decisions about where and how 

to rebuild, whether some areas should be rebuilt at all, the need for property owners to obtain 

“gap” financing to afford the necessary repairs, and the potentially scattered location of the 

owners. In the event of a catastrophic disaster, a shortage of housing for construction workers in 

combination with a high demand for labor complicates the problem. (See the “Key Challenges” 

section above.) 

Local, state, and Federal, elected officials, local and state government staff, and case managers 

need to work closely with stakeholders, community-based organizations, and the media to 

explain the realities of this long recovery process to the public to establish and maintain 

reasonable expectations about how long it takes to achieve permanent housing solutions when 

housing is destroyed. 
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F-6 

 Individual and community preparedness before a disaster strikes is essential to post-disaster 

housing recovery. 

Permanent housing recovery rests on the decisions and actions of property owners both before 

and after a disaster. Long before a disaster, homeowners, and landlords have already made 

substantive decisions that will affect the ability and speed of their recovery based on the hazard, 

flood, or earthquake insurance they have purchased. Inadequate insurance pre-disaster will 

inevitably lead to a much longer timeline for rebuilding permanent housing. In many areas, 

residents may have trouble rebuilding within the funding available to them, may find themselves 

the victim of fraud or poor construction, or may be forced to use the rebuilding resources for dayto-day expenditures. 

Communities can speed up disaster recovery if they have a solid plan to respond to the range of 

potential disasters that could occur in their area. Such a plan reflects an assessment of risk, 

including the threat, vulnerability, and consequence of disasters that could occur. For example, if 

communities or neighborhoods are located in known danger areas, such as floodplains along 

hurricane-vulnerable coastlines, or near earthquake fault lines, they not only should have plans 

for evacuating households and meeting short-term sheltering needs, but they should consider 

developing plans that spell out relocation or rebuilding strategies in the event of a disaster. These 

discussions should be integrated into existing community planning processes. In this way, the 

community can make quicker decisions after a disaster on how and where to rebuild, which tie 

directly to the decision process for individuals. In addition, all levels of government should 

consider the consequences of rebuilding in certain areas and should explore the benefits of 

establishing guidelines for when government resources should not be used for rebuilding and 

when those resources should support relocation. For example, should government resources be 

used in repetitive loss areas? Should government change the uses permitted in such areas? Also, 

chemical and other hazards may make the area—or certain portions of a community—

uninhabitable for extended periods of time. In other cases, the area may be safe but public 

perceptions about potential unknown long-term health or safety factors may make rebuilding 

unlikely. 

 Repaired or replacement housing should be more resilient than the housing it replaces and be 

adequately insured. 

There are more than 132 million12 homes in the United States. To protect these valuable 

investments, all levels of government should encourage property owners to adopt mitigation 

measures to make existing homes more disaster resilient. A key step is to encourage individuals 

to implement simple measures. For example, research shows that retrofits, such as installing 

hurricane shutters, securing roof sheathing to trusses, or strengthening exterior doors can 

significantly protect homes from hurricane damage. 

Communities can also take actions to mitigate the effects of future disaster losses by establishing 

appropriate building standards. States and communities in earthquake prone areas that adopt the 

latest seismic provisions of a model building code (e.g., the International Code Council code) 

provide a fist line of defense for structures in their jurisdictions. California, Oregon, and 

Washington have mandatory statewide building codes and have adopted seismic standards that 

 

12 http://factfinder.census.gov/faces/nav/jsf/pages/searchresults.xhtml?refresh=t 
Recovery Federal Interagency Operational Plan 

F-7 

exceed the ICC model code. South Carolina also has adopted the 2006 ICC code, including 

seismic provisions, but has not exceeded them. (Charleston lies in a seismic risk area.)13

To receive flood insurance, the National Flood Insurance Program requires that homes 

experiencing more than 50-percent damage due to a disaster and new homes built in a 100-year 

floodplain be elevated above locally adopted base flood elevations. Many local governments 

have adopted building codes to ensure that new housing units are built to a standard that reflects 

the risks. Miami-Dade County in Florida, for example, has one of the strongest building codes to 

protect against hurricane damage. Because of the extended lifespan of most housing, 

communities must establish and update strong building codes well before a disaster occurs. 

Local governments in high-risk areas should also implement local building codes requiring home 

hardening as part of home renovations or maintenance. The extra expense of building homes to 

be more hazard resistant may be offset by lower insurance premiums. Adequate insurance to 

cover the risks associated with a specific location, including riders for flood or earthquake 

coverage, are essential for expediting permanent housing recovery. In those areas determined by 

insurance actuaries to be especially high risk, insurance premiums are often quite high. Property 

owners also need to determine the levels of risk and potential cost they are willing to accept with 

or without adequate insurance and the potential for short-term or extended relocation. Because 

insurance is the first and preferred resource for permanent recovery, all partners (local, state, 

tribal, territorial, insular area, and Federal governments) should encourage all residents to carry 

appropriate levels of insurance for the risk they face. Renters should also carry insurance that will 

reduce the threats to their personal property. 

 Some interim housing options can become permanent housing. 

While interim housing is strictly intended to provide temporary shelter for those displaced by a 

disaster, some households may not need to move from their interim housing solution to achieve 

permanent housing. For example, under some circumstances, selling a manufactured or modular 

temporary home to a homeowner with the unit on their property or in a manufactured housing 

community can serve as a permanent housing solution. 

 Catastrophic incidents require substantial coordination and resources to achieve permanent 

housing for the various types of populations. 

A catastrophic incident that affects a majority of the households in a large area limits the ability 

and resources within that community or region to rebuild. For a catastrophic disaster, the place, 

size, and type of disaster can significantly impact how long it takes for a community to decide 

where and how to rebuild and to give its residents rebuilding guidance. This fosters individual 

indecision on whether to rebuild or leave. Those choosing to stay and rebuild may find it difficult 

to procure local resources to do the rebuilding and, therefore, initially may rely on manufactured, 

modular, and panelized housing solutions. The state and Federal governments can assist and play 

larger roles to support community rebuilding when a catastrophic disaster significantly affects a 

large number of households or a high proportion of households in a county or state. 

In providing housing alternatives for the homeless populations, substantial coordination and 

resources are required and are paramount in providing both temporary and permanent housing 

solutions. Many of these individuals and families were unhoused prior to an incident or were in 

shelters that provided an array of social services and now must be housed and provided an array 

 

13 Insurance Institute for Business & Home Safety. (2012) Importance of Strong Building Codes in EarthquakeProne States. Retrieved from Building Codes: Insurance Institute for Business & Home Safety: 

https://disastersafety.org/ 
Recovery Federal Interagency Operational Plan

F-8 

of services. Communities must determine whether to rebuild the shelters and also how best to 

provide temporary housing to the homeless with the anticipation that the ultimate goal would be 

to find them permanent housing alternatives. 

 Identifying clusters of permanent housing opportunities can speed and enhance recovery. 

Identifying clusters of less-damaged properties or areas to more easily and more quickly rebuild 

or build permanent housing can create a nucleus and catalyst for more permanent housing—a 

positive snowballing effect. This is especially critical when it is hard for property owners to 

decide whether or not to reinvest because they do not know if their neighbors will reinvest or 

whether there will be adequate community services or social support services. Building out from 

an area of strength, especially in areas that are relatively “safer” from a repeat incident, can 

stimulate permanent housing recovery. This also can help the local community focus investment 

in the public utilities infrastructure. 

Recovery Targets 

Federal agencies prepared to deliver Housing core capabilities for the Recovery mission area 

developed recovery specific target statements with the input of primary and supporting agencies and 

organizations. Target statements are key outcomes expected from applying a core capability during 

recovery operations. The target statements below supplement those outlined in the National 

Preparedness Goal. 

The readiness assessment targets enumerated below relate to the Housing core capability: implement 

housing solutions that effectively support the needs of the whole community and contribute to its 

sustainability and resilience. 

1. Assess preliminary housing impacts and needs, identify available options for temporary housing 

to include leasing options, and plan for permanent housing. 

2. Facilitate the sharing, aggregation, and integration of housing data and recovery information 

across local, state, tribal, territorial and Federal governments, organizations, and other 

stakeholders and partners to support recovery decision making. 

3. Build local, regional, and state capacity to manage the short-, intermediate, and long-term 

consequences of an incident by providing data and analysis, and technical and financial 

assistance, such as grants, loans, loan guarantees, subsidies, vouchers, and identification and use 

of available housing (government-owned and other properties), when available. 

4. Provide integrated technical and Federal program assistance to ensure that housing resilience 

principles are integrated in locally driven recovery efforts. 

5. Facilitate understanding of how Federal programs and resources support post-disaster housing, 

community development, and resilience-related recovery needs. 

Federal Coordinating Structure 

Overview of Partners 

The NDRF identifies the Housing RSF Coordinating Agency, along with the Primary and supporting 

organizations (supporting agencies and non-Federal partners), which are listed in the following table. 
Recovery Federal Interagency Operational Plan 

F-9 

Table F-1: Members of the Housing RSF 

Housing 

The Housing RSF coordinates and facilitates the delivery of Federal resources to implement housing 

solutions that effectively support the needs of the whole community and contribute to its sustainability 

and resilience. Housing is a critical and often challenging component of disaster recovery, but must be 

adequate, affordable, and accessible to make a difference for the whole community. Housing can be 

affected by, and can affect, each of the other core capability areas.

Coordinating Agency: Department of Housing and Urban Development (HUD)

Primary Agencies: Department of Agriculture (USDA); Department of Justice (DOJ); HUD; Federal 

Emergency Management Agency (FEMA)

Supporting Organizations: American Red Cross; Corporation for National and Community Service; 

Department of Commerce (DOC); Department of Energy (DOE); Department of Health and Human 

Services (HHS); Department of Veterans Affairs (VA); Environmental Protection Agency (EPA); 

General Services Administration (GSA); National Voluntary Organizations Active in Disaster (NVOAD); 

Small Business Administration (SBA); U.S. Access Board

Under the leadership and direction of the FDRC, and in coordination with state counterparts, the 

Housing RSF works closely with and coordinates the efforts of participating Federal, non-Federal, 

nongovernmental, private sector, and other organizations to support communities, states, tribes, 

territories, and insular area recovery efforts. These partners fulfill various roles and provide a range 

of support (see the Roles and Capabilities section for specific roles). 

Coordinating Agency 

As the Coordinating Agency for the Housing RSF, HUD will facilitate communication and 

collaboration across partner agencies with local, state, tribal, territorial, and insular area partners. 

HUD’s Office of Disaster Management and National Security serves as the National Coordinator for 

the Housing RSF and will coordinate efforts to implement the mission. The National Coordinator 

will further designate a Field Coordinator responsible for ensuring that the Housing RSF mission is 

implemented in the field. 

Primary Agencies 

Primary agencies for the Housing RSF are DHS/FEMA, USDA, the Department of Justice, and 

HUD. Primary Agencies are designated based on relevant authorities, roles, resources, or capabilities 

related to planning, preparedness, mitigation, or recovery support. As Primary Agencies, they are 

responsible for identifying and coordinating Federal programs and capabilities to support housing 

recovery within an affected state or jurisdiction. This includes participating in or coordinating 

interagency assessments or support teams as needed and providing technical assistance and 

information required to help communities identify housing recovery needs and establish priorities. 

Supporting Agencies 

Supporting Federal agencies have specific capabilities or resources that assist the Primary Agencies 

in executing the Housing mission. Agencies identify both disaster-related and regular programs with 

the responsibility or technical capability to support local or state efforts to the Housing RSF Mission. 

These agencies provide assistance consistent with their authorities when requested by the Housing 

RSF National Coordinator. 
Recovery Federal Interagency Operational Plan

F-10

Non-Federal Partners 

Non-Federal partners include other governmental partners (local, state, tribal, territorial, insular 

area), nongovernmental organizations, and private sector entities that work on housing and 

community development issues. Non-Federal entities are critical partners for this RSF and include 

sector-specific associations and organizations with missions associated with the Housing RSF. These 

may include, but are not limited to, community-based organizations, voluntary organizations, and 

nongovernmental organizations that provide technical assistance or financial support to local, state, 

tribal, territorial, and insular area communities to support planning process, capacity building, city or 

county management, and planning for and development of permanent housing. Nongovernmental 

organizations and private sector partners bring a wealth of perspectives and resources to support 

community recovery, and they can assist the Housing RSF with pre- and post-disaster identification 

of resources and the development of recovery tools. Private sector partners may include owners, 

agents, sponsors, and mortgagees of rental properties and mortgagees and mortgagors of singlefamily homes. 

Delivery of Core Recovery Capability 

Capability and Outcomes 

The core recovery capability for Housing is the ability to implement long-term, permanent housing 

solutions that effectively support the needs of the community and contribute to its sustainability and 

resilience. Departments and agencies with expertise in long-term housing solutions work through this 

RSF and in conjunction with State-led Disaster Housing Task Forces or other housing coordinating 

groups at the local, state, tribal, territorial, and insular area government levels to: 

 Coordinate and deliver housing resources that address local, state, and tribal disaster recovery 

housing needs; 

 Integrate planning for current and post-disaster requirements into the organizations at the local 

and state level that perform community planning and building code administration; 

 Share research results related to the disaster recovery housing area; 

 Share knowledge and expertise to address post-disaster housing needs and issues; 

 Facilitate pre- and post-disaster interaction and problem solving among Federal agencies and 

stakeholders that focuses on reconstructing permanent housing, including affordable and 

accessible housing that incorporates resilience, sustainability, and mitigation measures; and 

 Provide technical assistance to local, state, tribal, territorial, and insular area authorities that 

facilitates timely construction of housing that complies with local, state, tribal, territorial, insular 

area, and national model building codes, including accessibility standards. 

Scalability 

Support provided under the Housing RSF is scalable based on the type and magnitude of the disaster 

and local, state, tribal, territorial, and insular area capabilities. Figures F-1 and F-2 provide an 

overview of recovery activities to support a mid-scale disaster versus those required to support a 

larger scale or catastrophic disaster. In a mid-scale disaster, field staff from RSF partner 

organizations would address issues within their existing authorities and programs. For all disasters 

supported by the Housing RSF, RSF partners will consult on assessments of the situation, including 

any unmet needs, and coordinate programs that may be used to address those needs. In a large-scale 

catastrophic disaster, there would be full-scale activation of the Housing RSF (virtually all RSF 

partners) to support local, state, tribal, territorial, and insular area efforts, with programs potentially 
Recovery Federal Interagency Operational Plan 

F-11

available to support long-term housing recovery depending on existing or new funding and related 

authorities. This would also include deployment of housing experts from Housing RSF partners to 

help support recovery efforts. Depending on the magnitude of the incident, long-term housing 

recovery may take from five to ten years, or more. In these catastrophic circumstances, there may be 

additional supplemental funding to address unmet needs and support housing and community 

development. 

Figure F-1: Scalability for Recovery—Mid-scale Disaster 

Figure F-2: Scalability for Recovery—Large-scale or Catastrophic Disaster 
Recovery Federal Interagency Operational Plan

F-12

Delivery of Recovery Support 

The Housing RSF will provide the tools, training, and technical assistance necessary to help local, 

state, tribal, territorial, and insular area governments address long-term housing challenges and 

implement permanent housing options consistent with housing needs across impacted communities. 

Support will be provided based on the areas with the greatest impacts to housing infrastructure and 

related housing support services. In particular, the Housing RSF will promote the development of 

sustainable and accessible mixed-income communities with a range of affordable housing options 

that maximize return of displaced households regardless of income or functional needs. 

Housing recovery strategies should include links to employment, services, and transportation, which 

are critical to the sustainability and inclusiveness of post-disaster communities. This, coupled with a 

range of housing options and fair housing principles, will provide a platform for improved quality of 

life and a stronger local housing market across the whole community. While household preferences 

may not align in all cases with the location and type of these options, the Housing RSF will promote 

processes that connect these household preferences with housing strategies to the extent feasible. In 

situations where there are vacancies in existing Federally assisted housing and displaced individuals 

are eligible for these units under statutory or other requirements, Housing RSF partners will also 

work with local, state, tribal, territorial, and insular area governments to make these resources 

available. 

The Housing RSF will further assist local, state, tribal, territorial, and insular area governments to 

manage expectations and develop realistic permanent housing options consistent with the above 

principles that are in line with and linked to existing long-term community plans and processes. 

Across all efforts, the Housing RSF will actively support local, state, tribal, territorial, and insular 

area governments in their efforts to expedite development of permanent housing options within 

existing statutory and regulatory authorities. 

At the Federal level, the Housing RSF, when activated, will work through the FDRC to coordinate 

efforts of the Economic, H&SS, and Infrastructure Systems RSFs that enhance housing recovery 

strategies. 

Pre-Disaster Planning 

Communities make a wide range of land use, building code, transportation, and other development 

decisions every day that affect disaster resilience and sustainability of their housing stock. Creating 

resilient, sustainable housing means embracing a long-term perspective and risk awareness as part of 

ongoing community development and planning. Questions should be raised about whether homes 

should be built/rebuilt in a floodplain (or other high risk locations) or if building codes should be 

strengthened to reduce vulnerability to wildfires, earthquakes, or other natural hazards. Doing this 

effectively will allow communities to better mitigate their current and future risks, diversify their 

economic base, and improve their overall security through ongoing development activities. 

Incorporating resilience and sustainability into communities, includes both understanding and acting 

on risks and recognizing community vulnerabilities, and addressing these as part of community 

planning and development activities. 

Understand and Act on Risks 

A comprehensive risk assessment enables communities to pinpoint vulnerabilities and identify 

actions that improve housing resilience and sustainability. While approaches vary, the four basic 

components of a risk assessment are (1) identify hazards, (2) profile hazard events, (3) inventory 

assets, and (4) estimate losses. This process measures the potential loss of life, personal injury, 

economic injury, and property damage resulting from potential hazards by assessing the vulnerability 
Recovery Federal Interagency Operational Plan 

F-13

of people, buildings, and infrastructure. While many data sources and tools are available at various 

levels of government, academia, and the private sector, several tools that communities use to conduct 

multi-hazard risk assessments are provided online at http://www.fema.gov.

Figure F-3: Recognizing Community Vulnerabilities that Affect Housing 

Recognize Community Vulnerabilities 

As part of a risk assessment, many underscore the importance of taking a more holistic approach, 

describing vulnerabilities as the intersection between the natural environment, social systems, and the 

built environment (see Figure F-3). This is especially true in terms of housing, where the choice of 

where to live is directly tied to the quality and availability of schools for children, access to health 

care, availability of good paying jobs, commuting time, the type of neighborhoods, access to goods 

and services (e.g., grocery stores, pharmacies, clothing stores, restaurants, entertainment), access to 

social services and places of worship, and other choices that form the fabric of people’s lives and 

community. 

 Natural Environment. The most obvious factor contributing to community vulnerability is 

location or proximity to hazard-prone areas, such as coasts, floodplains, seismic zones, or 

potential contamination sites. The characteristics of the incident (magnitude, duration, frequency, 

impact, and rapidity of onset) define the physical vulnerabilities of places. Considerable research 

has focused on the delineation and probability of physical exposure using a combination of 

statistical and GIS-based modeling approaches. Plume exposure models for hazardous 

contaminants, storm surge models, numerically based hurricane wind forecasting, and 

probabilistic as well as deterministic seismic risk approaches also represent advances in 

understanding vulnerability and likely exposure. 

 Built Environment. The vulnerability of the built environment is also related to location and 

proximity to the source of the hazard. Poorly constructed or maintained buildings, inadequately 

maintained public infrastructure, commercial and industrial development, and certain types of 

housing stock all increase the vulnerability of the built environment in communities. The density 

of the built environment is another contributing factor, as there is greater exposure and potential 

for damage. Public infrastructure and lifelines are especially critical as the loss of these assets 

may place significant financial burden on those that lack the resources to rebuild. Equally 

important is the economic health of the community. Communities with a diversified economy are 

more resilient. 
Recovery Federal Interagency Operational Plan

F-14

 Social Systems. Some demographic and social characteristics make communities more

vulnerable than others. Key factors include age, gender, race, acute medical needs,

socioeconomic status, individuals with disabilities and other access or functional needs, persons

with LEP, immigrants, and seasonal tourists. The social vulnerability of communities can be tied

to inequalities, which affect access to resources and information, the ability to absorb the impacts

of hazards and disasters without governmental interventions, and housing choices and location.

Effectively Communicate Risk 

Effective risk communication can help reduce public misunderstanding of risk and address deeprooted denial that many do not want to believe that their community will experience a disaster. Social 

science tools and resources can help communities define and overcome existing barriers to 

effectively communicate and manage risk. Examples include products such as the “Risk Behavior 

and Risk Communication: Synthesis and Expert Interviews Report,” which is a comprehensive 

literature review and compendium of expert advice, identifying key risk communication issues and 

recommendations for practitioners based on years of disaster recovery research.14

Support that Housing RSF Partners Can Provide 

Housing RSF member agencies should participate in pre- and post-disaster planning activities with 

local, state, tribal, and territorial governments. This can be done in coordination with State-led, 

regional, or local Disaster Housing Task Forces. Activities will focus on information sharing, 

technical assistance, and coordination across partners. 

 Information. Housing RSF agencies will develop housing recovery resource materials for local,

state, and Federal partners. They will educate, and share this information with, local, state, tribal,

territorial, and Federal partners. To assist with pre- and post-disaster planning activities, the

Housing RSF will share information on available Federal recovery assistance (e.g., SBA disaster

loan programs and USDA Rural Development Disaster Assistance services) and that which may

become available (e.g., HUD CDBG Disaster Recovery grants). Information on the role of

insurance, including the National Flood Insurance Program, may also be made available.

 Technical Assistance. Housing RSF agencies will partner with local, state, tribal, territorial, and

insular area entities to identify strategies and options that address a broad range of permanent

housing issues, such as those dealing with planning, zoning, design, logistics, codes, and

financing. Primary Agencies and Supporting Organizations will provide technical assistance on

permanent housing strategies including affordable housing that incorporates the principles of

accessibility, sustainability, inclusiveness, resilience, and mitigation.

 Coordination. The Housing RSF Coordinating Agency will link Housing RSF partner agencies

to the Disaster Housing Task Force or other disaster housing coordinating group at the local,

state, tribal, territorial, and insular area government levels. Coordination should include joint

state level meetings, after-action reviews, identification of recovery support gaps ahead of

disasters, how RSF partners can fill housing recovery gaps post-disaster, and other initiatives

aimed at improving the effectiveness of permanent housing recovery efforts. The Housing RSF

will encourage and support planning for post-disaster permanent housing requirements by the

local, state, tribal, territorial, and insular area entities that lead local community planning and

development and address housing needs, land use, and building code administration.

14 The report can be found at http://www.csc.noaa.gov/digitalcoast/
Recovery Federal Interagency Operational Plan 

F-15

Pre-disaster coordination activities will clarify what support local, state, tribal, territorial, and insular 

area entities need from the Housing RSF post-disaster, define how this support will be functionally 

linked to local, state, tribal, territorial, and insular area government efforts, and establish information 

sharing and communication protocols. This coordination and planning should yield options for 

providing or developing permanent housing across local, state, tribal, territorial, insular area, and 

Federal programs, and other housing and construction industry groups. 

Post-disaster Activities 

After a disaster, the Housing RSF may be activated to provide a range of coordination and technical 

assistance in support of decisions by local, state, tribal, and territorial, governments consistent with 

the mission and pre-disaster planning efforts of the RSF. The steps, parameters, and core services of 

Housing RSF activation post-disaster are outlined in this section. 

In many cases interim housing efforts conducted under the NRF will still be underway, as the 

Housing RSF convenes and starts to work with local, state, tribal, territorial, and insular area partners 

to help to identify long-term housing needs (see Figure F-4). 

Figure F-4: Disaster Response and Recovery 

The Housing RSF will support the overall timeline for Federal support, which is discussed in the 

FIOP (see Figure F-5). 
Recovery Federal Interagency Operational Plan

F-16

Figure F-5: FDRC-RSF Timeline Example 

Housing RSF post-disaster activities include the following five steps: (1) convene RSF, (2) identify 

priorities and conduct assessment (as needed), (3) coordinate with partners, (4) identify and provide, 

as applicable, available resources, and (5) provide technical assistance. These are discussed in more 

detail below. 

Activating the Housing RSF

The FDRC, in consultation with the National Housing RSF Coordinator, will determine if the 

Housing RSF should be activated post disaster. This would typically be done following large-scale 

and catastrophic disasters that result in Presidential Disaster Declarations calling for IA and 

activation of ESF #6 (Mass Care, Emergency Assistance, Temporary Housing, and Human Services) 

to address displacement due to damaged or destroyed housing. Activation of the Housing RSF may 

also be appropriate for some mid-scale disasters. 

The nature and scale of the Housing RSF activation would depend on the housing recovery needs 

identified in collaboration with Housing RSF partners and local, state, tribal, and territorial 

governments. The Housing RSF should not be activated before there is sufficient information to 

identify preliminary housing recovery needs and potential service gaps. The time required for this 

information to become readily available will vary by disaster. The Housing RSF is unique in that 

short-term and intermediate recovery are both the responsibility of ESF #6 (Mass Care, Emergency 

Assistance, Temporary Housing, and Human Services). The RSF is responsible for coordinating 

long-term and permanent housing challenges with ESF #6 partners. 

After activation, the National Housing RSF Coordinator will convene a National Housing RSF 

kickoff meeting with all RSF partners and designate a Field Coordinator. In support, the Housing 

RSF Field Coordinator will reach out to state level Housing RSF agencies and convene an initial 

meeting between Housing RSF agencies and the housing recovery Coordinating Agency established 

by the state or territory. 
Recovery Federal Interagency Operational Plan 

F-17

The primary tasks of the Housing RSF are to collaborate with and work under the umbrella of the 

FDRC to support state or territorial level housing task forces established to lead community-based 

housing recovery efforts and to coordinate Federal housing recovery efforts. It is imperative that all 

Housing RSF activities be aligned with local, state, tribal, and territorial government requests for 

assistance as well as support efforts to implement housing recovery strategies across these divisions 

of government. 

This coordination will be accomplished through the following activities: 

 Housing RSF participation in state or territorial level housing task force meetings; 

 Collaboration to identify priorities and gaps to support long-term housing recovery; 

 Collaboration on defining Housing RSF activities to support local, state, tribal, and territorial 

governments in implementing housing recovery options; and 

 Joint planning, technical assistance, and training efforts. 

In addition to meetings with state and territorial housing recovery task forces, regular RSF meetings 

will be used to initiate and facilitate internal information sharing and problem solving regarding 

member agencies’ ability to support the specific recovery needs of impacted communities.

The Housing RSF will work with state and territorial recovery task forces to identify where available 

projects and programs do not meet recovery-related needs. When unmet needs are identified, and 

Housing RSF agencies are unable to address gaps, the Housing RSF Field Coordinator will seek 

resolution through the FDRC and request assistance from the National RSF Coordinator. 

For most disasters, coordination and services under the Housing RSF can be handled remotely across 

local, state, tribal, territorial, and Federal partners. However, in instances where the scale 

overwhelms local, state, tribal and territorial resources, a combination of on-site and remote activities 

may be necessary. The level and location of activation will be determined by the National Housing 

RSF in consultation with the FDRC and local, state, tribal, territorial and insular area partners. 

Execution of an MA with the Housing RSF coordinating agency, primary agencies, or supporting 

organizations would depend on the extent to which post-disaster roles and responsibilities require 

staff augmentation or funding for travel, per diem and overtime. The need for an MA from FEMA 

across coordinating, primary, or support Federal agencies for either activation type could be triggered 

by any one of the following: 

 The extent to which Housing RSF partners are unable to provide assistance under normal agency 

operations; 

 The expectation that an engagement will be long-term or protracted and require extensive staff 

time and involvement; 

 The location of the FEMA JFO and/or highly impacted areas creates the need for travel funding; 

and 

 The scale of the disaster necessitates long-term on-site engagement of Federal staff that triggers 

per diem and other support needs (e.g., equipment, rental cars). 

MA functions will be defined through consultation between the Housing RSF Coordinating Agency 

and Primary Agencies or Supporting Organizations and draw on requests for support articulated by 

local, state, tribal, territorial, and insular area governments during mission scoping processes. 

Budgets will be separately negotiated by each agency with FEMA. 
Recovery Federal Interagency Operational Plan

F-18

Critical Tasks

Identify Priorities and Conduct Assessments 

The Housing RSF will support the State-led Disaster Housing Task Force or other housing 

coordinating groups at the local, state, tribal, territorial, and insular area government levels to discuss 

housing impacts and housing recovery issues following activation of the Housing RSF. These 

discussions, should also include stakeholders (including those representing homeowners and renters), 

housing providers, and housing industry groups (developers, funders), as appropriate that can provide 

information on impacts and needs to the hardest hit areas. Information will include, but is not limited 

to, current information on the scale of housing impacts, highly impacted communities in the state, 

capacity of highly impacted areas to implement housing recovery efforts, extent to which local, state, 

tribal, territorial and insular area resources are able to manage these impacts over the short- and longterm, and resource gaps that need to be addressed. 

After activation, HUD will request information across all RSF partners on impacts to programs and 

resources. FEMA will provide the Housing RSF with available data regarding initial housing impacts 

and provision of short-term and interim housing under the NRF. This would include a summary and 

ongoing updates on Preliminary Damage Assessments, IA applications, Direct Housing Operations, 

and provision of PA. 

MSA and RSS 

The Housing RSF will contribute to an MSA provided to the FDRC that summarizes (1) existing data 

on housing impacts for that specific disaster; (2) local, state, tribal, territorial, and insular area initial 

priorities and needs related to long-term housing recovery; and (3) recommendations for how the 

housing RSF can help support development of the RSS. 

 Existing Data on Housing Impacts. The Housing RSF will request existing data on housing 

impacts within the impacted area from all RSF partner organizations. This will include the shortterm and interim housing efforts led by FEMA, Disaster Loans provided by the SBA, impacts to 

Federally assisted housing supported by the USDA, HUD, VA, and others, as well as impacts to 

housing-related support services provided by nongovernmental organizations and other housing 

partners. Information on impacts to housing and displaced families will become more accurate 

and evolve over time as recovery efforts unfold. This initial assessment will be used as a point-intime snapshot to help inform long-term recovery efforts and will be updated as needed. 

 Identifying Initial Priorities for Long-Term Housing Recovery. The Housing RSF will work 

with local, state, tribal, territorial, and insular area partners to help identify potential long-term 

recovery issues based on the RSF objectives to (1) strengthen the housing market, (2) ensure 

adequate affordable rental housing, (3) use housing to improve quality of life (including access to 

pet-friendly housing), (4) build sustainable inclusive communities (including accessible housing 

for individuals with disabilities and others with access and functional needs), and (5) increase the 

use of mitigation measures to improve resilience of housing stock. Local, state, tribal, territorial, 

and insular area priorities for long-term housing recovery will evolve over time. This initial 

assessment will help us link Federal support to key local, state, tribal, territorial, and insular area 

needs and provide recommendations on how the Housing RSF can best support local and state 

housing recovery. The Housing RSF will monitor and update local, state, tribal, territorial, and 

insular area priorities as recovery evolves. Depending on the scope and scale of the disaster, 

priorities may be identified through meetings with housing partners, focus groups with key 

housing partners, or other means. 
Recovery Federal Interagency Operational Plan 

F-19

 Recommendations for Housing RSF Support. The Housing RSF will also make 

recommendations for follow-on activities. This could include a follow-on MA to support 

development of a Federal RSS or a recommendation for deactivation, if appropriate. Based on 

local, state, tribal, territorial, and insular area priorities, recommendations for a follow-on MA 

may include short-term deployment of a small team of housing and community experts to support 

local, state, tribal, territorial, and insular area housing recovery efforts and may outline tasks or 

deliverables based on Housing RSF capabilities. 

Housing RSF Capabilities

 Working with local, state, tribal, territorial, and insular area partners to further define long-term 

housing priorities and needs.

 Conducting market assessments that can provide a snapshot of the housing market and also be 

used to track recovery of housing markets and provide information to developers.

 Developing strategies to support local, state, tribal, territorial, and insular area priorities under the 

Housing RSF objectives to (1) strengthen the housing market, (2) ensure adequate affordable rental 

housing, (3) use housing to improve quality of life, (4) build sustainable inclusive communities, and 

(5) increase the use of mitigation measures to improve resilience of housing stock.

 Applying existing programs and resources, including available funding sources, to address long 

term housing needs and priorities.

 Establishing common goals across housing partners to support local, state, tribal, territorial, and 

insular area housing recovery.

 Sharing information across partners with expertise and capabilities to support permanent housing.

 Providing technical assistance.

 Supporting grantees as they develop plans for long term recovery, if supplemental is provided.

Support for Highly Impacted Communities 

If the MSA identified highly impacted communities that require on-site coordination and technical 

assistance, the Housing RSF would collaborate with local, state, tribal, territorial, and insular area 

officials to convene stakeholder meetings in these areas to align Housing RSF technical assistance 

and available resources with community recovery needs. This would be closely coordinated with the 

State-led Disaster Housing Task Force (or other groups designated by the state) and FEMA. If 

widespread areas are impacted, meetings may be convened at the state or regional level based on 

available resources. 

FEMA will provide updates as additional data is received from new or ongoing damage assessment 

processes and IA applicants over the term of the Housing RSF activation to inform emerging housing 

needs. All information would be provided in summary form but should be organized by local 

governments impacted by the disaster or by some other meaningful cluster. Individual level data is 

not necessary unless long-term housing market or Unmet Needs Assessments are requested, which 

will be described later in this section. 

Discussion of Market and Unmet Needs Assessments 

For large-scale disasters that produce catastrophic damages across numerous housing markets, the 

Housing RSF may also provide quantitative assessments. These assessments are long-term products 

ranging from snapshots of the housing market, to comprehensive market assessments, to an 

assessment of unmet needs. Unmet Needs Assessments require additional data regarding damages, 

SBA loans, insurance, and IA claims that are frequently not sufficient until months after the disaster. 
Recovery Federal Interagency Operational Plan

F-20

These assessments are most relevant to longterm planning efforts at the state and territorial 

level where they can be used to plan activities 

starting 12 months or more post-disaster. 

Market-at-a-Glance Reports 

Field economists under the Housing RSF can 

prepare a baseline Market-at-a-Glance report 

summarizing economic, demographic, and 

housing market conditions in the affected area. 

The baseline estimates portray conditions and 

trends in the area leading up to the incident and 

are generally produced in two to three weeks, 

depending on the size and complexity of the 

disaster area. Market-at-a-Glance reports are 

more complete and accurate in metropolitan 

areas and larger counties where data are more 

readily available. Economists prepare updated 

Market-at-a-Glance reports each quarter 

following the baseline report to track recovery 

of the local economy and housing market. The 

report provides a concise and easily accessible 

tool for local planners and potential developers 

to track employment, population, and housing 

inventory change to determine the area’s need 

for specific quantities and types, and sales and 

rental housing during the recovery period. 

Comprehensive Housing Market Analysis 

Reports 

Following a field investigation to the affected 

area, field economists can prepare a baseline 

Comprehensive Housing Market Analysis report 

that provides an in-depth view of the area 

economy and housing market as of the 

beginning of the month in which the incident 

occurred. The report includes current counts and 

estimates of employment, population, 

households, and housing inventory and provides 

recent trends in these variables leading into the 

incident. The economists develop a factual 

framework based on local data developed during 

the field investigation, as well as data from 

regional and national sources. The baseline 

Comprehensive Housing Market Analysis is 

prepared over a four to six month period of 

analysis, writing, and editing before publication. 

When HUD and FEMA agree that the area has 

reached a sufficient level of recovery, field 
Recovery Federal Interagency Operational Plan 

F-21

economists prepare an updated (post-recovery) Comprehensive Housing Market Analysis report. The 

updated report provides the current counts and estimates of the variables included in the baseline 

report, three-year forecasts of the major variables, and quantitative and qualitative demand forecasts 

for sales and rental housing. The factual information, findings, and conclusions of the baseline and 

updated reports are useful to builders, mortgagees, and others concerned with local housing market 

conditions and trends. 

Unmet Needs Assessments 

In contrast, unmet housing needs assessments available under the Housing RSF can provide state and 

county level unmet housing needs for both urban and rural areas. An Unmet Needs Assessment can 

be provided in table format depicting key data or, if needed, a more in-depth detailed narrative report 

can be produced. The Unmet Needs Assessment is based on registration information from disaster 

survivors (and provided to HUD by FEMA and the SBA) as part of the assistance process and 

considers the availability of insurance, loans, and Federal assistance. The difference between 

resources available to disaster survivors and the cost to repair the damaged housing is used to 

calculate the unmet housing need. Unmet Needs Assessments are used to inform the process of 

Congressional post-disaster supplemental appropriations to the CDBG program, which may include 

funding for unmet infrastructure and business losses. They may also contribute to local, state, tribal, 

territorial and insular area decisions. HUD uses this assessment to allocate supplemental CDBG 

appropriations among affected jurisdictions. The Unmet Needs Assessment summary tables can be 

produced by the Housing RSF approximately six to eight months following a disaster, depending on 

the availability of disaster assistance data, but data estimates for scoping purposes may be available 

sooner.15 A more detailed narrative report can be provided in 12–16 months, if needed. 

Coordination with Partners 

Maintaining ongoing communication and information sharing with relevant local, state, tribal, 

territorial, and insular area governments, as well as the private sector, nonprofit, and communitybased partners is a crucial element of all Housing RSF actions. In keeping with the principles of the 

NDRF, this RSF is designed to support the local communities in charge of the recovery process. As 

such, any information produced or gathered by this RSF will be shared with local, state, tribal, 

territorial, and insular area governments and private sector, nonprofit, and community-based partners 

to the greatest extent possible under the laws. Once activated, the coordinating and primary agency 

Federal partners of the Housing RSF will designate a point of contact based either locally at a field 

office or remotely to handle any information requests that may arise during recovery. 

Based on the scope and magnitude of the disaster, RSF members will host regular in-person meetings 

or conference calls with identified stakeholders during the post-disaster recovery process. As 

required, these meetings will typically include representatives from local, state, tribal, territorial, 

insular area, and Federal Government departments and agencies, as well as local, state, tribal, 

territorial, and insular area housing and community development partners with an interest in the 

impacted area. 

These meetings will serve as a forum for discussing next steps in the courses of action taken by the 

Housing RSF, which is described below. Additionally, the meetings will allow concerns, questions, 

and comments raised by infrastructure stakeholders to be discussed and resolved in a transparent 

fashion. 

 

15 The analysis and tables can be produced within 60 days of the availability of data. Complete Disaster Assistance 

data from FEMA and SBA is typically available 30–90 days following closure of the registration process. 
Recovery Federal Interagency Operational Plan

F-22

The following table describes key national- and state-coordination structures and groups to support 

long-term housing recovery. 

Table F-2: Key National and State Coordination Structures and Groups 

Key Coordination Groups Coordination Focus And Housing RSFs Role

State-led Disaster Housing 

Task Force or other statelevel recovery group focused 

on housing

 A platform for ensuring the state’s objectives and paths for post-disaster 

housing recovery are understood and integrated into the Federal

recovery effort.

 FEMA IA and Housing RSF member agencies, such as HUD and 

USDA, will participate in the State-led Disaster Housing Task Force. 

Housing RSF agencies will contribute to the facilitation of interim and 

long-term housing assistance.

 If there is not an active Task Force, the Housing RSF will coordinate 

with other state designee(s) for recovery, (e.g., a State Recovery Task 

Force, IA Officer, or a Recovery Commission).

ESF #6 (Mass Care, 

Emergency Assistance, 

Temporary Housing, and 

Human Services)

 An established platform for coordinating Federal assistance in mass 

care, disaster shelters, and emergency short-term housing.

 The Housing RSF will coordinate information sharing with agencies 

active in ESF #6 (Mass Care, Emergency Assistance, Temporary 

Housing, and Human Services) and through the State-led Disaster 

Housing Task Force with state-level stakeholders.

Mission Planning Team

 A FEMA-led team of interim housing subject matter experts that 

determines the need for and scope of a FEMA-manufactured housing 

mission and identifies appropriate interim housing solutions. The 

Mission Planning Team is a short-lived entity that disbands once the 

housing plan is completed and Direct Housing Operation 

implementation begins.

 Housing RSF staff conducting on-site assessment may leverage or join 

the Mission Planning Team to coordinate and minimize assessment 

time, and burdens on the local communities.

National Disaster Housing 

Task Force

 A platform for Federal agencies with authorities, expertise, and 

resources for disaster housing to engage and work with state, private, 

and nonprofit-sector partners to improve assistance strategies and 

delivery operations.

 Housing RSF agencies such as HUD, USDA, and VA participate in the 

National Housing Task Force and help set priorities and review 

guidance.

 The Housing RSF will work with the National Housing Task Force to 

increase focus on permanent housing and provide lessons learned from 

communities.

Identify Available Resources 

The Housing RSF will catalogue and share potential housing recovery resources across Housing RSF 

partners for addressing unmet housing needs and provide this to local, state, tribal, territorial, and 

insular area governments. Core Housing RSF resources and services that may be available to address 

needs and support housing recovery efforts include the following: 

 Affordable housing resources: Work with Federal housing partners, housing nongovernmental 

organizations, and other housing industry groups to input vacancies into existing FEMA or state 
Recovery Federal Interagency Operational Plan 

F-23

housing data bases for use by FEMA, state or local case workers, and Long-Term Recovery 

Committees to house low-income households. Assess impacts to Federally-assisted housing 

stock, determine extent of displacement, and reconnect displaced households to pre-disaster 

subsidy programs or other assistance if available. Provide assistance to help local and state 

housing partners return to normal operations; this may include helping to address issues raised by 

Public Housing Authorities, multifamily property owners/managers, or housing grantees. 

 Information on available funding: Catalogue and share potential housing recovery resources 

across Housing RSF partners for addressing unmet housing needs. Identify Federal programs that 

can be leveraged to fund long-term housing solutions and sustain the local capacities needed to 

implement and manage the recovery effort. 

 Mortgage relief: Grant moratoriums on foreclosures of Federally-insured loans and recommend 

that loan servicers take such actions as special forbearances, loan modifications, refinancing, and 

waivers of late charges. 

 Mortgage insurance: Work with lenders to make mortgage insurance available for rebuilding or 

buying homes. 

 Re-allocation of funding for disaster relief: Grant states and communities the ability to 

reallocate certain existing Federal resources for housing recovery efforts where allowed by 

statute. 

 Fair housing: Ensure equal access to housing regardless of race, religion, sex, national origin, 

disability, and familial status. 

The initial state-level stakeholder meeting is used to provide information for the mission scoping 

report. As follow-on to that effort, the on-site housing recovery reviews across local stakeholders, 

evolving FEMA data from ESF #6 (Mass Care, Emergency Assistance, Temporary Housing, and 

Human Services), state level understandings of macro needs, and available housing recovery 

resources will form the basis for the Housing RSF component of the RSS Report. The Housing RSF 

will submit the RSS to the FDRC after identification of needs and resources is completed. 

Provide Technical Assistance 

The Housing RSF will coordinate provision of technical assistance and training to local, state, tribal, 

territorial, and insular area governments based on critical issues, such as those listed below, identified 

by partners during state level and on-site reviews: 

 Mixed-finance approaches to housing development and other community development finance 

tools; 

 Models for creating sustainable, accessible, inclusive, and mixed-income communities; 

 Mortgage underwriting resources for developing single family homeownership and multi-family 

rental units; 

 Linking FEMA, local, state, tribal, territorial, and insular area housing recovery planning efforts 

to existing Federal or community supported planning processes in impacted communities (e.g., 

consolidated and annual plans and zoning and land-use plans); and 

 Other capacities needed by local, state, territorial, and tribal partners in the public, private, and 

nonprofit sectors to continue planning, implementing, managing, and sustaining their housing 

recovery effort. 
Recovery Federal Interagency Operational Plan

F-24

Functional Roles and Responsibilities 

Recovery Authority and Funding 

The NDRF is not intended to increase overall Federal agency activity in support of recovery planning 

during steady state. Federal agencies with NDRF roles, responsibilities, and recovery programs will 

fund the costs of these activities out of their base budgets and staffing levels, which are subject to 

available resources, except for those expenses authorized for reimbursement under the Stafford Act 

or otherwise provided by law. This may include other mechanisms for reimbursement (e.g., Economy 

Act), supplemental appropriations, and/or increased direct appropriations. Existing Federal programs 

can be leveraged to support recovery operations only to the extent of the authority and appropriations 

for those programs. Nothing in the NDRF alters or impedes the ability of local, state, tribal, 

territorial, or Federal departments and agencies to carry out their specific authorities or perform their 

responsibilities under all applicable laws, executive orders, and directives. 

Roles of Housing RSF Partners

The following tables describes the roles of the Federal agencies and national nonprofit organizations 

that comprise the Housing RSF. 
Recovery Federal Interagency Operational Plan 

F-25

Table F-3: RSF Coordinating Agency Functions 

Coordinating Agency Functions

Department of 

Housing and Urban 

Development

 Represents Housing RSF at the national level and designates a Field 

Coordinator to ensure coordination in support of local and state efforts.

 Helps identify long-term housing priorities and conducts housing 

assessments with local, state, tribal, territorial and insular area 

governments, and Federal partners as needed.

 Provides technical assistance to support local, state, tribal, territorial, and 

insular area recovery planning and post-disaster activities for long-term 

housing recovery, including strategies to strengthen the housing market, 

ensure adequate affordable rental housing, use housing to improve quality 

of life, build sustainable inclusive communities, and increase the use of 

mitigation measures.

 Coordinates and supports local and state housing recovery efforts, with a 

focus on long-term housing recovery, with Primary Agencies and 

Supporting Organizations.

 Establishes communication and supports information sharing for housing 

partners.

 Coordinates and leverages applicable Federal resources for long-term 

housing recovery.

 Develops and implements a plan to transition from Federal Housing support 

back to steady state programs.

 HUD also has technical and existing programs that, in some cases, can 

help support housing and community recovery. Some examples are 

provided below:

 States and local communities that have received annual formula funding 

through the CDBG and/or the Home Investment Partnerships Program 

(HOME) programs may amend their action plans to re-allocate existing 

funds toward recovery activities. Following disasters with significant 

unmet needs, Congress may appropriate additional funding for the CDBG 

program dedicated specifically for disaster recovery purposes.

 Following a Presidential Major Disaster Declaration, relief options are 

made available to Federal Housing Administration (FHA) mortgagors, 

including a 90-day moratorium on foreclosures and forbearance on 

foreclosures of FHA-insured home mortgages. In addition, under the 

National Housing Act, HUD's Section 203(h) program is available and 

provides 100 percent financing through FHA-approved lenders, and 

HUD’s Section 203(k) loan program can be utilized by those who have 

lost their homes to finance the purchase or refinance of a house along 

with its repair through a single mortgage. These tools can be a stabilizing 

factor to assist families and communities in their recovery, and are 

available up to 12 months after the Presidential Declaration.
Recovery Federal Interagency Operational Plan

F-26

Table F–4: RSF Primary Agency Functions 

Primary Agency Functions

Department of 

Agriculture

 Provides technical assistance and identifies current housing programs that 

may be utilized for recovery, including determinations of eligibility, 

application processes, and project requirements.

 Provides economic and physical damage assessment on USDA financed 

housing infrastructure and programs.

 Leverages investments made by other local state, tribal, and territorial 

partners, Federal departments, and private entities.

 Supports RSF national and field level operations with subject matter 

expertise and staffing support, as appropriate.

 Executes agency mission during disaster recovery, supporting rural housing 

and farm labor housing assistance.

 Provides technical assistance in identifying animal housing alternatives and 

support services to accommodate people with animals, including household 

pets and service animals.

 Facilitates multiagency coordination of whole community animal mission 

recovery activities to support housing operations.

Department of Justice

 Jointly responsible, with HUD, for enforcing the Federal Fair Housing Act 

that prohibits discrimination in housing on the basis race, religion, sex, 

national origin, familial status, and disability. For example:

 Refusal to make a reasonable accommodations in rules, policies, 

practices, or services when such accommodations maybe necessary to 

afford a person with disability the equal opportunity to use and enjoy a 

dwelling; and

 Refusal to make reasonable accommodations to persons with disabilities 

and others with access and functional needs.

Department of 

Housing and Urban 

Development

 See Table F-3.

Federal Emergency 

Management Agency

 Provides financial and technical resources and expertise for both disaster 

housing and long-term community recovery assistance; derives its postdisaster coordination, authority and resources from the Stafford Act:

 FEMA IA Program;

 FEMA Mitigation Program;

 FEMA Long-Term Recovery (CPCB); and

 FEMA is the lead agency for the National Housing Task Force for 

coordinating post-disaster housing assistance.
Recovery Federal Interagency Operational Plan 

F-27

Table F-5: RSF Supporting Organization Functions 

Supporting 

Organization Functions

American Red Cross

 Serves as a key provider of mass care services and expertise in disaster 

sheltering, feeding, emergency supply distribution, and family reunification.

 Serves individuals and families with disaster-related needs through a 

casework process, which may include direct emergency assistance for 

replacement of essential items, counseling services, health-related services, 

and reunification or welfare information services.

 Conducts post-disaster assessment of housing damages.

 Facilitates, coordinates, and supports development of Long-Term Recovery 

Groups and/or Committees (LTRGs and/or LTRCs), addressing unmet 

needs of individuals and families, and referral to multi-agency volunteer and 

nonprofit recovery activities.

 Facilitates, coordinates and supports long-term housing transition strategy 

development based on current mass care sheltering status, concerns, and 

resources.

 Provides individual and family housing recovery counseling and advocacy 

services through casework program.

 Provides situational awareness of resources and activities of key community 

partner recovery activity and ongoing and forecasted housing needs. 

 Provides client information to assist transition from casework to case 

management programs.

Corporation for 

National and 

Community Service

 Provides case management and expertise in assisting disadvantaged 

communities as well as residents with access and functional needs, 

including those with disabilities.

 Manages AmeriCorps, a resource for skilled and experienced volunteers 

and staff that can assist recovery operations.

Department of 

Commerce

 Promotes job creation, economic growth, sustainable development, and 

improved business opportunities for American businesses.

 Promotes entrepreneurism and trade promotion policies that help America’s 

businesses and their communities prosper economically.

 Supports the engineering of resilient building design through the research 

and establishment of structural safety standards.

 Supports efficiencies in the housing market and RSF operations through the 

collection and availability of housing and household demographic data.

Department of Energy

 Ensures America’s security and prosperity by addressing its energy, 

environmental, and nuclear challenges through transformative science and 

technology solutions. This includes developing strategies for sustainable 

communities, including energy efficient housing.
Recovery Federal Interagency Operational Plan

F-28

Supporting 

Organization Functions

Department of Health 

and Human Services

 Provides technical assistance to support recovery planning and postdisaster activities for public health, health care, behavioral health, and social 

services infrastructure.

 Provides technical assistance regarding program eligibility, application 

processes, and project requirements for HHS programs as applicable under 

existing authorities.

 Provides assessment information regarding the consequences on the health 

and human services sectors in an affected community.

 Supports RSF national- and field-level operations with subject matter 

expertise and staffing support, as appropriate.

Department of 

Veterans Affairs 

 Provides expertise on financial and technical assistance programs designed 

to support veterans and their purchases of homes.

 Possesses an inventory of real estate owned properties that could be a 

potential housing resource post-disaster.

 Provides health and other supportive services to veterans.

Environmental 

Protection Agency

 Provides technical assistance on using environmentally sound and 

sustainable approaches in home building.

General Services 

Administration

 Provides facility space and other services to include coordinating the 

transfer / disposal of excess Federal property.

National Voluntary 

Organizations Active in 

Disaster

 Facilitates collaboration, coordination, and communication among member 

organizations assisting in disaster recovery, repair and rebuilding, volunteer 

labor management, mass care, demolition, and donations management.

 Provides guidance in sharing client information and promoting spiritual and 

emotional care.

Small Business 

Administration

 Provides loans for property damages to homeowners, renters, businesses 

of all sizes and private nonprofit organizations and EIDLs to eligible small 

businesses and private nonprofits.

 Supports RSF national- and field-level operations with small business 

expertise and staffing support, as appropriate.

U.S. Access Board  Serves in an advisory role on issues and regulations on emergency housing 

for people with disabilities and others with access and functional needs.

Local, State, Tribal, Territorial, Insular Area, Private Sector, and Nonprofit 

Partners 

Below is a list of local, state, tribal, territorial, and insular area government agencies, departments, or 

offices that may be critical for the Housing RSF to engage. These local, state, tribal, territorial, and 

insular area public sector partners hold authorities, expertise, and resources that make them 

indispensable to housing recovery. This list is not exhaustive. 
Recovery Federal Interagency Operational Plan 

F-29

Table F-6: Local, State, Tribal, Territorial and Insular Area Partners, Resources and Expertise 

Public Sector Partners Partners’ Resources and Expertise

Housing Finance 

Agency

State Housing Finance Agencies (HFAs) are state-chartered authorities 

established to help meet the affordable housing needs of the residents of 

their states. Using Housing Bonds, the Housing Credit, HOME, and other 

Federal/state resources, such as Housing Choice Vouchers and homeless 

assistance, HFAs administer a wide range of affordable housing and 

community development programs.

Public Housing 

Authorities

Public housing authorities assist residents in need with affordable housing 

and shelter without discrimination. They focus on the efficient and fair 

delivery of housing services. They are also key players in public housing 

plans and developments. Public housing authorities may directly provide 

housing or provide Housing Choice Vouchers for clients.

Building Departments

Building departments provide expertise in building codes and safe building 

practices. They are responsible for construction permitting and enforcement 

in their jurisdictions.

Planning and Zoning

Planning and Zoning departments are responsible for planning for long term 

development and the management of land use plans and zoning in the 

jurisdiction.

Public Works 

Departments

Public works departments manage and maintain community infrastructure.

Health and Social 

Services Departments

These departments coordinate recovery efforts with the H&SS RSF or 

equivalent.

Below is a list of key private sector and nonprofit partners outside of the existing RSF Primary 

Agencies and Supporting Organizations. The list is not exhaustive. Many of these partners also 

operate local, regional, or state offices, programs, or affiliates, or they know of such independent 

counterparts. Together, these partners represent a full range of expertise and financial, technical, 

material, and other resources necessary to housing and community planning and designing, repairs 

and reconstruction, financing, and development. 
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Table F-7: Private Sector and Nonprofit Partners, Resources, and Expertise 

Private and Nonprofit Partners Partners’ Resources and Expertise

American Institute of Architects

The AIA Disaster Assistance Program supports a nationwide 

network of Disaster Assistance Coordinators and architects who 

help communities prepare for, respond to, and recover from 

disasters.

American Planning Association

APA is an education organization of practicing planners, elected 

and appointed officials, planning commissioners, and interested 

citizens. It can serve as a resource on land use and community 

planning in an area impacted by disaster.

Association of State Floodplain 

Managers

The Association promotes policies and activities that mitigate 

current and future losses caused by flooding, and to protect the 

natural and beneficial functions of floodplains. It can serve as a 

resource on land use planning in an area prone to flooding.

Building and Construction 

Trades Council

The Council is a resource on housing workforce and development 

that represents organized labor in the construction/building 

industries.

Building Congresses at the state 

level, Building Trades 

Associations

Building Congresses at the state level typically serve as umbrella 

organizations that bring together a cross-section of the design and 

building industry stakeholders, such as architects, engineers, 

construction managers, general and sub-contractors, labor, 

suppliers, as well as developers, insurance and legal advisors, and 

lenders. Building Trades Associations represent contractor and 

construction companies involved in all phases of the building 

industries. There are also state chapters or counterparts.

Building Sciences Organizations

Nongovernmental organizations, such as the National Institute of 

Building Sciences, bring together government and private sector 

partners to promote the construction of safe, resilient, and 

affordable structures for housing. They can serve as a resource on 

design/repair of housing post-disaster.

Habitat for Humanity

An internationally recognized nonprofit, Habitat’s Disaster 

Response arm offers technical and organizational expertise in order 

to begin construction of transitional shelter and new housing, 

repairs, and reconstruction as soon as possible. It also educates 

the public on disaster risk reduction concepts for housing.

Insurance Institute for Business 

and Home Safety

The Insurance Institute for Business and Home Safety conducts 

research to make homes more resistant to a variety of disasters. 

They are technical resources on building practices and design.

International Code Council; 

National Fire Protection 

Association

International Code Council and National Fire Protection Association 

are development bodies of building codes and standards, such as 

the International Residential Codes and National Fire Codes. They 

are technical resources on building practices, designs, and code 

compliance.

Mennonite Disaster Services

These services provide housing repair and rebuilding consultancy 

and/or direct physical housing repairs and reconstruction 

assistance.
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Private and Nonprofit Partners Partners’ Resources and Expertise

Mortgage Bankers Association

Subject matter experts in the real estate financing industry, the 

Mortgage Bankers Association is a resource on lenders and lending 

practices and policies, with more than 3,000 member companies, 

including mortgage brokers and lenders such as mortgage 

companies, commercial banks, thrifts and life insurance companies.

National Apartment Association 

and National Multi Housing 

Council

Together, the two organizations advocate on behalf of multifamily 

housing owners, managers, developers, and suppliers. The 

National Apartment Association, in particular, represents more than 

50,000 multifamily housing companies nationwide. They provide 

expertise on the multifamily housing issues and stakeholders.

National Association of Home 

Builders and its state 

counterparts or chapters, 

Building Congress

With expertise on the latest building design, materials, products, 

services and technologies, they represent various types of home 

builders, from single to multifamily, site or system-built homes (e.g., 

panelized, modular).

National Association of Housing 

and Redevelopment Officials

With expertise in leading housing and community development, the 

National Association of Housing and Redevelopment Officials 

advocates for the provision of adequate and affordable housing for 

all Americans, particularly those with low and moderate incomes. 

Its members administer HUD programs, such as Public Housing, 

Section 8, CDBG, and HOME.

National Association of Realtors

Representing the real estate agent industry, the National 

Association of Realtors serves as a channel to connect local real 

estate agents who are knowledgeable of housing resources and 

trends, such as housing types, affordability, and availability, with 

the disaster-impacted and surrounding communities.

National Council of State 

Housing Agencies

Providing expertise on affordable housing issues and financing 

options, the Council represents the state HFAs—state-chartered 

authorities established to help meet the affordable housing needs 

of the residents of their states. Using Housing Bonds, the Housing 

Credit, HOME, and other Federal and state resources, such as 

Section 8 and homeless assistance, HFAs administer a wide range 

of affordable housing and community development programs.

Real Estate Roundtable

The Roundtable is a policy advocacy group representing private 

and publicly owned companies that own, develop, manage, or 

provide lending services supporting real estate. Among its 16 

national real estate trade associations are the National Association 

of Home Builders, the National Association of Real Estate 

Investment Trusts, National Apartment Association, and Mortgage 

Bankers Association. As such, it can serve as a hub for connecting 

to local real estate companies.

Urban Land Institute

The Urban Land Institute is a resource for responsible use of land 

and the creation/sustainability of thriving communities. The Urban 

Land Institute can provide expertise on planning, developing, and 

redeveloping neighborhoods, business districts and communities.
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Private and Nonprofit Partners Partners’ Resources and Expertise

Consortium for Citizens with 

Disabilities/Emergency 

Preparedness Task Force

A coalition of approximately 100 national disability organizations, 

this consortium works together to advocate for national public policy 

that ensures the self-determination, independence, empowerment, 

integration and inclusion of children and adults with disabilities in all 

aspects of society. They can serve as a resource on needs of the 

disabled and housing accessibility issues.

National Council on Independent 

Living/Housing Subcommittee

The National Council on Independent Living advances independent 

living and the rights of people with disabilities. The National Council 

on Independent Living represents thousands of organizations and 

individuals, including Centers for Independent Living (CILs), 

Statewide Independent Living Councils (SILCs), individuals with 

disabilities, and other organizations that advocate for the human 

and civil rights of people with disabilities throughout the United 

States. The National Council on Independent Living is a resource 

on issues of housing accessibility and design.

Owners, Agents, Sponsors, 

Mortgagors, and Mortgagees

These partners bring a wealth of local insight about the 

communities in which they are vested. In conjunction with 

information captured from other sources, they can provide 

qualitative data to help recovery partners understand holistic 

community needs.

Resources 

This annex should be used in tandem with the NDRF, which describes how the six RSFs work to 

support long-term recovery. Below are additional resources for housing and community 

development: 

 Planning for Post-Disaster Recovery and Reconstruction, American Planning Association. 

(https://www.planning.org/) 

 Hazard Mitigation: Integrating Best Practices into Planning, American Planning Association. 

(http://www.planning.org/research/hazards/index.htm) 

 Community Planning and Development Maps (CPD Maps), HUD. This planning tool offers 

extensive place-based data in a user-friendly online mapping application. CPD Maps allows users 

to search, query, and display information by census tract to better understand their affordable 

housing and community development needs. CPD Maps can help to facilitate dialogue, set 

priorities, and target limited resources to accomplish community development and affordable 

housing goals. (http://www.hud.gov/offices/cpd/about/conplan/cpdmaps/index.cfm) 

 CDBG Disaster Recovery Training, HUD. These online training materials include sessions on 

management of disaster recovery grants, risk analysis and monitoring, use of the Disaster 

Recovery Grant Reporting system, and program requirements and regulations (e.g., Davis-Bacon 

Act, Fair Housing Act, Environmental Compliance, and Uniform Relocation Act). This Web site 

also provides videos of grantees discussing how they addressed key long-term recovery issues. 

(http://portal.hud.gov/hudportal/HUD?src=/program_offices/comm_planning/communitydevelop

ment/programs/drsi/training22012) 

 Sustainable Communities Resource Center, HUD. The online resources center provides resources 

on rural, tribal, and small town sustainability, housing and transportation choice, economic 

competitiveness, green building, regional planning, and healthy communities. 

(http://www.huduser.org/portal/sustainability/resources.html) 
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F-33

 National Disaster Housing Strategy, FEMA and HUD. The strategy summarizes sheltering and 

housing capabilities, principles, and policies that guide and inform the disaster housing assistance 

process. The strategy also charts the direction that disaster housing efforts have taken to better 

meet the disaster housing needs of individuals and communities. (http://www.fema.gov/) 

 National Disaster Housing Task Force Practitioner Guide, FEMA. This guide provides guidance 

and tools to governments and entities such as the State-led Disaster Housing Task Force for 

developing strategies address emergency and interim housing. It also identifies preparedness and 

mitigation measures that enable all levels of government to better prepare for, respond to, and 

recover from different types and levels of disasters and resulting housing needs. 

 Housing People with Disabilities Post-Disaster: Highlights issues that particularly impact people 

with disabilities and identifies points of concern that should be addressed by recovery planners 

and housing partners to support residents with disabilities. 

 Long-term Community Recovery Planning Process: A Self-Help Guide, FEMA. 

(http://www.fema.gov/pdf/rebuild/ltrc/selfhelp.pdf) 

 Mitigation and sustainability publications from the Mitigation Directorate, such as Planning for a 

Sustainable Future: The Link Between Hazard Mitigation and Livability, Rebuilding for a More 

Sustainable Future and the Mitigation Planning How-To series (FEMA) 

 Long-term Community Recovery Tool Kit, Council of State Community Development Agencies. 

(http://coscda.org/disaster/) 
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Recovery Federal Interagency Operational Plan 

G-1 

Annex G: Infrastructure Systems

Purpose 

The purpose of this annex is to describe the delivery of the Infrastructure Systems core capability for 

the Recovery mission area. 

The Infrastructure Systems core capability stabilizes critical infrastructure functions, minimizes 

health and safety threats, and efficiently restores and revitalizes systems and services to support a 

viable, resilient community. Infrastructure Systems (IS) RSF is to integrate the capabilities of the 

Federal Government to support local, state, tribal, territorial, and insular area governments and other 

public and private infrastructure owners and operators in their efforts to achieve long-term recovery 

goals relating to infrastructure systems. 

Objectives and Considerations 

The goal of the infrastructure systems recovery process is to match the capacity of all infrastructure 

systems to a community’s current and projected demand on its built and virtual environment. The IS 

RSF intends to pursue this course of action to the extent allowable by available resources and current 

program authorities. Accordingly, the end-state for IS RSF engagement occurs when infrastructure 

systems recovery goals are met or when IS RSF member agencies’ existing programs and authorities 

are exhausted and/or external funding is no longer available to continue operations. 

As a complement to the response and short-term recovery efforts taking place under the NRF, the IS 

RSF, in conjunction with the other RSFs, will work to ensure: 

 Interagency and intergovernmental planning efforts inclusive of private sector infrastructure 

owners and operators and related service providers occur at all levels; 

 Technical assistance is provided to support local, state, tribal, territorial, and insular area 

government efforts to identify and prioritize critical infrastructure systems and assets; 

 An interagency, inter-jurisdictional recovery planning process inclusive of private sector 

infrastructure owners and operators is initiated soon after a declared disaster, when appropriate; 

 There are expedient damage assessments and recovery prioritization of infrastructure assets to 

include development of courses of action for execution of temporary and/or permanent repairs, in 

coordination with applicable local, state, tribal, territorial, and insular area governments, as well 

as private sector owners and operators; 

 Adequate Federal support and resources are provided to the extent possible to assist affected 

local, state, tribal, territorial, and insular area governments with effective community planning 

and redevelopment efforts; 

 Legal, policy, and programmatic requirements that may potentially limit efficient recovery are 

identified and mitigated to the extent possible; 

 The concepts of regional infrastructure resiliency are encouraged; 

 Local needs and expectations contribute to a redefined state of normalcy; 

 Mitigation opportunities that leverage innovative and green technologies and promote resiliency 

and sustainability are emphasized—this should be considered particularly in the advanced 

planning phase as well as throughout the recovery period; 
Recovery Federal Interagency Operational Plan

G-2 

 Funding mechanisms are continuously leveraged in an attempt to resolve identified funding gaps 

to the extent possible; 

 Processes and policies support renewed economic activity, which encourages the recovery and 

return of survivors; and 

 Metrics and timelines for overall restoration and recovery efforts are defined and revised as 

necessary. 

The IS RSF will serve as the focal point for recovery coordination and planning for the 16 Critical 

Infrastructure Sectors systems and assets as identified in the National Infrastructure Protection Plan. 

However, it will be informed throughout by considerations raised by the other RSFs and may be 

directed by the FDRC, responsible for operational coordination of the Recovery core capabilities, to 

serve in a supporting role, when appropriate, for those sectors that may be better served by 

coordination through one of the other RSFs: 

 Planning; 

 Public Information and Warning; 

 Operational Coordination; 

 Economic Recovery; 

 Health and Social Services; 

 Housing; and 

 Natural and Cultural Resources. 

Infrastructure Sector Support 

The National Infrastructure Protection Plan (NIPP) establishes a partnership structure for 

coordination among infrastructure partners and a risk management framework to manage risks to the 

nation’s infrastructure. The partnership and coordination structures outlined in the NIPP provide 

support to recovery operations as communities restore and make investment and development 

decisions that impact their infrastructure systems. 

The Nation’s critical infrastructure is composed of 16 sectors that comprise assets primarily owned 

and operated by the private sector. Response is focused on the immediate restoration of these critical 

assets to facilitate effective response activities, protect survivors, and allow for a transition to 

recovery. As activities transition from response, the Recovery mission area integrates the capabilities 

of the Federal Government to support local, state, tribal, territorial, and insular area governments and 

other private infrastructure owners and operators in their efforts to achieve long-term recovery goals 

relative to the community’s current and projected demands on their infrastructure system. During 

steady state, the Protection mission area supports infrastructure systems and provides vital 

information and support during response activities. 

Critical infrastructure security and resilience includes collaboration with local, state, tribal, territorial, 

and Federal government entities, and private critical infrastructure owners and operators to support 

information sharing by disseminating relevant critical infrastructure data to incident management and 

critical infrastructure partners in the public and private sectors. As outlined in the NIPP, 

Infrastructure Protection manages an extensive partnership network within the Federal Government, 

and between the Government and private sector critical infrastructure partners, through sector and 

cross-sector coordinating structures. DHS, private critical infrastructure owners and operators, 

coordinating councils, and information-sharing organizations (such as private sector Information 
Recovery Federal Interagency Operational Plan 

G-3 

Sharing and Analysis Centers [ISACs]) engage in intergovernmental and public-private information 

sharing and cooperation across the spectrum of incident management activities. 

Table G-1: Infrastructure Sector Coordination and National Preparedness 

Sector SSA ESF RSF Information Sharing 

Advisory Council

Sector Coordinating 

Council

Gov. 

Coordinating 

Council

Regional 

Consortia

Chemical DHS #10 

IS 

None yes 

Critical Infrastructure Cross Sector Council 

yes 

Federal Senior Leadership Council 

SLTT Government Coordination Council 

Federal Consortium Coordinating Council 

Commercial 

Facilities DHS none Real Estate ISAC yes 

yes 

Communications DHS #2 Telecom ISAC yes yes 

Critical 

Manufacturing DHS none Supply chain ISAC yes 

yes 

Dams DHS #3 none yes yes 

Defense Industrial 

Base DOD none none yes 

yes 

Emergency 

Services DHS 

#4, 

#5, 

#13 

Emergency 

Management and 

Response ISAC 

yes 

yes 

Energy DOE #10, 

#12 

Electricity Sector 

ISAC, NERC yes 

yes 

Financial Services Treasury none Econ 

Financial Services 

ISAC Financial 

Services -Special 

Operations Center 

Uses separate 

coordinating 

entity 

yes 

Food & Agriculture USDA #11 

IS 

none yes yes 

Government 

Facilities GSA/DHS ESF #7 none none 

yes 

Healthcare & Public 

Health HHS #6, 

#8 HSS Healthcare ISAC yes 

yes 

Information 

Technology DHS none 

IS 

Information 

Technology ISAC yes 

yes 

Nuclear Reactors, 

Materials, and 

Waste 

DHS #12 none yes 

yes 

Transportation 

Systems DHS #1 

Surface 

Transportation ISAC, 

Public Transit ISAC, 

Maritime ISAC 

yes 

Yes 

Water and 

Wastewater 

Systems 

EPA #3 Water ISAC yes 

Yes 

Table G-1 summarizes the alignment of sector coordination structures from the NIPP to ESFs and 

RSFs. The sector coordination structure developed under the NIPP supports the RSF structure, and 

does not duplicate function or responsibility. Sector Specific Agencies (SSA) typically conduct their 

own analysis, and provide situational awareness and planning support to RSFs. The NIPP sector 

coordination structures provide cross-sector and private sector coordination in support of recovery 

planning and operations. 

Recovery Targets 

Target statements are key outcomes expected from applying a core capability during recovery 

operations. The Infrastructure Systems core capability targets are as follows: 
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G-4 

Energy 

1. Coordinate/facilitate the sharing of energy impact damage assessment data to help inform and 

support the understanding of good decision making for developing solutions for energy 

infrastructure recovery. 

2. Enhance Energy Systems—facilitate improvement measures as appropriate to ensure energy 

infrastructure is more resilient—Intermodal transportation systems (land based trucks and 

maritime transportation). 

3. Enhance Energy Systems—facilitate the improvement of oil storage facilities and Marine 

Terminal as appropriate. 

Water 

1. Facilitate the sharing of information on impacts to drinking water systems and help understand 

current water sector needs as well as develop long-term solutions to address future disruptions. 

2. Provide guidance on restoration and improving resilience and sustainability of drinking water 

systems in the community. 

Wastewater 

1. Facilitate the sharing of information on impacts to wastewater systems and help understand 

current wastewater sector needs as well as develop long-term solutions to address future 

disruptions. 

2. Provide guidance on restoration and improving resilience and sustainability of wastewater 

systems in the community. 

Transportation 

1. Facilitate the restoration of the transportation infrastructure through damage assessment 

information sharing and the development of long-term resiliency solutions—work with port 

authority partners. 

2. Restore Transportation Infrastructure Systems—restore airport facilities. 

3. Restore Transportation Infrastructure Systems—facilitate the restoration of rail—full assessment 

and interim operating capability. 

4. Restore Transportation Infrastructure Systems—restore surface—full assessment of roads, 

bridges, and highways and interim operating capabilities (tunnels). 

Communication 

1. Facilitate the restoration of communication infrastructure, fiber optics lines, cable heads. 

2. Flood risk management—this includes the appropriate use and resiliency of structures such as 

levees and floodwalls, as well as promoting alternatives when other approaches (e.g., land 

acquisition, flood proofing) reduce the risk of loss of life, reduce long-term economic damages to 

the public and private sector, and improve the natural environment. 

3. Develop recovery exercises that examine our Nation’s capability to recover from all hazards. 
Recovery Federal Interagency Operational Plan 

G-5 

Federal Coordinating Structure 

This section will introduce the key members of the IS RSF, describe critical RSF functions and 

activities, and summarize agency roles and responsibilities. 

Overview of IS RSF Members 

Twenty different agencies/organizations, five primary agencies and fifteen supporting organizations 

deliver the IS Recovery core capability (See Table G-2). The U.S. Army Corps of Engineers 

(USACE) serves as the coordinating agency for the IS RSF. USACE will facilitate and provide 

coordination and oversight for the IS RSF. Its key responsibility is to ensure effective communication 

and collaboration among IS RSF primary agencies and supporting organizations and other partners 

and stakeholders that include, but are not limited to, local, state, tribal, territorial, insular area, private 

sector, and nongovernmental organizations. Coordinating agency responsibilities extend through the 

preparedness, response, and recovery phases. In order to meet these objectives, USACE designates a 

National Coordinator and develops an NDRF annex to its annual All Hazards Operations Order. 

Table G-2: Members of Infrastructure Systems RSF 

Infrastructure Systems

Stabilize critical infrastructure functions, minimize health and safety threats, and efficiently restore and 

revitalize systems and services to support a viable, resilient community.

Coordinating Agency: U.S. Army Corps of Engineers (USACE)

Primary Agencies: Department of Energy (DOE); Department of Homeland Security (DHS); 

Department of Transportation (DOT); Federal Emergency Management Agency (FEMA); USACE

Supporting Organizations: Delta Regional Authority; Department of Agriculture (USDA); Department 

of Commerce (DOC); Department of Defense (DOD); Department of Education; Department of Health 

and Human Services (HHS); DHS; Department of Housing and Urban Development (HUD); 

Department of the Interior (DOI); Department of the Treasury (TREAS); Environmental Protection 

Agency (EPA); Federal Communications Commission (FCC); General Services Administration (GSA); 

Nuclear Regulatory Commission (NRC); Tennessee Valley Authority (TVA)

Primary Agencies are designated based on relevant authorities, roles, resources, or capabilities 

related to the disaster recovery of infrastructure systems. The IS RSF Primary Agencies are 

responsible for identifying and coordinating relevant Federal programs and capabilities to support 

recovery, working with local jurisdictions by participating in or coordinating interagency 

assessments or support teams as necessary, and providing technical assistance and information 

required to help communities identify recovery needs and establish infrastructure system recovery 

priorities. 

Supporting Organizations include Federal departments and agencies with specific capabilities or 

resources that support the Primary Agencies in executing the IS RSF mission. These agencies will 

provide assistance when requested by the FDRC, consistent with their own authority and resources 

and/or pursuant to a mission assignment under the Stafford Act. 

It is important to note the difference between the IS Recovery core capability and the IS RSF. The 

former is a set of abilities and resources that the Federal Government may deliver to support the 

recovery and resilience of infrastructure systems. The IS RSF refers to a group of Federal agencies 

and national organizations that have been identified in the NDRF to have authorities, expertise, and 

other resources applicable to infrastructure systems recovery and resilience. 
Recovery Federal Interagency Operational Plan

G-6 

Depending on a disaster’s impact, the Federal disaster management leadership may deliver the IS 

Recovery core capability to support local, state, tribal, and territorial recovery without having to 

mobilize any or all of the IS RSF. 

Critical Functions and Activities 

The most challenging aspects of the infrastructure systems recovery process will be helping 

communities secure funding, technical expertise, and/or the legal authority to initiate and execute 

multiple complex infrastructure projects. Due to the loss of revenue base and human capital that 

often accompany disaster-related evacuations, public and private sector owner/operators may not 

have the resources to recover infrastructure systems efficiently. 

Steps that the IS RSF may take to resolve resource shortfalls include, but are not limited to, the 

following: 

 Technical assistance for the physical assessment, planning, construction, and ultimate recovery of 

community infrastructure assets; 

 Grants or loans to help both public and private entities finance the capital costs of recovering an 

infrastructure asset, and/or to finance the operational costs of the infrastructure; 

 Disaster assistance programs that may reduce risk through mitigation and disaster-resilient 

construction; and 

 Effective use of all available local, state, tribal, territorial, insular area, and Federal governments’ 

legal authorities to support the community recovery process.16

Federal IS RSF partners activated during a disaster will be educated by, or will have access to, 

experts familiar with commonly used forms of governmental disaster assistance, such as FEMA’s PA 

Grant Program. The IS RSF partners, in conjunction with other RSFs, will work to coordinate and 

leverage other potential sources of assistance, such as nongovernmental organization and private 

sector funding.17

As part of the infrastructure systems support approach, the IS RSF will encourage and assist the 

impacted communities to chart out how they plan to implement and finance specific steps in the 

infrastructure recovery process18 (Figure G-1). Though this level of task-orientated specificity may 

not be needed in all circumstances, a general plan for financing and executing infrastructure systems 

recovery strategies in the RSS is essential to a successful recovery process. It also highlights the 

importance of leveraging all available local, state, tribal, territorial, insular area, and Federal 

resources to support implementation of the RSS. 

 

16 Of particular note, in certain disasters that impact national defense or security, agencies within the IS RSF may be 

called on to help coordinate legal authorities, such as Title I of the Defense Production Act and the Defense Support 

of Civil Authorities, to help execute and prioritize critical infrastructure recovery. 

17 Nothing in this IS RSF annex is intended to modify, replace, or supersede the existing legal authorities, 

regulations, or program rules of a local, state, tribal, territorial, insular area, or Federal government entity that may 

assist in the infrastructure systems recovery process; nor will any IS RSF representatives have the immediate ability 

to modify, replace, or supersede these existing authorities, regulations, or programmatic rules. 

18 This is a best practice identified from a Grand Forks, North Dakota, flood recovery plan in the Government 

Accountability Office’s report, “Disaster Recovery: Past Experiences Offer Insights for Recovering from Hurricanes 

Ike and Gustav and Other Recent Natural Disasters” (GAO-08-1120). 
Recovery Federal Interagency Operational Plan 

G-7 

Figure G-1: Excerpt from the Financing Matrix in Grand Forks’ Recovery Plan

There are five key critical functions and activities that are undertaken by the IS RSF to ensure a 

successful community recovery: (1) Convene Recovery Support Function, (2) Coordinate Linkages 

and Interdependencies, (3) Provide Technical Assistance, (4) Support Implementation of Local and 

State Recovery Plans, and (5) Transition to Steady State. These five items are discussed in the 

following sections. 

Convene Recovery Support Function 

When directed by the FDRC, the IS RSF is activated to support communities as they plan for, 

manage, and execute the infrastructure systems recovery process following a declared disaster. The 

course for effective recovery is set by decisions made and actions taken in the initial phases of 

disaster response. Some of the IS RSF agencies will be activated in the initial response phase in 

support of the NRF and accomplishment of ESFs and NRF support annex missions. This prerecovery NRF organization is crucial to ensuring a seamless transition to recovery.19

The scale of Federal IS RSF resources, both technical and human, will depend on the characteristics 

and scope of the disaster. The IS RSF will coordinate available Federal resources to accomplish 

 

19 The duties and skill sets of agency representatives deployed in the response/ESF environment may be much 

different than those required in the recovery/RSF environment. Therefore, it is important that IS RSF organizations 

are prepared to deploy agency representatives who are well-versed in the IS RSF responsibilities as well as their 

respective recovery programs, authorities, and capabilities. 
Recovery Federal Interagency Operational Plan

G-8 

infrastructure recovery during all activations through whatever means are available given the context 

of the disaster. 

Coordinate Linkages and Interdependencies 

Maintaining proper communication practices and information sharing standards with the relevant 

local, state, tribal, territorial, and insular area governments, as well as the private sector, is a crucial 

element of all IS RSF actions. In keeping with the principles of the NDRF, this RSF is designed to 

support the local communities in charge of the recovery process. As such, any information produced 

or gathered by this IS RSF shall be shared with local, state, tribal, territorial, and insular area 

governments and the private sector to the greatest extent possible under the law.20 Once activated, the 

coordinating and Primary Agency Federal partners of the IS RSF shall designate a point of contact 

based either locally at a field office or remotely to handle any information requests that may arise 

during recovery.21

As required by the scope and magnitude of the disaster, activated members of the IS RSF will host 

regular in-person or remote meetings of identified stakeholders during the post-disaster recovery 

process. As required, these meetings will typically include representatives from local, state, tribal, 

territorial, insular area, and Federal government departments and agencies, as well as critical 

infrastructure owners/operators and/or professional associations with an interest in the impacted area. 

These meetings will serve as a forum for discussing next steps in the course of action taken by the IS 

RSF, which is described below. Additionally, the meetings will allow concerns, questions, and 

comments raised by infrastructure stakeholders to be discussed and resolved in a transparent fashion. 

In addition to coordinating with other Recovery core capabilities, the IS RSF must also work closely 

with its ESF counterparts to ensure coordination and synergy between response and recovery 

capabilities. The IS RSF complements and informs the short-term recovery efforts that take place 

under the NRF. Upon activation, IS RSF members will engage with their ESF counterparts in order 

to shape long-term recovery actions. The IS RSF engages with several ESFs, including: ESF #1 

(Transportation—Department of Transportation); ESF #2 (Communications—DHS/Office of 

Cybersecurity and Communications, Office of Emergency Communication and National 

Coordinating Center for Communications ); ESF #3 (Public Works and Engineering); ESF #12 

(Energy—Department of Energy); and, as applicable, ESF #8 (Public Health and Medical Services—

Department of Health and Human Services) and ESF #10 (Oil and Hazardous Materials Response—

Environmental Protection Agency). As the ESF Response missions wind down, the priority of effort 

will shift to the IS RSF team facilitation of long-term recovery operations. The goal of the IS RSF is 

to ensure a seamless transition between response and recovery phases. 

Provide Technical Assistance 

One of the core activities for the infrastructure systems RSF is to help communities develop an 

approach to support infrastructure systems recovery, which will be unique to each community or 

regional situation. A plan may be developed for a single community or multiple communities or 

regions with distinct community-specific sub-plans, as appropriate and required. These sub-plans 

 

20 Any classified information shall be shared only with individuals with proper clearance and a need to know. When 

working with private critical infrastructure owners and operators, the IS RSF will act in accordance with all 

necessary regulations, especially 6 C.F.R. Part 29, “Procedures for Handling Critical Infrastructure Information,” 

which implements the Critical Infrastructure Information Act of 2002. 

21 Activation of IS RSF agency members is contingent upon receipt of a FEMA MA, as there is currently no funding 

in place for pre- or post-disaster recovery planning. Given the long-term nature of recovery, it is expected that an 

interagency agreement may be needed to define and fund the IS RSF after the initial MAs expire. 
Recovery Federal Interagency Operational Plan 

G-9 

may vary in levels of complexity but should be coordinated across jurisdictions to facilitate an 

efficient recovery of the whole regional infrastructure system. 

The specific breadth and complexity of content in each plan will be determined by the impacted 

communities. However, the Federal partners of the IS RSF will follow the general principles listed 

below to help guide the development of the IS RSF support approach. As these plans are developed, 

the IS RSF will coordinate with the other RSFs to facilitate and minimize conflicts and ensure an 

integrated development. 

The plan should be: 

 A mechanism that allows private and public sector partners to jointly plan the long-term 

infrastructure system recovery in a holistic manner; 

 Flexible and adaptable as new information becomes available or circumstances change within or 

outside the scope of the IS RSF support approach; 

 A living document that is revised as needed during the recovery process; and 

 A strategic guidance document that identifies; 

 The end-state level of capacity that the community realistically needs from its physical and 

virtual infrastructure systems; 

 Achievable intermediate objectives prior to reaching end-state (ways to “make do” while 

recovery progresses); 

 The major phases of the infrastructure systems recovery process, with varied levels of task 

specificity dependent upon the requirements of the communities involved; 

 Anticipated significant impediments, whether technical, resource, or political in nature, that 

require resolution in each phase of the recovery process; 

 Processes for incorporating the concepts of resiliency and sustainability to help reduce the 

likelihood of future infrastructure damage and loss; 

 Types of disaster assistance and programs that may be leveraged to execute infrastructure 

systems recovery; and 

 Points of contact in various levels of government for further communication needs. 

The plan should not be: 

 A detailed infrastructure systems engineering or design plan; 

 A discussion of the complex industrial steps required to recover, repair, or rebuild each damaged 

infrastructure asset; or 

 A legal contract that requires actions by any governmental or private entity mentioned. 

Support Implementation of Local and State Recovery Plans 

The IS RSF, in coordination with the FDRC and the other RSFs, will work with impacted 

communities to develop a comprehensive recovery needs assessment report. In some circumstances, 

a particular infrastructure asset can have greater value to the region or Nation than it has to the 
Recovery Federal Interagency Operational Plan

G-10

community in which it is located.22 Therefore, IS RSF partners will work together to balance 

national, regional, and local priorities for infrastructure recovery. 

The IS RSF will take full advantage of existing infrastructure data, pre-incident studies, and postincident response-phase damage assessments to develop the infrastructure systems recovery needs 

assessment. The analysis of the recovery needs assessment should communicate the condition of the 

varied infrastructure systems in relatable terms. For example, a community may choose to use a 

1 (low) to 10 (high) scale of “recovery need” when assessing its infrastructure assets. Therefore, if a 

particular bridge is at a Level 8, it is commonly understood by recovery planners that the magnitude 

of recovery need is greater than a power plant with a Level 6. 

Assessment scales will have varying levels of complexity depending on the needs of the community, 

but all scales should facilitate simple comparisons across infrastructure systems (e.g., transportation, 

power, water, and communications). At a basic level, the assessment scale should account for the 

level of damage to the asset compared with its pre-disaster state. At a more complex level, the 

assessment scale should account for such factors as the criticality of the asset to the community, what 

measure of time and resources would be required to recover the asset to a fully operational state, if 

temporary repairs can be made to the asset that raise its capacity to serviceable standard, and if there 

are alternative/redundant assets that can be improved to compensate for the damage to the asset. The 

Federal partners of the IS RSF will provide technical assistance to the communities in this 

infrastructure assessment and analysis process. 

As the IS RSF matures, tools designed to assist decision makers may become available that help 

identify and adjudicate these local, state, tribal, territorial, insular area, national, and regional 

infrastructure system recovery priorities. Determining these priorities/objectives and the proper 

sequence for executing them is a critical factor to the success of the IS RSF support approach. If 

additional data is needed to formulate an effective IS RSF support approach, a task force will be 

formed with relevant subject matter experts to conduct further impact assessments. In all 

circumstances, the IS RSF, as well as the other RSFs, will strive to limit the burden on communities. 

In order to support the community in implementing and monitoring the IS RSF support approach, the 

IS RSF will perform the following activities: 

 Help modify the resource chart of the plan (example shown in Figure G-1), as mid-course 

corrections and challenges arise; 

 Assist the community in reprioritizing the stages of the infrastructure systems recovery process as 

new community demands arise; and 

 Facilitate scheduled conference calls and site visits, as needed, with infrastructure stakeholders to 

address the progress of recovery. 

Transition to Steady State 

Transition to the steady state begins with completion of the RSS and initial implementation of the IS 

RSF support approach. The IS RSF will monitor the delivery of Federal program assistance to 

maximize support to the community and minimize the potential for waste, conflicts and confusion. It 

will also work with the state to assist the community in measuring the progress of long-term recovery 

against established goals and milestones, to identify additional support required and make necessary 

course adjustments. 

 

22 For example, consider a natural gas supply pipeline that runs underground from one end of a town to the other, on 

its way to another community. While this pipeline may have lesser value to that town, it has tremendous value to its 

end destination. The value of this pipeline must be prioritized and accounted for in the community’s recovery plan.
Recovery Federal Interagency Operational Plan 

G-11

As seen above, the IS RSF will continue to coordinate and monitor the implementation of the IS RSF 

support approach throughout the recovery process. However, as the recovery effort stabilizes, IS RSF 

personnel can be expected to return to their normal offices to continue RSF operations. Regardless of 

their location, ongoing communication among local, state, tribal, territorial, insular area, and Federal 

governments and private sector agencies will remain a priority of the IS RSF. 

Agency Roles and Responsibilities 

As previously noted, the NDRF seeks to use the whole-community approach to formulate and enact a 

long-term recovery plan. This approach relies on utilizing the strengths and capabilities of local, 

state, tribal, territorial, insular area, and Federal governments and the private sector. Depending on 

the disaster’s impact (particularly on local recovery capabilities and capacities), the IS RSF may not 

be fully mobilized or at all. However, assuming that all agency members of the entire IS RSF were to 

be deployed to support the recovery, the series of succeeding tables outlines the roles and 

responsibilities of each agency member, working in conjunction with the IS RSF, to establish an 

infrastructure recovery plan that addresses the challenges and concerns unique to each community. 

Table G-3: RSF Coordinating Agency Functions 

Coordinating Agency Functions

U.S. Army Corps of 

Engineers

 Provides direct and technical assistance for repair of flood risk damage 

reduction projects, and other civil works projects, as appropriate, per 

USACE authorities and programs.

 Convenes the RSF and formalizes communications/meetings with the IS 

RSF.

 Maintains communication within the IS RSF and with other RSFs and 

develops an action plan to avoid duplication of efforts.

 Facilitates the prioritization of infrastructure systems recovery efforts 

considering their regional and national-level impacts.

 Monitors supported and implemented recovery programs.

 Represents IS RSF at the national level and at JFO.

 Activates and deploys recovery personnel.

 Provides technical expertise of the public works and waterways 

infrastructure systems.
Recovery Federal Interagency Operational Plan

G-12

Table G-4: RSF Primary Agency Functions 

Primary Agency Functions

Department of Energy

 Serves as the Energy Sector-Specific Agency and coordinates between 

and among local, regional, state, tribal, territorial, insular area and Federal 

governments and industry or private sector stakeholders.

 Coordinates with the Pipeline and Hazardous Materials Safety 

Administration to ensure safety and reliability of natural gas pipelines.

 Provides technical expertise regarding utilities, infrastructure, and energy 

systems.

Department of 

Homeland Security

 Coordinates multi-directional information sharing efforts across the critical 

infrastructure community, providing stakeholders with timely and relevant 

information to support and inform recovery activities through its SectorSpecific Agencies and subject matter experts.

 Provides technical expertise in cybersecurity and incident recovery

activities from the National Cybersecurity and Communications 

Integration Center to enable real-time, integrated, and operational actions 

across federal and non-federal entities; facilitate cross-sector coordination 

to address risks and incidents that may be related or could have 

consequential impacts across multiple sectors; conduct and share 

analysis; and provide risk management, and security measure 

recommendations.

 Provides assistance from the National Infrastructure Coordinating Center, 

the Infrastructure Protection Resources, and the National Infrastructure 

Simulation and Analysis Center.

 Provides information, technical expertise, and analytical support 

addressing critical infrastructure interdependencies; physical and cyber 

vulnerabilities; and recommended protective measures in close 

coordination with public and private sector critical infrastructure owners 

and operators through Sector-Specific Agencies and subject matter 

experts.

 Provides technical expertise through coordination with Protective Security 

Advisors.

 Implements the Chemical Facilities Anti-Terrorism Standards program, 

regulates the security of high-risk chemical facilities and has regionally 

based inspectors.

 Leads research and development of resilient infrastructure technologies 

that can minimize the downtime of essential infrastructure services.

Department of 

Transportation

 Administers transportation assistance programs/funds that can be used 

for repair or recovery of transportation systems.

 Provides technical assistance in long-range planning and engineering of 

transportation infrastructure systems.

Federal Emergency 

Management Agency

 Provides technical and financial assistance regarding program eligibility, 

application processes and project requirements (PA Grant Program) and 

funds Federal missions.

 Evaluates the status of emergency preparedness capabilities of local, 

state, tribal, territorial, and insular area governments in the vicinity of 

commercial nuclear power plants prior to restart.

U.S. Army Corps of 

Engineers

 See Table G-3.
Recovery Federal Interagency Operational Plan 

G-13

Table G-5: RSF Supporting Organization Functions 

Supporting 

Organization

Functions

Delta Regional 

Authority

 Works to improve the lives of residents in parts of Alabama, Arkansas, 

Illinois, Kentucky, Louisiana, Mississippi, Missouri, and Tennessee.

 Leverages investments made by other Federal departments, local, state, 

tribal, and territorial partners, and private entities.

 Provides technical assistance regarding program eligibility, application 

processes, and project requirements.

 Provides consultation and advocacy for transportation infrastructure 

improvements.

 Promotes opportunities to develop or use clean energy.

Department of 

Agriculture

 Provides technical assistance and identifies current Department of 

Agriculture-financed utility system infrastructure and programs (electric, 

telecom, water, and waste) that may be utilized for recovery, including 

determinations of eligibility, application processes, and project 

requirements.

 Provides technical assistance and economic, physical damage 

assessment on agriculture infrastructure (crops, soils, livestock, meat, 

poultry, processed egg products, agricultural processing facilities, and on 

the agricultural supply).

 Supports RSF national and field level operations with subject matter 

expertise and staffing support, as appropriate.

 Executes agency mission during disaster recovery, supporting agriculture 

infrastructure and rural utilities.

 Leverages investments made by other Federal departments, local, state, 

tribal, and territorial partners and private entities.

Department of 

Commerce 

 Supports recovery efforts through building science expertise (National 

Institute of Standards and Technology).

 Supplies foundational geospatial infrastructure data and technology 

(National Oceanic and Atmospheric Administration).

 Acquires and rapidly disseminates a variety of geospatially referenced 

remote-sensing data and imagery to support disaster response and 

recovery (National Oceanic and Atmospheric Administration).

Department of Defense 

(Other Services)

 Provides expertise in construction management, contracting, real estate 

services, and implementation and management of Federal infrastructure 

recovery programs. 

Department of 

Education

 Provides guidance on the recovery of public and private education 

facilities.
Recovery Federal Interagency Operational Plan

G-14

Supporting 

Organization 

Functions 

Department of Health 

and Human Services

 Provides assessment information regarding the consequences on the 

health and human services sectors in an affected community.

 Provides technical assistance to Food and Drug Administration-regulated 

biologics device, drug, animal feed, and human food establishments to 

protect public health.

 Provides technical assistance to support recovery planning and postdisaster activities for public health, health care, behavioral health, and 

social services infrastructure.

 Provides technical assistance regarding program eligibility, application 

processes, and project requirements for HHS programs as applicable 

under existing authorities.

 Provides technical assistance as related to the recovery of public and 

private healthcare service delivery infrastructure.

 Supports RSF national- and field-level operations with subject matter 

expertise and staffing support, as appropriate.

Department of 

Homeland Security

 See Table G-4.

Department of Housing 

and Urban 

Development

 Provides assistance for housing, infrastructure, mortgage financing, public 

housing repair, and reconstruction.

 Provides building technology technical assistance.

Department of the 

Interior

 Provides technical assistance and contract management expertise for 

natural, cultural, and historic properties.

 Provides technical assistance on hazards, risk assessment, and geospatial 

support for geologic hazards (U.S. Geological Survey).

 Provides engineering support to assist in construction of dams, levees, 

water delivery facilities, and structures.

Department of the 

Treasury

 Provides technical advice on public and private partnerships in 

constructing infrastructure systems, payment systems, and financial flows.

Environmental 

Protection Agency

 Provides technical advice and assistance on water and wastewater 

infrastructure projects.

 Provides technical assistance for using environmentally sound and 

sustainable approaches in building infrastructure systems.

Federal 

Communications 

Commission

 Provides communications infrastructure data.

 Maintains trained personnel to support interagency emergency response 

and support teams; additionally, be prepared to conduct damage 

assessments.

General Services 

Administration

 Provides supplies, facility space, telecommunications support, 

transportation services, and contracting services through a centralized 

acquisition channel to rebuild infrastructure systems.

Nuclear Regulatory 

Commission

 Assists in providing data, expertise, and technical assistance in nuclear 

power infrastructure recovery.

 Evaluates the emergency preparedness capabilities of commercial nuclear 

power plants prior to restart.
Recovery Federal Interagency Operational Plan 

G-15

Supporting 

Organization 

Functions 

Tennessee Valley 

Authority

 Provides personnel and technical expertise to assist in the recovery of 

utilities infrastructure.

 Supplies critical replacement parts and equipment as requested.
Recovery Federal Interagency Operational Plan

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Recovery Federal Interagency Operational Plan 

H-1 

Annex H: Natural and Cultural Resources

Purpose 

This annex describes the delivery of the Natural and Cultural Resources (NCR) core capability for 

the Recovery mission area. 

The NCR core capability provides protection for natural and cultural resources and historic properties 

through appropriate planning, mitigation, response, and recovery actions. The objectives of these 

actions are to preserve, conserve, rehabilitate, and restore these resources in alignment with postdisaster community priorities and best practices and in compliance with appropriate EHP laws and 

executive orders. The NCR core capability relies on principles of sustainable and disaster resistant 

communities and activities that protect natural and cultural resources. Recovery core capabilities are 

primarily, but not exclusively, delivered by the Federal Government through the RSFs. 

This section provides guidance for primary and supporting agencies and organizations conducting 

activities under the NCR RSF. These activities include coordinating disaster recovery with local, 

state, tribal, territorial, and insular area communities and connecting these communities to available 

resources or programs that assist the long-term recovery of damaged or destroyed natural and cultural 

resources.23 By focusing on long-term natural and cultural resources recovery activities, the NCR 

core capability annex aligns with NDRF guidance and complements the response and short-term 

recovery efforts that take place under the NRF. 

To amplify their effectiveness, the organizations active in the NCR RSF may partner with local, 

state, tribal, territorial, and insular area governments, nongovernmental organizations, nonprofit 

organizations, the private sector, and individuals in disaster-stricken communities. Through 

partnering, these organizations are able to leverage capacity, potential funding, and other resources to 

help communities address at-risk and affected natural and cultural resources with long-term 

solutions. The NCR RSF operates in recognition that some existing Federal programs may be 

available to assist local recovery efforts. In addition, some Federal agency offices, either located 

within or with jurisdiction over the disaster-impacted area, may have a role to play in assisting local 

recovery efforts. 

Objectives and Considerations 

This section identifies objectives and considerations for the recovery process that have been observed 

during previous disaster recovery efforts, and presents options for providing assistance that can be 

tailored to specific disaster-impacted communities. While the lists provided are not exhaustive, they 

do provide a starting point for the FDRC, NCR RSF partners, and the local community to begin 

recovery operations. 

Mission 

The mission of the NCR RSF, as stated in the NDRF, is to “integrate Federal assets and capabilities 

to help state and tribal governments and communities address long-term environmental and cultural 

resource recovery needs after large-scale and catastrophic incidents.”

 

23 “Cultural Resources” includes historic properties as well as historic/cultural resources such as documents, art, and 

audiovisual materials. 
Recovery Federal Interagency Operational Plan

H-2 

As stated in the NDRF, the NCR RSF facilitates the extension of expertise from Federal departments, 

agencies, and partners, so that: 

 Considerations related to the management and protection of natural and cultural resources, 

community sustainability, and compliance with environmental planning and historic preservation 

requirements can be incorporated into long-term recovery efforts; 

 State and tribal governments and local communities can be ready to address post-disaster longterm NCR recovery needs; 

 Programs that support disaster recovery, technical assistance, and data sharing are capable of 

better coordination; and 

 Post-disaster NCR coordination needs can be identified and conducted. 

Natural Resources 

Table H-1 and the descriptions that follow, present the opportunities and challenges that natural 

resource stakeholders—RSF partners, local, state, tribal, territorial, and insular area agencies, private 

nonprofits, private sector businesses, and individuals—may face during recovery. The ability of the 

NCR RSF to coordinate these challenges and opportunities is dependent on the successful execution 

of MAs or the availability of existing funding. 

Table H-1: Natural Resources Objectives and Considerations 

Objectives

 Early integration of environmental staff

 Early coordination with local, state, tribal, territorial and insular area 

entities

 Using programmatic agreements

 Incorporating environmentally friendly designs

 Integrating sustainable planning elements

 Consideration of lowest cost options

Considerations

 National Environmental Policy Act (NEPA) requirements

 State environmental policy requirements

 Best management practices

 Endangered Species Act (ESA) issue avoidance

 Funding

Objectives 

 Integrate environmental staff knowledgeable in natural resources and environmental regulatory 

requirements early in a disaster recovery planning process to: 

 Address potential environmental or regulatory issues; 

 Identify potential problems or regulatory process bottlenecks; and 

 Improve efficiency. 

 Achieve early coordination between regulatory agencies and local, state, tribal, and territorial 

agencies to alleviate subsequent project delays and identify Federal funding constraints. 

 Develop pre-existing (pre-disaster) programmatic agreements between NCR agencies to facilitate 

post-disaster recovery options. 
Recovery Federal Interagency Operational Plan 

H-3 

 Provide assistance to jurisdictions regarding the applicability of environmentally friendly design 

to guide recovery projects. (For example, projects that require work in or near sensitive habitats, 

surface waters, and wetlands may require integration of environmental mitigation design 

elements to mitigate a project’s detrimental natural resource effects. Similarly, some 

communities may not have the expertise required to incorporate bio-engineering elements into 

their projects. Outside resources, such as contract support, may be needed.) 

 Integrate sustainable planning elements to provide a multi-disciplined effort that includes 

consideration of long-term environmental effects to natural resources, integration of open space 

and sensitive resources, and community well-being. This promotes the principles of sustainable 

and disaster resistant communities through the protection of natural resources such as coastal 

barriers and zones, floodplains, wetlands, and other natural resources critical to risk reduction. 

For this to occur, a natural resource specialist is needed early in the discussion of community 

recovery options. 

 Achieve cost efficient options. Additional costs to meet required mitigation or permit conditions 

could be outside the Federal budgeting process unless specifically required to meet the Federal 

resource agency mandates. Early determination of potential costs and budget responsibility will 

aid the environmental documentation and review process. In addition, it should be made clear 

early in a recovery program that any long-term environmental monitoring or other permit 

conditions are the responsibility of the jurisdiction or public entity, not the Federal Government. 

Considerations 

 NEPA requirements. NCR staff should be familiar with NEPA and how the FEMA region 

implements these requirements. Early coordination by NEPA experts will enable an efficient 

documentation process and avoid unanticipated delays in applicable agency coordination or 

project design changes, to minimize environmental effects. 

 State environmental policies. NCR staff should either be familiar with or work with the state to 

understand how state policies (e.g., state listed species) may impact recovery planning efforts. 

Additionally, they should understand how state policies may relate to Federal policies (i.e., 

understand how one may be stricter than another with respect to specific environmental 

concerns). 

 Best management practices. NCR staff should also be knowledgeable of best management 

practices as they relate to recovery projects that could have environmental impacts. More 

importantly, they must convey to local stakeholders the importance of incorporating these 

practices as projects are developed. 

 ESA issue avoidance. NEPA and ESA compliance can occur on parallel tracks, but ESA 

consultation must be executed prior to completion of the NEPA process. Early identification of 

any ESA issues and coordination with the appropriate Federal agencies is essential. ESA issues 

will vary greatly among regions and states. 

 Funding. Funding for programs is a major consideration for the recovery of NCR. Funding 

cycles, as well as the general state of funding availability, may affect the availability of multiple 

agencies’ funding for programs.

Cultural Resources 

Table H-2 and the descriptions that follow, present the opportunities and challenges that cultural 

resource stakeholders—RSF partners, local, state, tribal, territorial, and insular area agencies, private 

nonprofits, private sector businesses, and individuals—may face during recovery. The ability of the 
Recovery Federal Interagency Operational Plan

H-4 

NCR RSF to coordinate these challenges and opportunities following a disaster is dependent on the 

successful execution of MAs or on the availability of existing funding. 

Table H-2: Cultural Resources Objectives and Considerations 

Objectives

 Identifying funding sources pre-disaster

 Using programmatic agreements

 Coordinating with other RSFs

 Integrating specialists with specific preservation expertise

 Leveraging The Federal Historic Preservation Tax Incentives program

Considerations

 Damage to culturally and historically significant materials

 Loss of documentary evidence and/or essential records

 Lack of disaster preparedness by museums, libraries, and other 

repositories, (including zoos and aquariums)

 Lack of resources by the private sector, nonprofits, and individual owners

 Impediments to data sharing

 Funding gaps

 National Historic Preservation Act (NHPA) requirements

Objectives 

 Identify funding sources, pre-disaster for cultural resource needs (e.g., artifact conservation, 

building rehabilitation, document recovery, archaeological site preservation). 

 Provide post-disaster Federal assistance in completing surveys and National Register of Historic 

Places (NRHP) designations to prevent inappropriate repairs affecting historic integrity of a place 

or district. 

 Focus on those resources eligible to receive Federal funding or assistance. 

 For other structures, provide appropriate Federal technical assistance, such as assistance via 

the telephone, web, or other publications. 

 State and nongovernmental organization technical assistance and funding may be available. 

 Explore opportunities to use programmatic agreements and pre- and/or post-disaster coordination 

with funding resources to expedite processes and allow property owners to restore their property 

in a more expedient manner. If a programmatic agreement or other coordination vehicle is not in 

place, the local, state, tribal, territorial, and/or insular area nonprofits may step in to provide 

expertise and guidance. 

 Coordinate with other RSFs to provide valuable information on cultural resources. For example, 

the Housing RSF may coordinate housing resource fairs and other workshops, which would serve 

the NCR RSF as a point of distribution. Information could also be disseminated through a fulltime housing resource center if one is set up. Following Hurricanes Katrina and Rita, pattern 

books24 and other guidance documents were made available to the public in Mississippi and 

 

24 As stated on page one of Houses from Books: The Influence of Treatises, Pattern Books, and Catalogs in 

American Architecture, 1738-1950 (Daniel D. Reiff, Dec 19, 2000), “The printed architectural book, whether a 

sophisticated treatise or a modest builder’s manual, is now abundantly recognized as a significant factor in the 

history of buildings.”
Recovery Federal Interagency Operational Plan 

H-5 

Louisiana to help decision making about the kinds of repairs/rebuilds they might make to their 

homes. Information about funding sources may also be made available to the public. 

Considerations 

 Specialists who understand compliance requirements for cultural/historical resources do not 

necessarily know the Secretary of the Interior Standards (e.g., for rehabilitation), nor do they 

always know about preservation programs and funding sources. Bringing in specialists with 

specific preservation expertise will help ensure preservation standards are met. Other specialists 

(such as grants and tax credit specialists) can be brought in to focus on funding issues. These 

specialists may come from a number of sources, including the Federal Government, the State 

Historic Preservation Office (SHPO), and nongovernmental organizations, such as the American 

Institute of Architects, the National Trust for Historic Preservation, the Advisory Council on 

Historic Preservation, and the American Institute for Conservation. The Federal Historic 

Preservation Tax Incentives program supports the rehabilitation of historic and older incomeproducing structures. Historic buildings are eligible for a 20 percent Federal tax credit if listed 

individually in the NRHP or as a contributing building to a National Register-listed or certified 

state or local historic district. Also, historic rehabilitations must meet the Secretary of the 

Interior's Standards for Rehabilitation. Non-historic, nonresidential buildings built before 1936 

are eligible for a 10 percent Federal tax credit. From time to time, Congress has increased these 

credits for limited periods for the rehabilitation of buildings located in areas affected by natural 

disasters. Many states also have similar state tax credit programs. Individual property owners 

may not know if their properties are already eligible; have the resources or expertise to nominate 

their property/properties to become eligible; be aware the tax credit program exists; or know how 

to obtain tax credits. Misunderstandings exist about the meaning of having a property listed; 

providing more information about the benefits of listing, as well as the tax credit program, can be 

useful. 

 Collections of cultural and historic significance might be damaged in disasters. These holdings—

including irreplaceable books, documents, photographs, audio-visual records, art, artifacts, and 

animals (including endangered species)—could represent a community's heritage and provide a 

focus for tourism. Their preservation is critical to both economic recovery and community 

resilience. Early coordination also helps communities, state, and tribal governments consider and 

leverage opportunities inherent in recovery to mitigate impacts to environmental or cultural 

resources. 

 Museums, libraries, zoos, and other cultural institution collections are often dependent on grants 

and other funding and are not always well prepared for disaster (e.g., although they should, they 

do not always, have emergency plans in place). In the past, FEMA has helped state-run or 

eligible nonprofits, (e.g., New Orleans Museum of Art and Fort Jackson), but not all nonprofits 

are eligible for FEMA assistance. These institutions are often dependent on help from the 

preservation community or organizations and agencies such as the National Endowment for the 

Humanities, SHPOs, and the National Trust for Historic Preservation. It is important that these 

types of institutions understand both NRF and NDRF concepts and how they can be implemented 

to leverage resources. Additional information can be found in the Guide to Navigating FEMA 

and SBA Disaster Aid for Cultural Institutions. 

 Private nonprofits and individual owners or businesses are not always able to find the resources 

to rehabilitate or restore their historic properties. These properties can contribute to the economic 
Recovery Federal Interagency Operational Plan

H-6 

health25 of the town (especially those on “Main Street”). If they cannot be rebuilt or restored (or 

are rebuilt or restored in a way that negatively affects the historic integrity and detracts from 

downtown), the ability of the community to recover from disaster may be hampered. Private 

sector operators of business on or in natural resources or cultural properties may play an 

important part of the local economy. For example, tourist economies are often predicated on a 

natural resource such as a beach or a cultural landmark. 

 There are several potential impediments to effective data sharing. Information on cultural 

resources is stored in different ways in each state. The information may be located at a 

clearinghouse run by the state, a university or a museum. In some cases, the information is kept 

by an often overwhelmed SHPO and/or Tribal/Territorial Historic Preservation Office (THPO). 

The information might be in hard copy or electronic form. Mapped information might be in a GIS 

format, but the platform varies. Different types of information are also collected by each state, so 

comparing data could be problematic. These variables make analysis very difficult to accomplish 

quickly. Control of the information is also an issue, as much of it is considered sensitive data 

only to be shared with professionals, universities, or other predetermined parties. Finally, most of 

the available data on cultural resources comes from studies resulting from a need for NEPA or 

NHPA compliance. These studies only look at the project area, so there may be important 

resources that have not been identified or inventoried. For this reason, it is very important to 

include local expertise during assessments, in order to learn what those unidentified resources 

are. 

 Some funding gaps could occur when FEMA PA funding does not cover a particular aspect of a 

historic property. For example, tornadoes touched down in the Nashville, Tennessee, area in 

1998, felling thousands of trees. More than 1,000 trees on the Hermitage plantation, Andrew 

Jackson’s home, were damaged or felled. Tree and shrub replacements are normally not eligible 

for FEMA PA funding; however, many of these trees were more than 150 years old and were 

considered important elements of the NRHP- and National Historic List-listed property. Other 

Federal agencies and volunteer efforts were needed to bridge the gap. Further funding gaps can 

occur because a particular private nonprofit does not qualify for FEMA PA funding (e.g., an old 

theater used for performing arts in Milton, Florida, was damaged by Hurricane Ivan and had to 

rely on non-Federal funding to conduct repairs). Partnerships and resource coordination have 

helped fill these gaps. 

Recovery Targets 

The Federal agencies would be prepared to deliver the NCR core capability for the Recovery mission 

area and develop recovery-specific target statements with the input of partnering agencies and 

organizations. Target statements are key outcomes expected from applying a core capability during 

recovery operations. The target statements listed below supplement those outlined in the National 

Preparedness Goal. 

1. Provide integrated Federal technical, program, and regulatory assistance to build local, state, 

tribal, territorial, and private sector, capacity to support local recovery priorities for preserving, 

conserving, rehabilitating, and restoring impacted natural and cultural resources. 

 

25 American Planning Association Policy Guide on Historic and Cultural Resources, 1997, and Donovan D. 

Rypkema, The Economics of Historic Preservation: A Community Leader’s Guide. National Trust for Historic 

Preservation; 2nd Edition, March 1, 2005. 
Recovery Federal Interagency Operational Plan 

H-7 

2. Coordinate and facilitate the sharing and integration of information on impacts to natural and 

cultural resources to aide in understanding recovery needs and to support sound decisions by 

impacted stakeholders. 

3. As part of the RSS, identify resources and programs (Federal and other) that can be leveraged to 

support development and implementation of effective, resilient, and sustainable strategies. 

4. Educate local communities on best practices (e.g., establishment of recovery task forces), 

available community-specific cultural and natural resource organization networks, 

environmentally-friendly designs, and mitigation actions to reduce future environmental impact, 

preserve sensitive resources, and enhance community resilience. 

Federal Coordinating Structure 

Overview of Partners 

Table H-3 defines the NCR RSF Coordinating Agency, Primary Agencies, and Supporting 

Organizations. Further explanation of their respective roles within the RSF is provided later in this 

section. 

Table H-3: Members of the NCR RSF 

Natural and Cultural Resources 

NCR RSF facilitates the integration of capabilities of the Federal Government to support the 

protection of natural and cultural resources and historic properties through appropriate response 

and recovery actions to preserve, conserve, rehabilitate, and restore them consistent with postdisaster community priorities and in compliance with applicable EHP laws and Executive 

Orders.

Coordinating Agency: Department of Interior (DOI)

Primary Agencies: DOI; Environmental Protection Agency (EPA); Federal Emergency

Management Agency (FEMA)

Supporting Organizations: Advisory Council on Historic Preservation; Corporation for National 

and Community Service; Council on Environmental Quality; Delta Regional Authority; 

Department of Agriculture (USDA); Department of Commerce (DOC)/ National Oceanic and 

Atmospheric Administration (NOAA); Department of Homeland Security (DHS)/National 

Protection and Programs Directorate (NPPD); General Services Administration (GSA); Heritage 

Emergency National Task Force; Institute of Museum and Library Services; Library of Congress; 

National Archives and Records Administration; National Endowment for the Arts; National 

Endowment for the Humanities; U.S. Army Corps of Engineers (USACE)

The DOI is the Coordinating Agency for the NCR RSF. The Office of Environmental Policy and 

Compliance fulfills this role for DOI. When the Coordinating Agency accepts a reimbursable MA 

from FEMA, it facilitates effective communication and coordination among NCR RSF Primary 

Agencies, Supporting Organizations, and other partners and stakeholders. These other stakeholders 

include, but are not limited to, the corresponding local, state, tribal, territorial, insular area 

government; nongovernmental organizations; and the nonprofit and private sector that comprise the 

disaster-affected community. This coordination is intended to minimize the potential for duplicative 

efforts, confusion, and unnecessary burdens on the local, state, tribal, territorial, and insular area 

community. The RSF facilitates the capability of the local, state, tribal, territorial, and insular area 

leadership in disaster-impacted communities to take ownership of the recovery planning process and 

to exercise primacy and initiative. 
Recovery Federal Interagency Operational Plan

H-8 

The Primary Agencies play leadership roles in identifying, assessing, and planning for the recovery 

of NCR in disaster-impacted communities. This is especially true for the Primary Agencies (or 

Supporting Organizations) that are deployed to a community immediately after a disaster, as they are 

able to provide initial, direct information about disaster impacts and potential long-term community 

recovery needs. The agencies and organizations that are active partners of the NCR RSF foster 

communication and coordination throughout the recovery process, and encourage recovery 

stakeholders—including the local, state, tribal, territorial, and insular area organizations and 

experts—to form an NCR task force. As prescribed by the NDRF, the NCR RSF Annex stresses the 

importance of local primacy in the recovery process. While the RSF partners can aid coordination 

and facilitation, they do not occupy a primary role on the task force. Local, state, tribal, territorial, 

and insular area representatives take leading roles in this community-driven process, which promotes 

buy-in and support from impacted community members. 

Members of this task force could vary depending on the type and severity of the disaster and the 

capacity of the local, state, tribal, territorial, and/or insular area government to address recovery. 

Participation by the RSF Federal partners in these task forces will also vary depending on both the 

scope and the severity of the disaster, and the ability of the Federal partners to deploy staff through 

reimbursable MAs or other similar funding mechanisms. Review of pre-disaster documents, 

agreements or MOUs might be useful in identifying potential stakeholders for participation on the 

task force. For example, if a Programmatic Agreement was previously prepared with the 

SHPO/THPO, it can be used to help identify critical resources impacted by a disaster and may help 

focus NCR recovery efforts. Potential candidates for key partners or stakeholders at the local, state, 

tribal, territorial, and insular area levels are identified below. 

Natural Resources 

 Tribal partners and stakeholders may include representatives from agencies, organizations, 

confederations, or councils, such as tribal environmental protection organizations, natural 

resources organizations, and planning departments. 

 State partners and stakeholders may include representatives from agencies, organizations, or 

departments that oversee natural resources, environmental protection, and fish and wildlife 

protection. 

 Local partners and stakeholders may include representatives from agencies, organizations, or 

departments, such as planning departments, local media, and certain nongovernmental 

organizations that operate at the local level. 

Cultural Resources 

 Tribal partners and stakeholders may include representatives from agencies, organizations, 

confederations, or councils that oversee archives, cultural centers, historic preservation, libraries, 

and museums. 

 State partners and stakeholders may include representatives from agencies, organizations, or 

departments that oversee archives, asset management, historic preservation, and state parks. 

 Local partners and stakeholders may include representatives from agencies, organizations, or 

departments such as planning departments, arts organizations, and archival organizations. 

While the local, state, tribal, territorial, and insular area agencies and other stakeholders organize and 

comprise the task forces, the partners active in the NCR RSF coordinate and communicate closely 

with these task forces. This communication is key to helping ensure that natural and cultural 

resources important to the community, and/or nationally significant resources, are addressed in 
Recovery Federal Interagency Operational Plan 

H-9 

disaster recovery plans. The following are some other entities that are not identified as active partners 

of the NCR RSF, but may work in coordination with the NCR RSF members on a case-by-case basis: 

 Preservation nonprofits (such as the National Trust for Historic Preservation including the Main 

Street Program); 

 Preservation professionals from organizations such as American Institute of Architects, American 

Association for State and Local History, Association for Preservation Technology, American 

Planning Association, and American Institute for Conservation; and 

 U.S. Green Building Council. 

Roles and Responsibilities 

Recovery Authority and Funding 

Whether or not the RSF partners can be used in disaster recovery depends on the following factors: 

the type, scope, location and seasonal timing of the disaster; the extent of damages and destruction it 

has caused; the natural and cultural resources and historic properties adversely impacted; and the 

timeframe, scope, and cost of subsequent recovery efforts and projects. In addition, the availability of 

many NCR RSF partners to devote time or deploy staff to assist community recovery is constrained 

by several realities. 

Among these constraints is a limitation on agency resources. The primary mission of the Federal staff 

is conducting the agencies’ base programs. If the nexus of those base programs and/or the land units 

managed by that agency to the affected disaster area is minimal, the recovery response function of 

that agency with limited staff resources may be a lower priority than its other mission objectives. The 

extent to which DOI and other NCR RSF partners can accept MAs for recovery work depends on the 

degree to which they can be adequately reimbursed by FEMA’s Disaster Fund for assistance/work. 

Moreover, there is a need for FEMA (and its FDRC) to clearly specify the work/expertise requested 

of DOI and other NCR RSF partners. This is required to make sure the NCR RSF partners can wisely 

respond to FEMA’s requests and efficiently address the recovery needs of the affected local 

communities. 

Capabilities and Resources of Member Agencies and Organizations 

Tables H-4, H-5, and H-6 outline the functions that the RSF agencies and organizations can provide 

to a community’s recovery effort.

Table H-4: RSF Coordinating Agency Functions 

Coordinating Agency Functions

Department of the 

Interior

 Represents NCR RSF at the national level.

 Maintains communication within the NCR RSF and across other RSFs for 

natural and cultural resources recovery issues and develops an action 

plan to avoid duplication of efforts.

 Coordinates activation and deployment of recovery personnel.

 Coordinates and leverages applicable Federal resources for recovery of 

natural and cultural resources.

 Monitors supported and implemented recovery programs.

 Evaluates the effectiveness of Federal NCR RSF efforts.
Recovery Federal Interagency Operational Plan

H-10

Table H-5: RSF Primary Agency Functions 

Primary Agency Functions

Department of the 

Interior

 Provides technical assistance and subject matter expertise in assessing 

impacts on natural and cultural resources following a disaster and during 

recovery activities.

 Coordinates with appropriate state, tribal, territorial, insular area, and 

Federal entities to ensure actions taken during recovery operations 

consider natural and cultural resources.

 Shares best practices and assists in development of programmatic 

approaches to address natural and cultural resources issues.

 Provides technical expertise on NEPA, ESA, and NHPA compliance.

 Provides subject matter expertise in stabilizing drastically disturbed 

landscapes, restoring damaged/highly eroded watersheds, and providing 

project management.

 Provides tribal consultation, coordination, and technical assistance to 

tribes to develop policies and procedures to address emergency 

management issues.

Environmental 

Protection Agency

 Provides technical assistance to support recovery planning of public 

health and social services infrastructure.

 Provides technical assistance for long-term cleanup to minimize public 

health threats and adverse impacts to the environment, including 

environmental sampling and monitoring, site assessment, 

decontamination, and disposal.

 Identifies relevant EPA programs and incentives that have a role in 

supporting the preservation, protection, conservation, rehabilitation, 

recovery, and restoration of natural and cultural resources during 

recovery.

Federal Emergency 

Management Agency

 Provides leadership and technical and financial assistance to Federal 

recovery missions, including guidance on IA, PA, and Hazard Mitigation 

Program eligibility.

 Identifies relevant Federal programs and incentives that have a role in 

supporting the preservation, protection, conservation, rehabilitation, 

recovery, and restoration of natural and cultural resources during 

recovery.

 Promotes the principles of sustainable and disaster resistant 

communities through the protection of natural resources such as coastal 

barriers and zones, floodplains, wetlands, and other natural resources 

critical to risk reduction.

 Promotes activities that cultural institutions can pursue to develop and 

implement strategies for the protection of cultural collections and 

essential records.
Recovery Federal Interagency Operational Plan 

H-11

Table H-6: RSF Supporting Organization Functions 

Supporting 

Organization Functions

Advisory Council on 

Historic Preservation

 Performs outreach to stakeholders regarding proposed mitigation for 

disasters affecting historic properties.

 Facilitates the identification of subject matter experts to provide timely 

assistance for cultural resources and historic sites damaged by 

disasters.

 Provides policy advice regarding historic preservation focused on the 

nature of the incident.

 Trains and educates agencies and other stakeholders regarding historic 

preservation reviews.

 Collaborates with agencies on coordination and integration of NEPA and 

NHPA into recovery initiatives or projects.

Corporation for National 

and Community Service

 Assists communities across the Nation in preparing for, responding to, 

and recovering from disasters through two primary national service 

programs: AmeriCorps and Senior Corps.

 Provides trained members to support communities with their most 

pressing needs, particularly long-term recovery issues.

 Facilitates and leverages volunteer engagement for disaster recovery by 

working closely with State Service Commissions, NVOAD, and other 

local, state, tribal, territorial, and Federal partners to provide national 

service members and resources in a variety of recovery functions.

 Engages in the following recovery functions (this is a partial list): case 

management intake, direct physical labor, volunteer management, and 

capacity building for local, state, and Federal government, nonprofit, and 

faith-based organizations.

 Provides technical assistance to build upon and share best practices 

among State Service Commissions, nonprofits, communities, etc. to 

address specific regional and local needs throughout the long-term 

recovery process.

 Supports RSF national- and field-level operations with subject matter

expertise and staffing support, as appropriate.

Council on 

Environmental Quality

 Provides assistance at the national level on issues involving NEPA 

reviews for recovery planning.

 Provides assistance in coordinating planning for the long-term recovery 

of natural and cultural resources.

 May provide emergency alternative arrangements for near term recovery 

efforts that are not exempted from NEPA review under the Stafford Act.

Delta Regional Authority

 Maintains relationships with the key players at the local and state level 

and regularly partners with them on various initiatives related to cultural 

resource sustainment.

 Plays a major role in festival and cultural events development, and 

museum and cultural venue sponsorship.
Recovery Federal Interagency Operational Plan

H-12

Supporting 

Organization Functions 

Department of 

Agriculture

 Provides technical assistance to facilitate recovery of USDA-regulated 

facilities.

 Facilitates multi-agency coordination of whole-community resources to 

support recovery activities at regulated facilities such as zoos and 

aquariums.

 Provides technical advice, information, and other assistance to help 

prevent or minimize injury to and to restore or stabilize natural resources. 

Areas of concern include disaster area assessment; plant materials 

propagation; soil surveys; drought preparedness and mitigation; critical 

habitat, including environmentally sensitive and culturally significant 

areas; watershed survey, planning, protection, rehabilitation; and 

reforestation and other erosion control.

 Provides technical advice on outbreaks of animal/zoonotic disease and 

plant pest infestation and eradication or decontamination strategies as 

appropriate.

Department of 

Commerce

 Provides technical and subject matter expertise in assessing impacts on 

natural and cultural resources following and during recovery activities.

 Provides technical assistance and/or subject matter expertise regarding 

program eligibility, application processes, and project requirements.

 Provides technical assistance or other resources to localities, states, or 

tribes in obtaining financial assistance, potentially from other entities, for 

eligible disaster recovery projects or programs.

 Provides rapid response research grants to assess ecosystem and 

community impacts.

 Facilitates community meetings, ensuring appropriate scientific 

information is available to communities.

DHS/National Protection 

and Programs 

Directorate

 Provides a coordinating function with the private sector across the 16 

infrastructure sectors.

General Services 

Administration

 Provides facility space for archives/records that may need to be 

temporarily stored via coordination with GSA Regional Emergency 

Coordinators (RECs).

 Provides technical expertise to promote the viability, reuse, and integrity 

of historic buildings that the General Services Administration owns, 

leases, or has the opportunity to acquire.

Heritage Emergency 

National Task Force

 Facilitates the identification of organizations and individuals that can 

provide impact-assessment assistance to cultural heritage institutions.

 Facilitates the identification of subject matter experts for cultural 

resources and historic properties.

 Directs localities, states, and tribes to online resources and tools that can 

be used to initiate hazard mitigation by cultural institutions and historic 

properties.
Recovery Federal Interagency Operational Plan 

H-13

Supporting 

Organization Functions 

Institute of Museum and 

Library Services

 Coordinates technical assistance and subject matter expertise in the 

treatment of objects and records associated with historical, cultural, and 

natural heritage.

 Coordinates technical assistance and subject matter expertise through 

library networks and state library agencies to aid affected areas in egovernment interactions.

 Provides information about geographic locations, services, and staffing 

of the Nation's libraries and museums in order to facilitate the 

deployment of local, expert teams to care for special material.

Library of Congress

 Helps identify agencies, organizations, and individuals that can assess 

the impact of a disaster on cultural institutions and cultural resources.

 Provides expert advice and online guidance on recovery services, 

options, and protocols for damaged books, printed materials, 

manuscripts, photographs, and other select cultural resources.

 Provides expert advice and information on mitigation measures to 

reduce or prevent the future loss of cultural resources.

National Archives and 

Records Administration

 Helps identify agencies, organizations, and individuals that can assess 

the impact of a disaster on cultural institutions.

 Provides expert advice and online guidance on recovery services, 

options, and protocols for damaged textual, photographic, electronic, and 

other records.

 Provides expert advice and information on mitigation measures to 

reduce or prevent the future loss of historical records.

 Provides, through the National Historical Publications and Records 

Commission, modest grants to support projects and training that facilitate 

the use and long-term preservation of historical records held by archives 

and other repositories.

National Endowment for 

the Arts

 Acts as a resource to support the Guide to Navigating FEMA and the 

SBA: Disaster Aid for Cultural Institutions, and Before and After 

Disasters: Federal Funding for Cultural Institutions with FEMA.

 Participates in Heritage Emergency National Task Force (an NCR RSF 

Supporting Organization), which is co-sponsored by FEMA and the 

Smithsonian Institute.

 Participates in the National Coalition for Arts Preparedness and 

Emergency Response, a leading voluntary task force of more than 20 

national, regional, state and local arts organizations, public agencies, 

and foundations. The long-term goal of the Coalition is to create an 

organized safety net for artists, and the organizations that serve them, in 

the United States.

 Supports Craft Emergency Relief Fund, and the development of South 

Arts’ ArtsReady, a web-based emergency preparedness platform 

designed to provide arts and cultural organizations with customized 

business continuity plans for post crisis sustainability.

 Works with its partner state and local arts agencies to identify arts 

organizations that have suffered losses, and develops plans to provide 

assistance for projects ranging from documentation of lost artistic 

equipment and supplies to programming to implement community-wide 

memorials.
Recovery Federal Interagency Operational Plan

H-14

Supporting 

Organization Functions 

National Endowment for 

the Humanities

 Makes awards for the salvage and recovery of cultural heritage 

collections of nonprofit institutions.

 Creates a large-scale initiative in cases of particular national emergency, 

to offer broad support to cultural heritage institutions for salvage and 

recovery of collections.

 Makes awards through its Preservation and Access Education and 

Training grant program for training workshops and the creation of 

resources to aid emergency preparedness and response.

 Provides support through its Preservation Assistance Grants for Smaller 

Institutions for expert consultation in emergency preparedness.

 Shares information on disasters affecting cultural institutions with other 

members of the Heritage Emergency National Task Force.

U.S. Army Corps of 

Engineers

 Provides archaeological, heritage assets, material culture (including 

archives) and perishable data assessments.

 Provides tribal consultations serving as a technical liaison with National 

Native American Graves Protection and Repatriation Act and other 

Government agencies.

 Provides a range of archaeological, heritage assets management, 

knowledge management, and field forensic services.

 Provides archeological curation and collections management.

Summarized below are descriptions of the categories of assistance potentially available to help 

disaster-impacted communities address NCR recovery needs. 

Technical Assistance Options 

A variety of technical assistance options might be offered depending on the scale and type of disaster 

and the community capacity to address disaster impacts, among other factors. In some instances, 

FEMA may have to issue a reimbursable MA to another Federal agency to secure technical 

assistance, but portions of each option may possibly be accomplished through close coordination 

with local, state, tribal, territorial, and/or insular area partners. Many of the following options would 

benefit from local knowledge. These options include, but are not limited to, the following: 

 Impact Assessments: Help communities identify the extent of the disaster impacts on natural and 

cultural resources, and assess their post-disaster condition; 

 Program Applications: Provide assistance or subject matter expertise regarding the eligibility of a 

recovery project to apply for assistance from various external programs; 

 Policy Issues: Help communities work through policy issues/conflicts that could contradict the 

goals of rehabilitation and recovery; and 

 Hazard Mitigation: As hazard mitigation is one of the goals of recovery, some NCR RSF partners 

might be able to provide technical assistance to help communities address hazard mitigation 

measures in their recovery projects. 

The role of the NCR RSF is to facilitate a coordinated approach to identifying technical assistance 

options as well as the agency or local, state, tribal, territorial, or insular area stakeholder partnership 
Recovery Federal Interagency Operational Plan 

H-15

best suited to address the situation. In many cases, technical assistance can be delivered remotely by 

NCR RSF agencies and organizations. 

Funding Options 

Opportunities may exist for external funding of certain recovery projects that repair, restore, or 

mitigate damaged natural and cultural resources. However, it should be noted that when external 

funding is available, acquiring financial assistance can be competitive. In some cases, NCR RSF 

partners may be able to identify funding sources (e.g., loans, grants) and provide technical assistance 

to make funding applications competitive. Other private sources of funding should also be explored. 

For example, the private sector may be able to deliver funding to support recovery efforts, or 

leverage resources from their partners or other connections to assist in fundraising. 

 Financial Assistance: Help communities identify and take advantage of loan programs, grants, 

and other funding mechanisms NCR RSF agencies/partners may have available to address certain 

NCR recovery needs. 

 Support to Obtain Funding: Help communities identify and potentially obtain financial assistance 

that may be available from sources outside the NCR RSF agencies/partners. 

No NCR RSF agency/partner is committed by this document to deliver financial assistance to 

disaster-impacted communities for recovery purposes. 

Field Support 

Subject to the constraints noted previously, opportunities may exist for subject matter experts from 

NCR RSF agencies/partners to deploy one or more of their staff to a disaster-impacted community to 

provide on-site field support. As previously mentioned, this depends greatly on a variety of factors, 

which may include the clearly demonstrated and described need for well-defined support, the 

capacity of an organization to provide available staff for a clearly determined length of time, and the 

existence of resource and funding constraints. Similar to the constraints affecting potential funding 

options discussed above, no NCR RSF agency or partner is committed by this document to deliver 

field support to disaster-impacted communities for recovery purposes, unless the need is clearly 

demonstrated and the capacity, funding, and appropriate mechanisms are in place. 

Critical Tasks/Activities 

Depending on the characteristics and scope of the disaster, the NCR RSF will coordinate available 

Federal and supporting nongovernmental organization resources to assist disaster-impacted 

communities and perform the following critical tasks. 

Pre-Disaster Preparedness 

Before a disaster occurs, RSF agencies, organizations, and partners can prepare for recovery by 

developing strategies to address NCR recovery issues that impact whole communities. This includes 

identifying and developing relationships with key partners, identifying programs and systems that 

could be leveraged after a disaster, and building an understanding of their resources and capabilities. 

RSF agencies and organizations may also develop recovery plans that address the transitions from 

response to recovery to steady state operations, and promote the principles of sustainability, 

resilience, and mitigation. RSF agencies and organizations can encourage and support local, state, 

tribal, and territorial recovery planning efforts through participation in training, stakeholder 

workshops, or national-level exercises for disaster recovery. As the RSF Coordinating Agency, DOI 

will engage RSF partners on a routine basis in order to support pre-disaster recovery planning, 

develop partnerships, and identify opportunities to collaborate, align, and formalize efforts. 
Recovery Federal Interagency Operational Plan

H-16

Post-disaster Recovery 

Enhanced Recovery Challenges 

Described below are two overarching challenges that the NCR RSF may face in addressing disaster 

recovery, along with potential courses of action to address the challenges. These enhanced challenges 

were developed by the RSF agencies and organizations during an exercise where they were asked to 

consider major recovery challenges and courses of action following a hypothetical major disaster 

scenario. 

Challenge 1: Coordinating with response activities to protect fragile natural and cultural resources. 

In particular, the challenge is to address these issues early in the process. 

 Preferred Course of Action: Pre-disaster planning with response and recovery partners for postincident activities that can protect natural and cultural resources. 

 Pre-disaster Operational Steps: 

 The FEMA Regional Environmental Officer will encourage local, state, tribal, territorial, and 

insular area governments to include NCR expertise at Emergency Operations Centers. 

 FEMA Regional Offices and the NCR RSF partners work with local, state, tribal, territorial, 

and insular area governments and other RSF Primary Agencies and Supporting Organizations 

to establish a network of potential responders and recovery partners who can participate in 

whole-community recovery. 

 FEMA Regional Offices and the NCR RSF partners work with state and tribal governments 

and other RSF Primary Agencies and Supporting Organizations to develop a methodology to 

assess post-disaster needs. 

 FEMA Regional Offices and the NCR RSF partners encourage state and tribal governments 

and RSF Supporting Organizations to proactively create an inventory identifying key 

resources to prioritize protection of pre-disaster and/or restoration of post-disaster. 

 Post-disaster Operational Steps: 

 The FDRC and NCR RSF partners work with local, state, tribal, territorial, and insular area 

governments and other RSF Primary Agencies and Supporting Organizations to assess and 

address capacity gaps. 

 The FDRC and NCR RSF partners facilitate the extension of expertise to communities so that 

considerations related to the management and protection of natural and cultural resources, as 

well as compliance with environmental planning and historic preservation requirements, are 

incorporated into long-term community recovery efforts. 

 DOI works with other Primary Agencies and Supporting Organizations; local, state, tribal, 

territorial, and insular area governments; nongovernmental organizations; the nonprofit 

sector; and the private sector to ensure that programs that support disaster recovery, technical 

assistance, and data sharing can be coordinated. 

Challenge 2: Determining the extent and characteristics of hazardous material contamination. This 

includes determining what methods are necessary for clean-up and how long the contamination will 

exist. Responsible parties might be hard to identify. 
Recovery Federal Interagency Operational Plan 

H-17

 Preferred Course of Action: Pre-planning identification and mitigation of facilities or sites in 

the path of hazards. Looking for opportunities to incorporate whole-community approach. 

Establishing regulatory and environmental review processes in advance. 

 Pre-disaster Operational Steps: 

 FEMA Regional Offices and the NCR RSF partners work with local, state, tribal, territorial, 

and insular area governments and other RSF Primary Agencies and Supporting Organizations 

to identify most likely entities with facilities or sites where hazardous material contamination 

could occur. Encourage pre-disaster preparedness planning for those facilities most at risk. 

 FEMA Regional Offices and the NCR RSF partners work with local, state, tribal, territorial, 

and insular area governments and other RSF Primary Agencies and Supporting Organizations 

to identify methodologies for identifying post-disaster hazardous material contamination and 

mitigating the effects. 

 FEMA Regional Offices and the NCR RSF partners work with local, state, tribal, territorial, 

and insular area governments and other RSF Primary Agencies and Supporting Organizations 

to identify and engage with partners that are most likely to have the capacity for identifying 

post-disaster hazardous material contamination and mitigating the effects. FEMA Regional 

Offices and the NCR RSF partners and other RSF Primary Agencies and Supporting 

Organizations identify ways to streamline regulatory and environmental review post-disaster. 

 Post-disaster Operational Steps 

 The FDRC and NCR RSF partners work with local, state, tribal, territorial, and insular area 

governments and other RSF Primary Agencies and Supporting Organizations to identify 

partners from the nongovernmental organizations, the nonprofit sector, the private sector, and 

individuals to incorporate a whole-community approach to recovery. 

 The FDRC and NCR RSF partners engage and support the community to form a task force to 

address hazardous material issues with a whole-community approach. 

Delivery of the NCR Core Recovery Capability 

The objective of the NCR RSF is to provide guidance that will enable the following: 

 Provision of a systematic approach to understanding the interdependencies and complex 

relationship of natural and cultural resources to the well-being of the community and its 

recovery; 

 Activation and deployment of agencies and supporting organizations; 

 Support of the MSA; 

 RSS development; 

 Facilitation of information sharing; 

 Encouragement of stakeholders to identify issues; 

 Synchronization of activities undertaken through other RSFs; 

 Coordination of cross-jurisdictional issues; 

 Identification of opportunities to achieve resource protection through hazard mitigation 

strategies; 
Recovery Federal Interagency Operational Plan

H-18

 Leveraging of Federal resources and programs to help local, state, tribal, territorial, and insular 

area communities mitigate disaster impacts; 

 Addressing of policy issues; and 

 Encouraging of partners to support a Long-Term Community Recovery planning effort. 

The NCR RSF partners’ technical expertise can be used to help foster a systematic approach to 

recovery that recognizes the interdependencies and complex relationships of NCR to the wellbeing of 

the community. 

Activate and Deploy Agencies and Supporting Organizations 

The NCR RSF partners may be requested to accept reimbursable MAs and subsequently to deploy 

staff to assist in recovery effort. Alternatively, when staff resources are unavailable or limited, they 

may be requested to devise alternate methods to assist long-term NCR recovery needs and provide 

technical assistance remotely when their workload allows. Deployment of NCR RSF partners/staff 

may be unnecessary, unless the community remains overwhelmed by the impacts from the disaster 

and the community’s recovery strategy identifies a specific need. Even then, deployments may not 

always be possible, and in those cases the FDRC must coordinate with the NCR RSF partners and 

local, state, tribal, and territorial stakeholders to develop contingency plans for securing technical 

assistance. 

Identify Priorities and Conduct More In-Depth Assessment (if needed) 

 Supporting the Mission Scoping and Assessment Report 

Once the community organizes its NCR task force or networks, the NCR RSF partners may be 

recruited to communicate with the task force/networks to help clearly articulate recovery needs 

and to identify the capacity required to meet those needs. In order to accomplish this scoping and 

assessment process in a timely manner, it will be important to incorporate existing data. For 

instance, information may be already gathered by FEMA PA staff, or there may be pre-existing 

information available from state or Federal agencies (e.g., SHPO/THPO, and other state/Federal 

agencies that manage fish and wildlife resources). The NCR RSF partners may help to coordinate 

the sharing of data. The NCR RSF partners encourage communication among the task force 

members and the agencies involved by identifying new and/or existing NCR RSF-specific paths 

of communication, while addressing communication gaps and avoiding duplicate efforts. 

 RSS Development 

The NCR RSF partners may be requested to help the community reach a common understanding 

of its recovery needs so that an appropriate RSS can be developed in a timely manner. This will 

require identification of, and coordination with, all entities involved in the recovery effort, 

including other mobilized RSF partners, and should lead to the identification of NCR-specific 

resource gaps. The RSS will be developed with input from local, state, tribal, territorial, and 

insular area stakeholders, task force members, and RSFs. 

 Facilitate Information Sharing 

The NCR RSF partners may help coordinate all aspects of NCR recovery and assistance through 

all post-disaster phases and to help identify where resources might be leveraged to support the 

recovery in ways that avoid waste and improve effectiveness. They may be requested to assist 

local, state, tribal, territorial, and insular area partners, as well as private nonprofits, in 

identifying NCR-specific information gaps. 

 Encourage Stakeholders to Identify Issues 
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The NCR RSF partners may be requested to work closely with the community task force/network 

to develop a plan for coordinating and using resources. Part of the assistance strategy will include 

determining which types of assistance the community needs (e.g., compliance, technical 

assistance, data sharing and/or other programs) and whether the assistance will be targeted 

(focused on one or a few disaster impacts) or whether multiple types of assistance will be needed 

to address multiple issues. This will help the community assess which agencies and stakeholders 

need to be engaged. Based on assessments of disaster-impacted community capacity, it is 

expected that one of the following scenarios will be identified in the RSS: 

 The level of the disaster impact is well within the community’s capacity to manage its own 

recovery, and the FDRC will only need to be informed when/if the situation changes or new 

information is discovered by already-deployed field personnel; 

 The level of the disaster impact encumbers the community’s capacity, and the FDRC will 

engage nongovernmental organizations, the private sector, and other local, state, tribal, 

territorial, and insular area partners to improve capacity (possibly through formation of a task 

force); 

 The level of the disaster impact will exceed the community’s capacity, and the FDRC will 

need to engage the Federal partners and coordinate efforts to provide targeted assistance to 

the community; or 

 The level of the disaster impact will overwhelm the community’s capacity, and the FDRC 

will need to seek and engage outside parties and coordinate recovery efforts to assist the 

community. 

Coordinate Linkages and Interdependencies 

 Coordination with Relevant Response ESFs and Other Frameworks 

The NCR RSF is a complement to the response and short-term recovery efforts that take place 

under the NRF. As the ESF response missions are achieved, the NCR RSF will take over longterm recovery operations, if needed, for the disaster-impacted communities. The NCR core 

capability will incorporate information from appropriate ESFs during this transition. Existing 

entities, such as ESF #11 may provide authorities, expertise, and resources for coordinating and 

facilitating Natural and Cultural Resources and Historic Properties (NCH) assistance, and ESF 

#10 (Oil and Hazardous Materials Response), may provide resources to assess, monitor, and 

perform cleanup actions in support of this core capability. 

Under the NRF, ESF #11 (NCH), is a key ESF with which the NCR RSF will work closely. ESF 

#11 has several response and short-term recovery responsibilities, including those related to the 

protection of NCH and historical properties. 

Transition from ESF #11 (NCH) response activities to NCR RSF recovery activities should be 

eased by the fact that some of the same agencies are involved in both activities. This will help 

convey institutional knowledge gained in the response phase to those involved in the recovery 

phase of a disaster. This overlapping of response and recovery phases should also help ensure 

there are no gaps. In order to achieve a smooth transition between response and recovery phases, 

NCR RSF members should be involved early in the disaster response phase to understand the 

disaster impacts on a community and its recovery needs. It is important to note that departments, 

agencies, and other organizations involved in the recovery phase might not be exactly the same 

departments, agencies, or organizations involved in the response phase, because each phase 
Recovery Federal Interagency Operational Plan

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requires similar but distinct skill sets. This is another reason why coordination between the NCR 

RSF and ESF #11 (NCH) is critical. 

 Coordination with Other RSFs and within the JFO

The organizational structure for coordinating and managing the RSFs at a JFO are described in 

more detail in the base Recovery FIOP. RSF agency staffers deployed to work at the JFO are led 

by the FDRC directly, or with the help of a Coordination Branch Director, if needed. For 

guidance on how this structure can be scaled up or expanded to facilitate Federal coordination 

and the delivery of recovery assistance, refer to the base Recovery FIOP. 

Regardless of the JFO structure or scope of the disaster, if the NCR RSF is activated by FEMA, 

its activities will also need to be coordinated with the other activated RSF activities. The FDRC’s 

role as a coordinator of the activated RSFs is critical because it might enable the NCR RSF 

partners to leverage resources or capabilities to meet recovery needs in a holistic manner. For 

example, if a historic residential neighborhood were impacted, the NCR RSF would coordinate 

with the Housing RSF to address basic housing needs as well as the preservation of historic 

resources in the neighborhood. There might be disaster-impacted natural resources that also serve 

as community infrastructure. In this case, the FDRC would need to coordinate NCR RSF 

activities with the Infrastructure RSF activities to ensure the resources they both bring to the table 

are leveraged. The table below provides example scenarios where the NCR RSF partners would 

be coordinated by the FDRC to work with other RSFs. 

Table H-7: Relationships between the NCR and other RSFs 

RSF Potential Connection to the NCR RSF

Community 

Planning and 

Capacity 

Building

To address natural or cultural resource impacts in a community through strategic 

planning, leveraging CPCB RSF resources, as well as local, state, or tribal 

capacity.

Health and 

Social Services

To address impacted health and social service programs that rely on NCR 

impacted by the disaster.

Economic

To address the rehabilitation of commercial properties within historic districts, 

cultural properties and institutions, and parks and protected areas used for 

recreation and to integrate NCR RSF activities into economic growth through 

tourism or other initiatives.

Infrastructure

To address the rehabilitation of natural resources that might also act as part of a 

community’s infrastructure (e.g., floodplains, natural dikes, roads acting as dams, 

water sources). In addition to natural resources, manmade resources such as 

wastewater treatment plants might also be addressed.

Housing To address the rehabilitation of residential buildings within historic districts and to 

integrate historic components into the rebuilding of historic homes.

In addition to the FDRC and, at times, other RSFs partners, FEMA’s Community Recovery 

Assistance Specialists, are deployed to disaster-impacted communities when needed. These 

specialists come from many different backgrounds. Some are hired locally. They directly engage 

disaster-impacted local, state, tribal, territorial, and insular area officials and community 

stakeholders in long-term recovery efforts. They frequently facilitate community meetings where 
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disaster impacts and potential solutions are discussed. In addition to the FDRC and other RSF 

partners, Community Recovery Assistance Specialists may also assist the NCR RSF partners. 

 Coordination with the Whole Community 

RSF partners, through coordination with other agencies, organizations, and levels of government 

can facilitate assistance to help achieve a successful recovery. In addition to these organizations, 

other partners must also be engaged to support a whole-community effort to recovery. These 

include nongovernmental organizations, the nonprofit sector, the private sector, and individuals. 

Such an array of stakeholders can potentially provide technical expertise, donated supplies and/or 

labor, and, in some cases, funding support for recovery projects. The combined efforts of all 

levels of government, organizations and groups, and individuals can help foster wholecommunity contributions to recovery and help ensure a combination of perspectives and 

resources are drawn upon to enable a holistic recovery. 

 Synchronize with Other RSFs 

The NCR RSF Coordinating Agency facilitates regular communication and cooperation among 

partners and encourages cross-coordination with other RSFs so the community can better protect 

its natural and cultural resources and properties, and the recovery planning efforts can adequately 

address NCR issues. 

 Coordinate Cross-Jurisdictional Matters 

The NCR RSF partners might be requested to facilitate access to Federal programs and to provide 

coordination so that cross-jurisdictional matters are not impediments to progress. 

Identify Available Resources 

 Leverage Federal Resources and Programs 

Based on the assessment, the FDRC and NCR RSF engage the appropriate partners and local, 

state, tribal, and territorial stakeholders to identify funding sources and coordinate the process to 

improve leveraging opportunities. 

 Private and other resources 

The FDRC and NCR RSF work with the appropriate partners and the private sector to develop 

partnership and leverage resources in support of community disaster recovery. 

Provide Technical Assistance 

 Identify Opportunities to Leverage Resource Protection through Hazard Mitigation Measures 

Upon activation, the NCR RSF partners coordinate with FEMA Hazard Mitigation to identify 

opportunities to leverage projects in the recovery plan through hazard mitigation funding or 

programs. Effective coordination partners may significantly increase a community’s chances of 

identifying opportunities for leveraging support for its recovery projects. 

 Address Policy Issues 

The FDRC encourages the NCR RSF partners to identify methods to streamline and leverage 

Federal agency grant programs, applications, and incentives and communicate these programs 

clearly to the affected community. Another component of this is helping disaster-impacted local, 

state, tribal, territorial, and insular area communities understand how their existing policies (or 

lack thereof) could be impeding recovery progress. For example, implementing certain mitigation 

practices may not be possible if planning or zoning regulations are not in place. Ideally, someone 
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already familiar with the policies of the disaster-impacted local, state, tribal, territorial, and/or 

insular area community is included in this effort. 

 Support Implementation of Local and State Recovery Plans 

The FDRC encourages the NCR RSF partners to support long-term community recovery 

planning. The NCR RSF partners may help build support for the community’s recovery efforts 

and help coordinate efforts to find targeted funding sources for specialized areas such as 

restoration/rehabilitation of cultural resources such as landscapes, historic structures, libraries, 

museums, historical societies, records/archives repositories, and collections housed therein. 

Efforts should include compliance with the Americans with Disabilities Act and Section 504 of 

the Rehabilitation Act. 

Transition to Steady State 

As the recovery process moves forward, RSF partners and recovery teams will begin to demobilize 

from the disaster-impacted communities. This demobilization of Federal resources should not 

indicate to the local, state, tribal, territorial, and insular area governments, or to the disaster-impacted 

community that the recovery process is over. It is important that all RSFs prepare them to carry on 

the recovery process and make the transition as smooth as possible. This preparation begins 

immediately upon engagement with community stakeholders, so when Federal resources are 

demobilized and the JFO is closed, the local, state, tribal, territorial, and insular area governments are 

prepared to manage long-term recovery on their own. 

Maintaining coordination with the local, state, tribal, territorial, and/or insular area community while 

the disaster is active, will ensure recovery efforts are maintained into the future. The engagement of 

the NCR RSF is, in many ways, a capacity-building process that allows local, state, tribal, territorial, 

and insular area agencies to gain an understanding of the resources available to them and to manage 

the recovery process. This will prepare them to manage the project after RSF demobilization. 

In some instances, recovery needs might be issues that existed before the disaster but were amplified 

by disaster impacts. For example, certain cultural resources might have already been in disrepair, and 

it is possible the community was already working with the appropriate agency or other organizations 

to address the issue(s). In this case, the local, state, tribal, territorial, or insular area community may 

already be prepared to continue addressing the issue, but may need guidance to address the greater 

impacts caused by the disaster. 

Regardless of a disaster’s scope, local primacy is critical to the recovery process. This involves both 

allowing the impacted community to lead recovery efforts and preparing them to maintain that 

leadership in the long-term. 

Resources 

Other documents that may be used for reference include the following: 

 The NDRF provides the overall operating principles, key players, and coordinating structures that 

guide and support Federal disaster recovery efforts. The concepts of the FDRC and the RSFs are 

first introduced in the NDRF. 

 The NRF provides guidance for ESFs in place immediately following a disaster (the response 

phase). The NRF is a useful tool for professionals involved with either response or recovery, 

because it provides both response guidance and recovery background. The NDRF complements 

the NRF because it provides a transition from response to recovery. Since immediate response 
Recovery Federal Interagency Operational Plan 

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eventually becomes long-term recovery, an understanding of both is essential to understanding 

how to address disaster impacts. 

 The information included in the Guide to Navigating FEMA and SBA Disaster Aid for Cultural 

Institutions is meant as a general guide for cultural institutions seeking Federal funding to aid 

disaster response and recovery. 

 The NIPP is the Federal framework for the protection of infrastructure. 

Natural resource concerns and regulatory structures vary by region and state and can have profound 

implications on coordination efforts. Identifying useful sources of information will be an important 

first step in the coordination process. 

 Sources of Federal Data 

 U.S. Fish and Wildlife Service (USFWS)—data on occurrence of Federally listed plants and 

wildlife (http://www.fws.gov/endangered/) 

 USFWS National Wetland Inventory—locations of wetlands 

(http://www.fws.gov/wetlands/Data/Mapper.html) 

 U.S. Geological Survey—data on natural hazards and remote sensing products and maps 

(http://www.usgs.gov/natural_hazards/) 

 NOAA National Marine Fisheries Service—data on occurrence of anadromous fish 

(http://www.nmfs.noaa.gov/pr/species/criticalhabitat.htm) 

 NOAA National Ocean Service—expertise and assistance on coral reefs and coral reef 

ecosystems.(http://oceanservice.noaa.gov/oceans/corals/) 

 NOAA National Environmental Satellite, Data and Information Service—aerial mapping and 

satellite remote sensing for damage assessment. (http://oceanservice.noaa.gov/topics/) 

 NOAA Office of Marine and Aviation Operations—hydrographic, oceanographic, and aerial 

mapping and sensing for damage assessment (http://www.omao.noaa.gov/) 

 NOAA National Weather Service—expertise and assistance in weather, water, and climate 

information (http://www.weather.gov/) 

 FEMA NEPA Desk Reference—guidance for preparing NEPA documents 

(http://www.fema.gov/library/viewRecord.do?id=3249) 

 FEMA Regional Greenbooks—some regions have developed environmental regulatory 

guidelines for disasters that cover the range of environmental considerations, including 

biological, physical and cultural resources. These include compiled local information. 

 FEMA Environmental Application System mapping—where available, provides a map and 

summary of environmental constraints in project area. This database has been developed 

from available state (fish and wildlife) data, USFWS National Wetland Inventory, FEMA 

National Flood Insurance Program data, and community data 

(https://hazards.fema.gov/femaportal/wps/portal/mmvmapviewer).
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Appendix I: Definitions

Access and Functional Needs Populations: Individuals having access and functional needs may 

include, but are not limited to, people with disabilities, older adults, and populations having limited 

English proficiency, limited access to transportation, and/or limited access to financial resources to 

prepare for, respond to, and recover from the emergency. 

Access/Accessible: Equal opportunity to participate in and benefit from, and integration for, 

individuals with disabilities to fully and equally enjoy the goods, services, programs, privileges, 

advantages, accommodations, and facilities used across emergency management activities. A site, 

building, facility, or portion thereof that complies with the applicable architectural standards and 

otherwise provides program accessibility. 

Activation: When a Federal (agency) recovery asset is asked to provide support to an actual or 

potential disaster incident from their primary work location (i.e., participate in information sharing 

teleconferences, video teleconferences, and email communication). 

All-of-Nation: See Whole Community. 

Animals: Animals include household pets, service and assistance animals, companion animals, 

working dogs, agricultural animals/livestock, wildlife, and other animals (including exotics, zoo 

animals, animals used in research, and animals housed in congregate settings such as shelters, rescue 

organizations, breeders, and sanctuaries) within a jurisdiction. 

Capability Targets: The performance threshold(s) for each core capability. 

Capacity: A combination of all the strengths and resources available within a community, society or 

organization that can reduce the level of risk, or the effects of a disaster. (From the United Nations 

International Strategy for Disaster Reduction.) 

Capacity Building: Efforts aimed to develop human skills or societal infrastructure within a 

community or organization needed to reduce the level of risk or the effects of a disaster. (From the 

United Nations International Strategy for Disaster Reduction.) 

Catastrophic Incident: Any natural or technological incident, including terrorism, which results in 

extraordinary levels of mass casualties, damage, or disruption that severely affects the population, 

infrastructure, environment, economy, national morale, and/or government functions. A catastrophic 

incident could result in sustained national impacts over a prolonged period of time; almost 

immediately exceeds resources normally available to local, state, tribal, territorial, insular area, and 

private sector authorities in the impacted area; and significantly interrupts governmental operations 

and emergency services to such an extent that national security could be threatened. 

Community: A network of individuals and families, businesses, governmental and nongovernmental 

organizations, and other civic organizations that reside or operate within a shared geographical 

boundary and may be represented by a common political leadership at a regional, county, municipal, 

or neighborhood level. 

Community Development Block Grants: A flexible program through which the Department of 

Housing and Urban Development (HUD) provides communities with resources to address a wide 

range of unique community development needs. In response to Presidentially declared disasters, 

Congress may appropriate additional funding for the CDBG program to fund Disaster Recovery 

grants to rebuild the affected areas and provide seed money to start the recovery process. Disaster 

Recovery grants often supplement disaster programs of the FEMA, the SBA, and the USACE. 
Recovery Federal Interagency Operational Plan

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Core Capabilities: Distinct critical elements necessary to achieve the National Preparedness Goal. 

Critical Infrastructure: Systems and assets, whether physical or virtual, so vital that the incapacity 

or destruction of such may have a debilitating impact on the security, economy, public health or 

safety, environment, or any combination of these matters, across any local, state, tribal, territorial, 

insular area, and Federal jurisdiction. 

Cultural Resources: Aspects of a cultural system that are valued by or significantly representative 

of a culture or that contain significant information about a culture. Cultural resources may be tangible 

entities or cultural practices. Tangible cultural resources are categorized as districts, sites, buildings, 

structures, and objects for the National Register of Historic Places (NRHP) and as archeological 

resources, cultural landscapes, structures, museum objects and archives, and ethnographic resources 

for Federal management purposes. Also includes cultural items as that term is defined in Section 2(3) 

of the Native American Graves Protection and Repatriation Act [25 U.S.C. § 3001(3)]; and 

archeological resources, as that term is defined in Section 3(1) of the Archaeological Resources 

Protection Act of 1979 [16 U.S.C. § 470bb(1)]. 

Cybersecurity: Encompasses the cyberspace global domain of operations consisting of the 

interdependent network of information technology infrastructures and includes the Internet, 

telecommunications networks, computer systems, and embedded processors and controllers in 

critical industries. The cybersecurity core capability is the means for protecting cyberspace from 

damage, unauthorized use, or exploitation of electronic information and communications systems and 

the information contained therein to ensure confidentiality, integrity, and availability. 

Debris: The remains of something broken down or destroyed. 

Deployment: The mobilization of Federal recovery assets to the field in support of recovery 

operations. 

Domestic Resilience Group: The Federal Assistant Secretary-level Interagency Policy Committee 

supporting the Homeland Security Council in the development and implementation of national 

policies relating to resilience, such as continuity, mitigation, disaster recovery and response, and 

related issues. 

Functional Needs: The needs of an individual who, under usual circumstances, is able to function on 

their own or with support systems. However, during an emergency, barriers are presented to 

independence that threaten individual security. 

Historic Properties: Any prehistoric or historic district, site, building, structure, or object included 

in, or eligible for inclusion in, the NRHP, including artifacts, records, and material remains related to 

such district, site, building, structure, or object. [54 U.S.C. § 300308 ] 

Individual Assistance: IA includes a variety of programs available to individuals and households 

adversely affected by a major disaster or an emergency. These programs are designed to help meet 

disaster applicants’ sustenance, shelter, and medical needs during their path to recovery. IA disaster 

assistance can include Mass Care and Emergency Assistance, Voluntary Agencies Individuals and 

Households Program, SBA, Disaster Unemployment Assistance, Crisis Counseling Services, and 

Disaster Legal Services. Some programs are available even if there is not a declared disaster. 

Individual with Disability: The term refers to a person (child or adult) who has a physical or mental 

impairment that substantially limits one or more major life activities; a person who has a history or 

record of such impairment; or a person who is perceived by others as having such impairment. The 

term “disability” has the same meaning as that used in the Americans with Disabilities Act 

Amendments Act of 2008, P.L. 110-325, as incorporated into the Americans with Disabilities Act. 
Recovery Federal Interagency Operational Plan 

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See http://www.ada.gov/pubs/ada.htm for the definition and specific changes to the text of the 

Americans with Disabilities Act. State laws and local ordinances may also include individuals 

outside the Federal definition. Children and adults may have physical, sensory, mental health, 

cognitive, and/or intellectual disabilities resulting in access and functional needs and may require 

assistance to maintain independence. 

Individual with Limited English Proficiency: An individual who does not speak English as his/her 

primary language and who has a limited ability to read, write, speak, or understand English. 

Infrastructure: Systems and facilities in both the public and private sector that are essential to the 

Nation’s security, public health and safety, economic vitality, and way of life. The Nation’s 

infrastructure is composed of 16 primary sectors, such as water, transportation, communications, 

dams, energy, and emergency services, to name a few. Although infrastructure systems are defined 

and may operate independently, there are many interdependencies between the 16 sectors and their 

associated systems and facilities that need to be considered in making a community, state, or region 

whole following a major disaster. 

Interagency Policy Committees: The National Security Council Interagency Policy Committees are 

the main day-to-day forum for interagency coordination of national security policy. 

Intermediate Recovery: Phase of recovery that involves returning individuals, families, critical 

infrastructure, and essential government or commercial services to a functional, if not pre-disaster, 

state. Such activities are often characterized by temporary actions that provide a bridge to permanent 

measures. 

Long-Term Recovery: Phase of recovery that may continue for months or years and addresses 

complete redevelopment and revitalization of the impacted area; rebuilding or relocating damaged or 

destroyed social, economic, natural, and built environments; and a move to self-sufficiency, 

sustainability, and resilience. 

Long-Term Recovery Groups: Composed of representatives from disaster response and/or recovery 

agencies who individually address survivor needs as cases. The cases are presented in the context of 

a meeting when the case needs are beyond the capability of the particular agency. Long-term 

recovery groups share decision making authority equally with partner organizations. 

Major Disaster: As defined by the Stafford Act, any natural catastrophe (including any hurricane, 

tornado, storm, high water, wind-driven water, tidal wave, tsunami, earthquake, volcanic eruption, 

landslide, mudslide, snowstorm, or drought) or, regardless of cause, any fire, flood, or explosion, in 

any part of the United States, which in the determination of the President causes damage of sufficient 

severity and magnitude to warrant major disaster assistance under this act to supplement the efforts 

and available resources of local and state governments and disaster relief organizations in alleviating 

the damage, loss, hardship, or suffering caused thereby. 

Mission Areas: Groups of core capabilities, including Prevention, Protection, Mitigation, Response, 

and Recovery. 

Mission Capable: The state of having the essential logistical, administrative, and operational field 

elements in place to enable the execution of FDRC-RSF operational responsibilities. 

Mitigation: Capabilities necessary to reduce loss of life and property by lessening the impact of 

disasters. Mitigation capabilities include, but are not limited to, community-wide risk reduction 

projects; efforts to improve the resilience of critical infrastructure and key resource lifelines; risk 

reduction for specific vulnerabilities from natural hazards or acts of terrorism; and initiatives to 

reduce future risk after a disaster has occurred. 
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National Preparedness: The actions taken to plan, organize, equip, train, and exercise to build and 

sustain the capabilities necessary to prevent, protect against, mitigate the effects of, respond to, and 

recover from those threats and hazards that pose the greatest risk to the security of the Nation. 

Natural Resources: Land, fish, wildlife, biota, and water. Water means salt and fresh water, surface 

and ground water used for drinking, irrigation, aquaculture, and recreational purposes, as well as in 

its capacity as fish and wildlife habitat. 

Nonprofit: An incorporated organization that exists for educational or charitable reasons, and from 

which its shareholders or trustees do not benefit financially. Any money earned must be retained by 

the organization and used for its own expenses, operations, and programs. Many nonprofit 

organizations also seek tax exempt status and may also be exempt from local taxes including sales 

taxes or property taxes. Also called not-for-profit organization. 

Nongovernmental Organization: A nongovernmental entity that serves the interests of its members, 

individuals, or institutions and is not for private benefit. Nongovernmental organizations may include 

faith-based and community-based organizations. 

National Disaster Recovery Support Cadre: Composed of disaster assistance employees 

(reservists) that have been qualified for specific support positions. They support the FCO and FDRC 

in planning and executing all matters concerning disaster recovery as it relates to the NDRF. 

Prevention: The capabilities necessary to avoid, prevent, or stop a threatened or actual act of 

terrorism. Prevention capabilities include, but are not limited to, information sharing and warning, 

domestic counterterrorism, and preventing the acquisition or use of weapons of mass destruction 

(WMD). For the purposes of the prevention framework called for under the National Preparedness 

System, the term “prevention” refers to preventing imminent threats. 

Protection: The capabilities necessary to secure the homeland against acts of terrorism and 

technological or natural disasters. Protection capabilities include, but are not limited to, defense 

against WMD threats; defense of agriculture and food; critical infrastructure protection; protection of 

key leadership and special events; border security; maritime security; transportation security; 

immigration security; and cybersecurity. 

Public Assistance: The PA Program, which is authorized by the Stafford Act and managed by 

FEMA, awards grants to assist local, state, tribal, territorial, and insular area governments and certain 

private nonprofit entities with the response to and recovery from disasters. Specifically, the program 

provides assistance for debris removal, emergency protective measures, and permanent restoration of 

infrastructure. 

Recovery: Those capabilities necessary to assist communities affected by an incident to recover 

effectively, including, but not limited to, rebuilding infrastructure systems; providing adequate 

interim and long-term housing for survivors; restoring health, social, and community services; 

promoting economic development; and restoring natural and cultural resources. 

Redevelopment: Rebuilding degraded, damaged, or destroyed social, economic, and physical 

infrastructure in a community, state, or tribal government to create the foundation for long-term 

development. 

Resilience: Ability to adapt to changing conditions and withstand and rapidly recover from 

disruption due to emergencies. 

Response: Those capabilities necessary to save lives, protect property and the environment, and meet 

basic human needs after an incident has occurred. 
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Restoration: Returning a physical structure, essential government or commercial services, or a 

societal condition back to a former or normal state of use through repairs, rebuilding, or 

reestablishment. 

Risk Assessment: A product or process that collects information and assigns a value to risk for the 

purpose of informing priorities, developing or comparing courses of action, and informing decision 

making. 

Security: The terms “secure” and “security” refer to reducing the risk to critical infrastructure by 

physical means or defense cyber measures to intrusions, attacks, or the effects of natural or 

technological disasters.26

Short-Term Recovery: Phase of recovery that addresses the health and safety needs beyond rescue, 

the assessment of the scope of damages and needs, the restoration of basic infrastructure, and the 

mobilization of recovery organizations and resources, including restarting and/or restoring essential 

services (e.g., gas, water, electricity) for recovery decision making. 

Stabilization: The process by which the immediate impacts of an incident on community systems are 

managed and contained. 

Steady State: A condition where operations and procedures are normal and ongoing. Communities 

are considered to be at a steady state prior to disasters and after recovery is complete. 

Sustainability: Meeting the needs of the present without compromising the ability of future 

generations to meet their own needs. 

Traditionally Underserved Populations/Communities: Groups that have limited or no access to 

resources or that are otherwise disenfranchised. These groups may include people who are 

socioeconomically disadvantaged; people with limited English proficiency; geographically isolated 

or educationally disenfranchised people; people of color as well as those of ethnic and national origin 

minorities; women and children; individuals with disabilities and others with access and functional 

needs; and seniors. 

Whole Community: A focus on enabling the participation in national preparedness activities of a 

wider range of players from the private and nonprofit sectors, including nongovernmental 

organizations and the general public, in conjunction with the participation of all levels of government 

in order to foster better coordination and working relationships. Used interchangeably with “all-ofNation.”

 

26 Presidential Policy Directive 21: Critical Infrastructure Security and Resilience. 
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Appendix II: List of Abbreviations

C.F.R. Code of Federal Regulations 

CARRI Community and Regional Resilience Initiative 

CDBG Community Development Block Grant 

CDFI Community Development Financial Institution 

CI Critical Infrastructure 

CPCB Community Planning and Capacity Building 

CPD Maps Community Planning and Development Maps 

DHS Department of Homeland Security 

DOC Department of Commerce 

DOI Department of the Interior 

DOL Department of Labor 

EA External Affairs 

EDA Economic Development Administration 

ESA Endangered Species Act 

ESF Emergency Support Function 

FCO Federal Coordinating Officer 

FDRC Federal Disaster Recovery Coordinator 

FDRO Federal Disaster Recovery Officer 

FEMA Federal Emergency Management Agency 

FHS Federal Housing Administration 

FIOP Federal Interagency Operational Plan 

GSA General Services Administration 

H&SS Health and Social Services 

HHS Department of Health and Human Services 

HOME Home Investment Partnerships Program 

HQ Headquarters 

HUD Department of Housing and Urban Development 

IA Individual Assistance 

IAA Interagency Agreement 

IAP Incident Action Plan 

IS Infrastructure Systems 

JFO Joint Field Office 
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LDRM Local Disaster Recovery Manager 

LEP Limited English Proficiency 

MA Mission Assignment 

MSA Mission Scoping Assessment 

NCR Natural and Cultural Resources 

NDMS National Disaster Medical System 

NDRF National Disaster Recovery Framework 

NDRPD National Disaster Recovery Planning Division 

NDRS National Disaster Recovery Support 

NEPA National Environmental Policy Act 

NFIP National Flood Insurance Program 

NHPA National Historic Preservation Act 

NOAA National Oceanic and Atmospheric Administration 

NRCC National Response Coordination Center 

NRF National Response Framework 

NRHP National Register of Historic Places 

NVOAD National Voluntary Organizations Active in Disaster 

PA Public Assistance 

PPD Presidential Policy Directive 

RRCC Regional Response Coordination Center 

RSF Recovery Support Function 

RSFLG Recovery Support Function Leadership Group 

RSS Recovery Support Strategy 

SBA Small Business Administration 

SCO State Coordinating Officer 

SDRC State Disaster Recovery Coordinator 

SHPO State Historic Preservation Office 

SNRA Strategic National Risk Assessment 

TCO Tribal or Territorial Coordinating Officer 

TDRC Tribal or Territorial Disaster Recovery Coordinator 

THPO Tribal or Territorial Historic Preservation Office 

TREAS Department of the Treasury 

U.S.C. U.S. Code 

UCG Unified Coordination Group 
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UFR Unified Federal Review 

USACE U.S. Army Corps of Engineers 

USDA U.S. Department of Agriculture 

USFWS U.S. Fish and Wildlife Service 

VA Department of Veterans Affairs 

VIP Very Important Person 
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Appendix III: Authorities and References

 The Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act)—The

Stafford Act describes the programs and processes by which the Federal Government provides

disaster and emergency assistance to local, state, tribal, territorial, and insular area governments,

eligible private nonprofit organizations, and individuals affected by a declared major disaster or

emergency. The Stafford Act is the primary source from which the FDRC derives his/her

authority. The FEMA Administrator and RAs can delegate to the FDRC any or all authorities

typically delegated to an FCO.

 National Preparedness Goal—The National Preparedness Goal defines the core capabilities

necessary to prepare for the specific types of incidents that pose the greatest risk to the security of

the Nation, and emphasizes actions aimed at achieving an integrated, layered, and all-of-Nation

preparedness approach that optimizes the use of available resources. The National Preparedness

Goal reflects the policy direction outlined in the National Security Strategy (May 2010),

applicable PPDs, Homeland Security Presidential Directives, National Security Presidential

directives, and national strategies, as well as guidance from the Interagency Policy Committee

process.

 National Preparedness System—The National Preparedness System is the instrument the

Nation will employ to build, sustain, and deliver those core capabilities in order to achieve the

goal of a secure and resilient Nation. The guidance, programs, processes, and systems that

support each component of the National Preparedness System enable a collaborative, wholecommunity approach to national preparedness that engages individuals, families, communities,

private and nonprofit sectors, voluntary, faith-based, and community organizations, and all levels

of government.

 National Planning System—The National Planning System is a set of interrelated and

interdependent planning documents and planning processes that apply across the whole

community and that contribute to achieving the National Preparedness Goal. The National

Planning System establishes a common and layered approach for synchronized planning.



National Disaster Recovery Framework—The NDRF enables effective recovery support to

disaster-impacted local jurisdictions, states, tribes, territories, and insular area governments. It

provides a flexible structure that enables disaster recovery managers to operate in a unified and

collaborative manner. It focuses on how best to restore, redevelop, and revitalize the health,

social, economic, natural, and environmental fabric of the community and build a more resilient

Nation.

 Rehabilitation Act of 1973—This act prohibits discrimination on the basis of disability in

programs conducted by Federal agencies, in programs receiving Federal financial assistance, in

Federal employment, in the employment practices of Federal contractors, and in the provision of

electronic and information technology by the Federal Government.
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 Post-Katrina Emergency Management Reform Act—This act amended the Homeland

Security Act and modified the Stafford Act with respect to the organizational structure,

authorities, and responsibilities of FEMA and the FEMA Administrator. It enhanced FEMA’s

responsibilities and its authority within the Department of Homeland Security (DHS) and

returned many preparedness functions to FEMA. According to the Act, FEMA leads the

coordination of and supports the Nation in a risk-based, comprehensive emergency management

system of preparedness, protection, response, recovery, and mitigation.27 Under the Act, the

FEMA Administrator reports directly to the Secretary of Homeland Security, and FEMA is a

distinct entity within DHS.

 Other Mission Area Frameworks—In addition to the Recovery mission area framework (the

NDRF), there are frameworks for the other four mission areas: Prevention, Protection,

Mitigation, and Response. The frameworks are the overall integrators for each mission area.

They provide an action-oriented linkage between the national preparedness policies, the National

Preparedness System, and the plans used to implement them. The frameworks are policy

documents, not plans. Frameworks act as foundational guides for the development of plans in

each mission area. These frameworks are not intended to, and do not create any right or benefit,

substantive or procedural, enforceable at law or equity, against the United States, its departments,

agencies, or other entities, its officers or employees, or any other person.

Additional Relevant Authorities 

The following is a non-exhaustive list of additional authorities that could be used by agencies for 

obtaining resources and enhanced capability, as well as the financing of disaster recovery activities. 

 The Economy Act. 31 U.S.C. §§ 1535–1536 authorizes Federal agencies to provide goods or

services, on a reimbursable basis, to other Federal agencies when more specific statutory

authority does not exist.

 The Defense Production Act (DPA). Pub. L. No. 113-172, as amended, 50 U.S.C. §§2061 et

seq. is the primary source of Presidential authorities used to expedite and expand the supply of

critical resources from the United States industrial base to support the national defense. In

addition to military, energy, and space activities, the Defense Production Act definition of

"national defense" includes emergency preparedness activities conducted pursuant to Title VI of

the Stafford Act, protection and restoration of critical infrastructure, and efforts to prevent,

reduce vulnerability to, minimize damage from, and recover from acts of terrorism within the

U.S. The President's Defense Production Act authorities are delegated to the heads of various

Federal departments in Executive Order 13603.

 Service First Legislation. Section 330 of Public Law 106-291, as amended, authorizes the

Secretaries of the Interior and Agriculture to make reciprocal delegations of their respective

authorities, duties, and responsibilities in support of the Service First initiative agency-wide to

promote customer service and operational efficiency. The Service First authority may be used in

place of the Economy Act to expedite interagency cooperation.

 The National Emergencies Act. 50 U.S.C. §§ 1601–1651 establishes procedures for a

Presidential declaration of a national emergency and the termination of national emergencies by

the President or Congress.

27 Except for those activities that may interfere with the authority of the Attorney General or the Federal Bureau of 

Investigation Director, as described in Presidential Policy Directive-8.
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 The Office of Federal Procurement Policy Act. 41 U.S.C. § 1903 authorizes emergency 

procurement authorities (1) in support of a contingency operation, or (2) to facilitate the defense 

against or recovery from a nuclear, biological, chemical, or radiological attack against the United 

States. See also Federal Acquisition Regulation Part 18.2. 

 The Emergency Federal Law Enforcement Assistance Act. 42 U.S.C. § 10501 authorizes the 

Attorney General, in a law enforcement emergency and upon written request by a governor, to 

coordinate and deploy emergency Federal law enforcement assistance to local, state, tribal, 

territorial, and insular area law enforcement authorities. 

 Public Health Service Act. 42 U.S.C. § 201 et seq. forms the foundation of the Department of 

Health and Human Services’ (HHS) legal authority for responding to public health emergencies. 

It includes a section (42 U.S.C. § 247d) that empowers the Secretary of HHS to declare a Public 

Health Emergency if he or she determines, after consultation with such public health officials as 

may be necessary, that (1) a disease or disorder presents a public health emergency, or (2) a 

Public Health Emergency, including significant outbreaks of infectious diseases or bioterrorist 

attacks, otherwise exists. 

 Price-Anderson Act. 42 U.S.C. § 2210 Establishes an insurance framework applicable to the 

nuclear energy industry to compensate the public for certain damages, including personal injury 

and property damages, in the event of a nuclear incident at a commercial nuclear facility. The 

Price-Anderson Act also covers Department of Energy facilities, private licensees, and their 

subcontractors. 

 Clean Water Act. 33 U.S.C. § 1251 et seq. employs a variety of regulatory and nonregulatory 

tools to reduce direct pollutant discharges into the Nation’s waterways, finance wastewater 

treatment facilities, and manage polluted runoff. It also gives the Environmental Protection 

Agency the authority to implement pollution control programs and to set wastewater standards 

for industry and limitations on contaminants in surface waters. The broader goal of the Act is to 

help restore and maintain the chemical, biological, and physical integrity of the Nation’s waters.

 Oil Pollution Act. 33 U.S.C. § 2701 et seq. amended the Clean Water Act and enhances the 

Nation’s ability to prevent and respond to oil spills by establishing a comprehensive regime to 

address oil discharges into U.S. navigable waters, including the provision of funds and resources 

necessary to respond to oil spills. The Act created the national Oil Spill Liability Trust Fund 

(replacing the revolving fund under Section 311(k) of the Clean Water Act), which is available to 

provide up to one billion dollars per spill incident. Additionally, the Act provides new 

requirements for contingency planning both by government and industry via the National Oil and 

Hazardous Substances Pollution Contingency Plan, 40 C.F.R. Part 300. 

 Comprehensive Environmental Response, Compensation, and Liability Act. 42 U.S.C. § 

9601 et seq., commonly known as Superfund, provides broad Federal authority to respond 

directly to releases or threatened releases of hazardous substances and of pollutants or 

contaminants that may present an imminent and substantial danger to the public health or 

welfare. Response activities are conducted in accordance with the National Oil and Hazardous 

Substances Pollution Contingency Plan, a regulation applicable to all Federal agencies involved 

in responding to hazardous substance releases. 

 Small Business Act. 15 U.S.C. 631 et seq. authorizes the Small Business Administration to 

provide affordable, timely, and accessible financial assistance to homeowners, renters, 

businesses, and private nonprofits following a disaster. Disaster loans for property damages are 

available to homeowners, renters, non-farm businesses of all sizes, and private nonprofit 
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organizations. Certain private nonprofits and small businesses are also eligible for Economic 

Injury Disaster Loans to help with ongoing operating expenses until they recover from the 

disaster.