Mass Care/Emergency 

Assistance Pandemic 

Planning Considerations For State, Local, Tribal, Territorial and Non-Government 

Organizational Planners, Providers and Support 

Agencies 

June 2020
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Mass Care/Emergency Assistance Pandemic Planning Considerations

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Table of Contents

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

2. Purpose, Scope, Planning Assumptions ............................................................................. 2

2.1. Purpose.................................................................................................................................... 2

2.2. Scope........................................................................................................................................ 2

2.3. Planning Assumptions.............................................................................................................. 2

2.3.1. Mass Care/Emergency Assistance............................................................................. 4

2.3.2. NGOS, Community Based Organizations and the Private Sector.............................. 5

2.4. Authorities and References..................................................................................................... 6

2.4.1. Authorities ................................................................................................................. 6

2.4.2. References ................................................................................................................. 6

3. Concept of Operations ........................................................................................................ 7

3.1. Scenarios: Response to a Pandemic Event Only...................................................................... 7

3.2. Scenario: Response to Concurrent Pandemic and Disaster Event(s) ...................................... 7

3.3. Request for Federal Resources Decision Tree Process............................................................ 8

3.4. Organizations and responsibilities for both scenarios ............................................................ 9

4. Appendices ....................................................................................................................... 11

Appendix A: Sheltering .................................................................................................. 13

Congregate Sheltering ....................................................................................................... 13

Non-Congregate Sheltering (e.g. Hotel/Motel, dormitories, converted building space) 20

Additional Information ....................................................................................................... 27

Medical Support to Shelters ..............................................................................................27

CDC Link for Cleaning Requirements................................................................................28

Appendix B: Feeding ...................................................................................................... 28

Non-Congregate Sheltering................................................................................................ 28

Table xx: Activity – Health and Safety................................................................................28

Additional Information ....................................................................................................... 33

USDA FEEDING PROGRAMS..............................................................................................33

Appendix C: Household Pets, Service and Support Animals ....................................... 34

CONGREGATE/NON-CONGREGATE ................................................................................... 34
Mass Care/Emergency Assistance Pandemic Planning Considerations

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Additional Information ....................................................................................................... 41

CDC Guidelines...................................................................................................................41

Appendix D: Distribution of Emergency Supplies ......................................................... 42

Non-Congregate Sheltering................................................................................................ 42

Shelter-In-Place .................................................................................................................. 43

Appendix E: Mass Evacuee Support ............................................................................. 45

Evacuation Areas (Mass care areas)................................................................................. 45

Appendix F: Mass Care/Emergency Assistance Resource Request Process ............. 50

Appendix G: Glossary and Acronyms ............................................................................ 53

Glossary .............................................................................................................................. 53

Acronyms ............................................................................................................................ 57

Appendix H: Internet Links ............................................................................................ 60

Primary Government Pandemic Internet Link .................................................................. 60

Other Useful Websites ....................................................................................................... 60

AMERICANS WITH DISABILITIES ACT ................................................................................60

AMERICAN RED CROSS .....................................................................................................60

ASSOCIATION FOR PROFESSIONALS IN INFECTION CONTROL AND EPIDEMIOLOGY 

(APIC)...................................................................................................................................60

CENTERS FOR DISEASE CONTROL AND PREVENTION ....................................................60

ENVIRONMENT PROTECTION AGENCY (EPA)....................................................................61

FEDERAL EMERGENCY MANAGEMENT AGENCY (FEMA) ................................................61

FEDERAL EMERGENCY MANAGEMENT AGENCY (FEMA), NRC RESOURCE CENTER ....61

GENERAL SERVICES ADMINISTRATION............................................................................61

NATIONAL RESTAURANT ASSOCIATION............................................................................62

NATIONAL VOLUNTARY ORGANIZATIONS ACTIVE IN DISASTERS....................................62

Occupational Health and Safety Office.............................................................................62

READY.GOV.........................................................................................................................62

U.S. DEPARTMENT OF AGRICULTURE...............................................................................62

WORLD HEALTH ORGANIZATION......................................................................................62
Mass Care/Emergency Assistance Pandemic Planning Considerations

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1. Introduction

When a pandemic occurs concurrent to a natural, technological or human-caused disaster, and 

the mass care and emergency assistance needs are beyond the capacity of the state, territory or 

tribe, whole community partners work together to collectively address the needs of the affected 

population. 

During disasters, including pandemics, governors, tribal chief executives and their emergency 

management staff are responsible, with or without federal assistance, for the coordination of mass 

care and emergency assistance within the affected state, tribe or territory. Coordination occurs 

through the appropriate Emergency Support Function (ESF) and the state, local, tribal or territorials’ 

government’s mass care lead agency. Additionally, nongovernmental organizations (NGOs), which 

traditionally deliver mass care and emergency assistance during a disaster, may respond to a 

pandemic with available resources in accordance with the requirements of their internal policies and 

in cooperation with emergency management officials. 

Federal departments and agencies may provide support to an affected state, tribe or territory under

their own scope of authority and funding. The Secretary of the U.S. Department of Health and Human 

Services (HHS) has broad legal authority to render assistance and promote research, investigations, 

demonstrations and studies into the causes, diagnosis, treatment, control and prevention of physical 

and behavioral illnesses and impairment of humans. (Section 301 of the Public Health Service Act;

State Request for Non-Stafford Act Assistance, dated June 9, 2009). HHS support focuses on public 

health issues, including the establishment of public health actions, guidance, recommendations and 

systems for monitoring and protecting the health of affected populations.

This document examines the unique considerations when developing mass care and emergency 

assistance plans associated with a pandemic scenario. The processes discussed can be 

implemented by the jurisdiction without federal assistance or when federal assistance is requested 

and available. In this document, “jurisdiction” refers to local, state, tribe or territory, insular area and 

federal governments.

When a pandemic occurs concurrent to a natural, technological or human-caused disaster and the 

mass care and emergency assistance needs are beyond the capacity of the state, tribe or territory, 

whole community partners work together to collectively address the needs of the affected 

population. FEMA aids affected survivors when a Stafford Act declaration of emergency or major 

disaster is authorized by the president. HHS works closely with FEMA and responds under its own 

statutory authority.

After a presidential emergency or major disaster declaration, FEMA assistance includes the 

coordination and provision of life-sustaining mass care and emergency assistance services, 

including sheltering, feeding, distribution of emergency supplies, reunification, mass evacuee 

support, support for survivors with disabilities and/or access and functional needs and support for 

household pets, service animals and support animals.

The state, local, tribal or territorial mass care lead agency will be a major component within the first 

line of defense during a pandemic emergency. 
Mass Care/Emergency Assistance Pandemic Planning Considerations

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The mass care lead agency has the primary responsibility to identify potential shortfalls and ensure 

that adequate resources and services are properly identified and coordinated, in an effort to meet 

the disaster-related requirements of the population affected during a pandemic outbreak.

2. Purpose, Scope, Planning

Assumptions

2.1. Purpose 

This document is intended to provide planning considerations for jurisdictions that are a) responding 

to a pandemic or b) responding to a pandemic occurring concurrently with a natural, technological 

and/or human caused disaster.

2.2. Scope 

The scope of this document includes only mass care and emergency assistance functions and the 

unique planning considerations in the context of a pandemic.

The delivery of mass care and emergency assistance during a pandemic event may vary due to the 

unique health and safety planning requirements promulgated by HHS and the Centers for Disease 

Control and Prevention (CDC).

2.3. Planning Assumptions

Mass care and emergency assistance planners, providers and support agencies should consider the 

geographic scope and severity of the pandemic event, as pandemic events have different and more 

complex planning elements that must be considered to ensure a safe and successful delivery of 

mass care resources and services. The following is a list of assumptions and conditions that have 

a significant impact on the success of the planning and response activities: 
Mass Care/Emergency Assistance Pandemic Planning Considerations

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The National Response Framework 

(NRF), 4th Edition (October 29, 

2019) Annex for ESF #6, Mass 

Care, Emergency Assistance, 

Temporary Housing and Human 

Assistance includes the following 

mass care and emergency 

assistance components:

Table 1: List of assumptions and conditions 

Pandemic Pandemic Concurrent with a Disaster

A viral pandemic has spread across the globe, 

significantly impacting the U.S. and a multitude 

of other countries and territories. 

Natural, technological or human-caused 

disasters will occur concurrently within a 

pandemic event. 

Many government authorities have established 

and enforced health and safety measures and 

guidelines, including screening, quarantining, 

social distancing and stay at home orders in an 

effort to monitor, mitigate and prevent the 

further spread of illness. 

The need for human and material resources will 

quickly exceed the capability of any one agency

or organization. This occurrence will require a 

combination of resources provided by state,

local, tribal, territorial governments, the federal 

government, private sector and NGOs to deliver 

mass care and emergency assistance to 

affected populations. 
Mass Care/Emergency Assistance Pandemic Planning Considerations

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Pandemic Pandemic Concurrent with a Disaster

Under federal statute, HHS is authorized to take 

measures to prevent the entry and spread of 

communicable diseases from foreign 

countries into the United States and between 

states. 

A pandemic event has different and more 

complex planning elements that must be 

considered to ensure a safe and successful 

delivery of mass care resources and services.

A large number of personnel responsible for 

operating critical infrastructure, including 

utilities, supply and distribution channels (i.e. 

food, pharmaceuticals, etc.), and transportation 

have been stricken with pandemic illness, 

taking care of sick family members, exercising 

social distancing and/or unable to perform their 

duties. 

Mass care and emergency assistance planners, 

providers and support agencies should consider 

the geographic scope and severity of the 

pandemic event. 

Supply chains and municipal services have 

been significantly disrupted due to restrictions 

and/or quarantines. 

Many jurisdictions do not have adequate plans 

for responding to a natural, technological or 

human-caused disaster in a pandemic 

environment. 

Currently there is a shortage of adequate 

medical supplies, medical personnel and 

volunteers.

In the event of a natural disaster, delivery of 

supplies to individuals who may be sheltering in 

place could be hindered for various reasons 

including debris blocking roads and access to 

sites, lack of signage and public health 

measures such as social distancing guidance.

Transportation restrictions and disruptions 

substantially slow the movement of essential 

supplies to their business and end-user 

customers.

Mass care practitioners must identify ways to 

provide virtual support for some activities to 

ensure compliance with health and safety 

measures and guidelines (i.e. social distancing, 

isolation). 

Mass care practitioners will work closely with 

public health officials in an effort to identify, 

monitor, prevent and control outbreaks of 

pandemic illness or other diseases in shelter 

settings.

2.3.1. Mass Care/Emergency Assistance

The delivery of mass care and emergency assistance during a pandemic in conjunction with a 

natural, technological or human-caused disaster will need to be modified to maintain the health and 

well-being of survivors and workers.
Mass Care/Emergency Assistance Pandemic Planning Considerations

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 The safety and security of all mass care responders is priority.

 Shelf-stable meals can be used to supplement initial feeding requirements and may become the

primary option for feeding in a pandemic environment if other wrapped meal options are not

available.

 Some survivors and households who require sheltering will arrive at the shelter without medical

equipment, medical prescriptions and/or supplies, personal assistance services (caregivers) and

personal protective equipment (PPE).

 When a disaster occurs concurrent with a pandemic, congregate sheltering will not always be

advisable, due to social distancing or isolation/quarantine requirements.

 Traditional shelter space will be reduced drastically as a result of social distancing requirements.

 Planning will include alternate options, such as sheltering-in-place or non-congregate shelters

such as hotel/motels, renovated facilities or campgrounds.

 Planning will include alternate feeding strategies for those sheltering-in-place and those located

in non-congregate shelters.

 Due to the impact of a pandemic, augmentation of a jurisdiction’s mass care and emergency

assistance capabilities may take longer to arrive. There is a correlation between quantity of

resources needed and time to mobilize due to distance and availability.

2.3.2. NGOS, Community Based Organizations and the Private Sector

 Due to the effects of a pandemic, the ability of local voluntary organization staff and volunteers

to support mass care and emergency assistance functions will be strained.

 Insufficient quantities of PPE for both workers and survivors may stop or impede response

activities.

 Community-based organizations such as local churches, civic clubs and local businesses may

respond spontaneously to a pandemic that affects their jurisdiction.

 Jurisdictions should provide NGOs and community groups with pandemic-related guidance and

include these organizations in planning to help facilitate their support of survivors in need of

mass care and emergency assistance.

 The ability of local voluntary organization staff and volunteers to support mass care and

emergency assistance functions will be strained due to the pandemic affecting them, their family

members and/or friends.
Mass Care/Emergency Assistance Pandemic Planning Considerations

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 NGOs will not be able to maintain an adequate level of service delivery without appropriate

quantities of PPE and volunteer staff.

 Staff from additional service providers, including food servers and security, should be monitored

for signs of pandemic illness when working in or making deliveries to a mass care and

emergency assistance facility.

2.4. Authorities and References 

2.4.1. Authorities

 FEMA: Sections 403(b) and 502 of the Robert T. Stafford Disaster Relief and Emergency

Assistance Act, 42 U.S.C. 5121-5207 (the "Stafford Act". The Robert T. Stafford Disaster Relief

and Emergency Assistance Act, as Amended (2013) (Public Law 93-288).

 The Public Health Service Act (42 U.S.C. § 201, et seq. (2007). The Federal Food, Drug, and

Cosmetic Act, 21 U.S.C. 301, et seq. (2007).

 The Economy Act (31 U.S.C. §§ 1535;1536). Americans with Disabilities Act of 1990 as

amended, 42 U.S.C. 12101, et seq in 2008. The Rehabilitation Act of 1973, 29 U.S.C. 701, et

seq. The Fair Housing Act of 1968. The Fair Housing Amendments Act of 1988.

2.4.2. References

 Screening individuals for respiratory infection symptoms at entry to homeless shelters, Screening

Clients at Homeless Shelters | CDC

 Public Assistance: non-congregate sheltering delegation of authority, Public Assistance: NonCongregate Sheltering Delegation of Authority | FEMA.gov

 Interim guidance for homeless service providers to plan and respond to coronavirus disease

2019, Interim Guidance for Homeless Service Providers to Plan and Respond to Coronavirus

Disease 2019 (COVID-19) | CDC

 Immediate Expansion of Eligible Ordering Activities Under Federal Supply Schedule (FSS), August

17, 2009, multimedia.3m.com/mws/media/601199O/grantee-access-to-federal-supplyschedules.pdf

 Checklist for Emergency Shelters, American Disabilities Act (ADA), ADA Checklist for Emergency

Shelters (Department of Justice, Civil Rights Division, Disability Rights Section)
Mass Care/Emergency Assistance Pandemic Planning Considerations

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 ESF #6, ESF #8, Memorandum of Understanding (MOU) between FEMA and American Red Cross

as Co-Leads for Mass Care, and The National Infrastructure Protection Plan (NIPP),

https://www.dhs.gov/xlibrary/assets/nipp_consolidated_snapshot.pdf

3. Concept of Operations

This concept of operations is based on two (2) types of events: a pandemic without a disaster 

event and a pandemic during a disaster event. 

3.1. Scenarios: Response to a Pandemic Event 

Only

Viruses may cause moderate to severe illness and spread easily from person to person. Due to the 

pandemic outbreak, a range of actions have been established to prevent further spread of the 

disease, including social distancing, shelter-in-place, travel restrictions and cancellation of large 

gatherings.

A jurisdiction may experience an outbreak of disease that is beyond the capacity of the state, tribe, 

territory or affected local government. The affected jurisdiction should initially seek state or tribal 

assistance. If a state or tribe is unable to provide adequate resources, the state or tribe should 

request federal assistance.

Homeless populations residing in congregate shelters across the country are at risk, due to lack of 

space for social distancing and increased risk of cross contamination

FEMA recognizes that non-congregate sheltering will be necessary during a pandemic in an effort to 

save lives, to protect property and public health and to ensure public safety, as well as to lessen or 

avert the threat of a catastrophe. In accordance with section 502 of the Robert T. Stafford Disaster 

Relief and Emergency Assistance Act, eligible emergency protective measures taken to respond to a 

pandemic emergency at the direction or guidance of state, local, tribal and territorial public health 

officials may be reimbursed under Category B of FEMA’s Public Assistance program.

3.2. Scenario: Response to Concurrent Pandemic 

and Disaster Event(s)

A natural, technological or human-caused disaster has occurred in an area disproportionately 

affected by a pandemic outbreak or a pandemic event emerges during disaster response. 
Mass Care/Emergency Assistance Pandemic Planning Considerations

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As a direct result of the natural or human-caused disaster, it is necessary to provide mass care and 

emergency assistance services to affected individuals and emergency responders. In addition, 

evacuations may be necessary to a neighboring jurisdiction(s) as well as the provision of public 

health and medical services to individuals affected by the pandemic. This could place an additional 

burden on neighboring states or tribes providing mass care to the affected populations. Some 

jurisdictions may not be willing to accept survivors who have, or potentially have been, infected by 

illness. 

NOTE: Depending on the magnitude of the disaster event, a Stafford Act declaration for major 

disaster may be issued to provide federal financial assistance to the state or tribe and affected 

survivors in accordance with existing regulations.

3.3. Request for Federal Resources Decision Tree 

Process 

Most disasters are managed successfully by local, state, tribal, or territorial governments with the 

assistance of voluntary agencies and private agencies. However, a pandemic presents challenging 

health risks that may have a significant impact on staffing capabilities across the country.

Federal resources are usually requested when the resources of local, state, tribe, territory and NGOs 

have been (or will soon be) exhausted. Local voluntary, community and faith-based organizations are 

encouraged to work with local emergency managers in an effort to synchronize response efforts and 

avoid duplication of services. Voluntary, community and faith-based organizations should establish 

relationships with emergency management agencies to report activities and resource shortfalls 

based on service delivery and the needs of the community.

When the combined resources of the various service providers and the impacted jurisdictions are 

insufficient to meet the actual or projected need, it is recommended that a standardized process or 

method for allocating resources be used.

One such method for determining resourcing solutions is to use the SAMPLE Figure in Appendix 7 

Request for Federal Resources Decision Tree Process.

1. Local jurisdictions should attempt to fulfill resource requests and resolve logistical issues using

existing local capabilities. Once a need is identified by a local, county or parish jurisdiction and a

determination has been made that it cannot be met at that level, the jurisdiction should consider

the following options:

a. Can an NGO help satisfy the request? Can a local vendor (e.g. restaurant/caterer, staffing

agency etc.) satisfy the request?

b. If it has been determined that the need cannot be met through the local jurisdiction’s own

network of resources, including NGOs, then coordinate with state, tribe or territory to examine
Mass Care/Emergency Assistance Pandemic Planning Considerations

9 

options with national level NGOs and other NGO partners that are not part of the state 

network to meet the requirement.

c. NGOs providing relief services may seek resources from the state, tribe or territory to

supplement their efforts.

2. If determined that the request cannot be met at the local level, local jurisdictions should

consider the following options:

a. Can the state or tribe satisfy a portion of the request?

b. Can the state or tribe satisfy a part of the request before other resources are used? The state

evaluates its own resources (e.g., state agencies, logistics, contracts, etc.) and those of local

NGOs in the state’s coordinated resource network, which may include donated goods.

3. If the state, tribal or territorial government is unable to fulfill the resource request using their

assets, the request should be elevated to their respective FEMA and HHS regions.

4. For resource requests in support of a pandemic, FEMA and HHS regional authorities will work

closely together in an effort to review and determine the appropriate funding and mechanism to

support requests for federal support.

5. A Resource Request Form (RRF) for federal assistance is prepared and approved by the state

and forwarded to the FEMA Region or Joint Field Office (JFO). (STTs requesting Direct Federal

Assistance may be subject to a cost share of up to 25% depending on the nature of the

declaration).

6. Federal resources, once sourced, are provided to the requesting state, tribe or territory which will

work closely with the federal government to determine the best method of distributing resources.

3.4. Organizations and responsibilities for both 

scenarios 

Table 2: Mass and Emergency Care 

AGENCY OR ORGANIZATION RESPONSIBILITY

State Mass Care Lead Agency  Coordinates state mass care program and

works with local units in providing services

for impacted populations

 Determines capability and capacity of state,

local, private sector and NGO partners

 Coordinates and collaborates with FEMA on

federal support, requests and requirements

 Validates NGO requests for federal support

and determines whether other state, tribe or

territory resources or donated goods can

support the request
Mass Care/Emergency Assistance Pandemic Planning Considerations

10 

Federal ESF #6, Mass Care, Emergency 

Assistance, Temporary Housing and Human 

Services

 Provides technical assistance, planning

support and guidance to states as requested

 Supports state, tribe or territory mass care

and emergency assistance requests

 Coordinates with Voluntary Organizations

Active in Disaster (VOADs), to develop

service delivery strategies and assess the

ability of voluntary organizations to support

MC/EA activities

 Coordinates federal resources requested to

support mass care and emergency

assistance services

Table 3: Logistical Management and Resource Support

AGENCY OR ORGANIZATION RESPONSIBILITY

Federal/State ESF #7, Logistics  Provides Direct Federal Assistance (DFA)

resource support as requested and

approved

 State, local, tribal and territorial

governments, including instrumentalities,

may access General Service Administration

(GSA) Supply Schedules for purchase of

needed items in both the planning and

response phase

Federal ESF #6, Mass Care, Emergency 

Assistance, Temporary Housing and Human 

Services

 Conduct screenings, triage and assess

health needs in shelters and manage

isolation areas

 Determines shelter environmental and

public health needs

 Establishes surveillance system for detecting

pandemic-like illness and other

communicable and non-communicable

diseases among shelter residents and staff

 Assists local jurisdictions in development of

sheltering public health countermeasures

and strategies for detecting, controlling,

preventing and minimizing the spread of

communicable diseases among shelter

residents and staff

 Monitors, develops and communicates

public health messages to providers, local

jurisdictions, other state agencies and the

public
Mass Care/Emergency Assistance Pandemic Planning Considerations

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 States and tribal nations have law

enforcement authority and personnel to

control the spread of disease and protect

the health, safety, and welfare of persons

within their jurisdiction. This includes

enforcing the use of shelter-in-place,

isolation and quarantine requirements. In

most states, breaking a quarantine order is

a criminal misdemeanor

4. Appendices

The first six (6) appendices in this document provide a quick reference for mass care and emergency 

assistance operations provided during a pandemic response. These appendices are organized by the 

types of locations where mass care and emergency assistance is typically provided: non-congregate 

sheltering and shelter-in-place. Federal, state and local governments have encouraged the 

implementation of social distancing in an effort to limit the spread of illness. Due to these measures, 

it is not advisable to set up congregate shelters without proper consultation and coordination with 

public health officials during a pandemic event. 

The type and level of services that can be provided in each of the settings and the considerations for 

the provision of those services will vary.
Mass Care/Emergency Assistance Pandemic Planning Considerations

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Types of sheltering defined:

Table 4: Appendix Table Definitions

TITLE DESCRIPTION

Activity The general category of similar tasks that must be completed 

as part of the planning process

Tasks Specific actions that must be addressed

Standard/Current Procedures Normal disaster procedures for fulfilling mass care and 

emergency assistance services

Guidance for Pandemic Unique mass care and emergency assistance planning 

procedures required for a pandemic

Jurisdiction Action How the local, state, tribal, territorial or insular area will meet 

or implement the pandemic planning consideration
Mass Care/Emergency Assistance Pandemic Planning Considerations

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TITLE DESCRIPTION

Federal Support / Action Federal support for a pandemic will generally be based on a 

public health emergency with HHS as the lead. Stafford Act 

Declaration in support of a pandemic event will be determined 

at that time

Federal assistance for a natural and/or human caused 

disaster will generally be based on a Stafford Act Declaration 

of a major disaster. If a pandemic event occurs in another 

area of the jurisdiction it would require a separate declaration

request

APPENDIX A: SHELTERING

With respect to social distancing measures that have been put in place by various states across the 

country, it is not advisable to set up congregate shelters in an environment heavily impacted by a 

pandemic. However, under any circumstance it is recommended that all jurisdictions work very 

closely with and follow the guidance of their local and state public health departments. The following 

are recommendations and measures to be considered in an effort to prevent the spread of

pandemic illness in locations currently conducting congregate sheltering (i.e., homeless shelters).

Congregate Sheltering

Table 5: Activity – Facility Selection

TASK STANDARD/

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

Determine 

capacity per 

facility

 Current space

requirements of

20/60+ sf

 Ensure facilities

can

accommodate

people with

disabilities

and/or others

with access and

functional

needs.

 Coordinate with

appropriate SLTT

and federal

health officials to

ensure

compliance with

current guidance

 For long-term

sheltering,

provide 110

square feet per

person, based on

CDC guidelines

 Sheltering space

will be reduced

drastically

 Reevaluate the

jurisdiction’s

shelter plan and

adjust number of

available shelter

spaces based on

pandemic

guidelines and

identify additional

facilities, if

required

 Factor in an

additional 10,000-

15,000 square

feet for other

activities (e.g.,

CDC Interim 

Guidance for 

Homeless Shelters 

www.cdc.gov/corona

virus/2019-

ncov/community/ho

melessshelters/index.html
Mass Care/Emergency Assistance Pandemic Planning Considerations

14 

TASK STANDARD/

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

registration, 

quarantine etc.)

 Increase

sheltering capacity

and capability,

(including a

process to rapidly

identify and survey

spontaneous

shelter sites during

activations)

 Utilize shelter

tracking system

designated by

jurisdiction to

track shelter

population and

determine

available space

Table 6: Activity - Facility Maintenance and Engineering

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION ACTION FEDERAL/

SUPPORT 

ACTION

Ensure 

facility meets 

all local code 

and legal 

requirements 

 No change from

existing local

guidance (N/A)

 Coordinate with

appropriate SLTT

and federal health

officials to ensure

compliance

 Ensure the building

has been inspected by

the fire department

and environmental

health services, and

that the facility meets

ADA requirements

N/A

Facility 

Engineering 

N/A  Ensure that the

facility has

adequate air

exchange systems

and service

particularly in

areas designated

for ill survivors

 Work with the building

owner to meet the

CDC

recommendations

 Procure supplies,

services and

equipment using

qualified vendors

and/or suppliers

N/A
Mass Care/Emergency Assistance Pandemic Planning Considerations

15 

Table 7: Activity: Facility Set Up Considerations: Social Distancing

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

Creation of 

quarantine 

and isolation 

area 

N/A  Assign dedicated

staff to work only

in the isolation

area

 Provide personal

protective

equipment (PPE)

for responding

staff

 Coordinate with

state and local

health officials to

ensure

compliance with

current guidance

 When identifying

shelter facilities,

ensure that there

are separate

areas available for

symptomatic and

non-symptomatic

survivors

identified

symptomatic for

non- survivors and

areas for survivors

exhibiting

symptoms

See CDC Guidance 

https://www.cdc.gov

/coronavirus/2019-

ncov/community/ho

melessshelters/index.html

Temporary 

barriers (e.g., 

privacy 

screen) 

N/A  To be used as a

physical boundary

between survivors

for privacy and to

mitigate the risk of

cross

contamination

 Coordinate with

state and local

health officials to

ensure

compliance with

current guidance

Procure supplies, 

services and 

equipment using:

 Local vendors

and/or suppliers

 Sponsoring

organization

 Donations

 State submits RRF

for federal support

 Ensure that

privacy screens

are available for

shelters

GSA Multiple Award 

Schedule (MAS) 

Purchasing Programs

 Disaster

purchasing

 Public Health

Emergency (PHE)

 Cooperative

Purchasing

 1122 Program

www.gsa.gov/buyingselling/purchasingprograms/gsaschedules/schedulebuyers/state-andlocal-governments

Cot spacing  Current space

requirement

of 20/60+ sf

per person

 Head-to-toe

placement

 Coordinate with

state and local

health officials to

ensure

 See CDC Interim

Guidance

www.cdc.gov/

coronavirus/2019
Mass Care/Emergency Assistance Pandemic Planning Considerations

16 

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

must be 

increased 

significantly 

 For long-term

sheltering, provide

110 square feet

per person, based

on CDC guidelines

 100+ sf per

person for medical

equipment (i.e.

wheelchairs)

compliance with 

current guidance

-ncov/community/

homelessshelters/

index.html

Surveillance N/A  Coordinate with

state and local

health officials to

ensure

compliance with

current guidance

 Monitor residents

and staff for signs

of illness

 Establish reporting

and immediate

investigation

protocols with

local public health

officials

 Establish reporting

mechanisms for ill

residents and staff

See CDC Interim 

Guidance 

www.cdc.gov/

coronavirus/2019-

ncov/community/

homeless-shelters/

index.html

Table 8: Activity: Respite Care for Children

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

Personal 

Assistance 

Services 

(PAS) staff

 Personal

Assistance

Services are

formal and

informal services usually

provided by paid

personnel,

friends, family

and volunteers

that enable

individuals to

maintain their

independence

outside of an

 Coordinate with

state and local

officials for

appropriate

guidance

 Staffing

shortages are

likely due to

illness. As such,

identification of

other resources

during the

planning phase is

critical

 Identify

organizations

with specialized

volunteer staff

 Determine

capability and

capacity of local

NGOs and state

agencies

 Establish

contracts with

local 8(A)

businesses and

staffing agencies

 Mission

Assignment

 Federal contracts

 GSA Multiple

Award Schedule

(MAS) Purchasing

Programs

 Disaster

purchasing

 Public Health

Emergency (PHE)

 Cooperative

purchasing
Mass Care/Emergency Assistance Pandemic Planning Considerations

17 

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

institutional 

setting

 Request

state/federal

resource support

 1122 Program

www.gsa.gov/buyi

ngselling/purchasing

-programs/gsaschedules/schedu

le-buyers/stateand-localgovernments

Staff health  Universal

Precautions

 Medical triage of

all staff each

time they arrive

for a shift

 Monitor health of

all staff

 Additional PPE

and specific

equipment for

staff must be

considered

 Coordinate with

state and local

health officials to

ensure

compliance with

current guidance

 Communicate

regularly with

staff to monitor

for conditions of

fatigue and

stress

CDC Medical 

Countermeasures 

508 www.cdc.gov/

cpr/readiness/mcm.

html
Mass Care/Emergency Assistance Pandemic Planning Considerations

18 

Table 9: Activity: Registration

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

Shelter 

Registration 

 Standard

shelter

registration

process (e.g.,

name, address, phone

number)

 Provide separate

registration areas

for those who self –

identify as being ill

 Conduct an initial

screening of all

staff and residents

 Monitor and record

occurrence of

pandemic illnesslike symptoms and

report to local

officials

 Provide any person

presenting

symptoms (cough,

fever) a surgical

mask

 Ensure staff is

briefed on safety

and security

procedures and

precautions prior to

triage of, and

interaction with,

residents

 Secondary

screening to

include a more

detailed

examination

 Coordinate with

state and local

health officials

 Ensure that there

is sufficient

registration staff

 Train staff on use

of forms and

referral to

medical triage

 Prior to medical

screening,

provide separate

waiting areas for

registrants who

are not ill and

those who selfidentify as ill

prior to medical

screening

 Set up handhygiene station in

registration areas

 Provide barriers

between preregistration areas

 Increase use of

technology for

registration

process

 Provide Technical

support to SLTT

partners

 Mission

Assignment

 Federal contracts

Table 10: Activity: Staffing

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

Staffing  Staffing shortages are likely to

occur due to

illness. As such,

 Identify other

sources of

volunteers

including

 Ensure there are

enough materials

and human

resources

 Mission

Assignment
Mass Care/Emergency Assistance Pandemic Planning Considerations

19 

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

identification of 

other volunteer 

resources during 

the planning 

phase is critical, 

aswell as 

provision of 

training specific 

to operations 

during a 

pandemic event

Independent 

Living Centers 

and protection 

and advocacy

staff

 Utilize shelter

residents to

perform duties

unrelated to ICA

management

 Consider predeployment of

additional healthcare workers and

behavioral health

personnel

 to meet the

jurisdiction

requirements

 Determine

capability and

capacity of local

NGOs and state

agencies (assess

sustainability of

current resources)

Procure supplies, 

services and 

equipment using:

 Qualified local

(8a) and national

staffing services

 State submits RRF

for Federal

support

 Federal

contracts

Table 11: Activity: Security

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION ACTION FEDERAL/SUPPORT 

ACTION

Crowd control  Local law

enforcement

 Local and

State

emergency

management

 Notable

increase in

registration/

intake time due

to healthrelated

questions and

concerns and

frustration

 Develop procedures

to speed up

registration (e.g.

use of technology,

self-registration,

Microsoft forms etc.)

 If required, ensure

law enforcement

protection is

available

 Mission

Assignment (i.e.,

ESF #13)

 Federal contracts
Mass Care/Emergency Assistance Pandemic Planning Considerations

20 

Table 12: Activity: External Affairs

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT ACTION

Provide infant 

and child 

feeding and 

hygiene 

support

N/A  Coordinate

with state and

local health

officials to

ensure

compliance

with current

guidance

 Coordinate with

lead child

support state

agency to

identify all

supplies needed

for child health

support

Procure supplies, 

services and 

equipment using:

 Local vendors

and/or suppliers

 Sponsoring

organization

 Donations

 State submitted

RRF for Federal

support

 FEMA CUSI Catalog

https://nationalmasscarestrategy.org/wpcontent/

uploads/2019/09/ CUSISL-Catalog_ September2019.pdf

 USDA-FNS-Child Nutrition

Programs (COVID-19)

 www.fns.

usda.gov/disaster/

pandemic/covid-19

 Mission Assignment

 Federal contracts

Non-Congregate Sheltering (e.g. Hotel/Motel, dormitories, converted 

building space)

Table 13: Activity – Facility Selection - When implementing non-congregate shelter options, 

jurisdictions should obtain an official order signed by a SLTT public health official.

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION ACTION FEDERAL/SUPPORT 

ACTION

Identification 

of Facilities 

Identification 

of Facilities

 Vacant hotel/

motel, retreat

center, dorm,

assisted living

facility or converted building

space

 Facilities may

be fully private

or include use

 Documented

through an

official order

signed by a SLTT

public health

official

 Coordinate with

state and local

health officials

to ensure

 Identify vacant

government- or

privately- owned

property

 Work with local real

estate or property

management firm

 Mission

Assignment

 Federal contracts

 www.fema.

gov/medialibrarydata/15843865

17416-

40bc24e5a2c41

54c1
Mass Care/Emergency Assistance Pandemic Planning Considerations

21 

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION ACTION FEDERAL/SUPPORT 

ACTION

of communal 

bathing or 

feeding areas

compliance with 

current 

guidance

ee44ed143e649

1b/

Procurement_Dur

ing_EE_Circumst

ances_

Fact_Sheet_508

AB.pdf

 Federal surplus

property

https://disposal.

gsa.gov/s/PBC#n

egotiate

Table 14: Activity – Facility Maintenance and Engineering

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION ACTION FEDERAL/SUPPORT 

ACTION

Ensure facility 

meets all local 

code and legal 

requirements 

N/A  Coordinate

with state

and local

health

officials to

ensure

compliance

with current

guidance

 Ensure that building

has been inspected by

the fire department

and environmental

health, and that the

facility meets ADA

requirements

N/A

Table 15: Activity – Facility Resource Considerations

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

Cots/Beds, 

Blankets, 

toiletries 

N/A  Coordinate with

HHS and CDC

officials for

appropriate

guidance

Procure supplies, 

services and 

equipment using:

 Local vendors

and/or suppliers

 Sponsoring

organization

 FEMA CUSI Catalog

https://nationalmasscarestrategy.or

g/wp-content/

uploads/2019/09/

CUSI-SL-Catalog_

September2019.pdf
Mass Care/Emergency Assistance Pandemic Planning Considerations

22 

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

 Donations

 State submitted

RRF for federal

support

 Mission Assignment

 Federal contracts

Personal 

Assistance 

Services (PAS) 

staff 

 Personal

Assistance

Services are

formal and

informal services usually

provided by

paid personnel,

friends, family

members and

volunteers that

enable children

and adults to

maintain their

independence

outside of an

institutional

setting

 Staffing

shortages are

likely due to

illness. As such,

identification of

other resources

during the

planning phase

is critical

 Identify

organizations with

specialized

volunteer staff

 Determine

capability and

capacity of local

NGOs and state

agencies (assess

sustainability of

current resources

 Establish

contracts with

local 8(A)

businesses and

staffing agencies

State submits RRF for 

support

GSA Multiple Award 

Schedule (MAS) 

Purchasing Programs

 Disaster purchasing

 Public Health

Emergency (PHE)

 Cooperative

purchasing

 1122 Program

www.gsa.gov/buying

-selling/purchasingprograms/gsaschedules/schedule

-buyers/state-andlocal-governments .

 Mission Assignment

 Federal contracts

Staff health  Universal

Precautions

 Medical triage

of all staff each

time they arrive

for a shift

 Monitor health

of all staff

 Additional PPE

and specific

equipment for

staff must be

considered

 Coordinate with

state and local

health officials to

ensure

compliance with

current guidance

 Communicate

regularly with staff

to monitor for

conditions of

fatigue and stress

 CDC Medical

Countermeasures

508 www.cdc.gov/

cpr/readiness/mcm.

html
Mass Care/Emergency Assistance Pandemic Planning Considerations

23 

Table 16: Activity – Facility Resource Considerations

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

Shelter 

Registration 

 Standard

shelter

registration

process (e.g.,

name, address, phone

number)

 Implementing

shelter

registration in a

non-congregate

environment

can be complex

and requires a

very organized

approach to

identifying and

maintaining

some level of

visibility on the

status of

residents

 Provide separate

registration areas

for those who self –

identify as being ill

 Conduct an initial

screening of all staff

and residents

 Monitor and record

occurrence of COVID

pandemic illnesslike symptoms and

report to the local

officials

 Provide any person

with symptoms

(cough, fever) with a

surgical mask

 Ensure staff is

briefed on safety

and security

procedures and

precautions prior to

triage of and

interaction with,

residents

 Secondary

screening to include

a more detailed

examination

 Establish social

distancing 6ft apart

 Coordinate with

state and local

health officials

 Ensure that there

is a sufficient

number of

registration staff

 Train staff on use

of forms and

referral to medical

triage

 Provide separate

waiting areas for

registrants who

are not ill and

those who selfidentify as ill prior

to medical

screening

 Set up handhygiene station in

registration areas

 Provide barriers

between

preregistration

areas

 Increase use of

technology for

registration

process. Identify

and establish an

automated shelter

registration

process (i.e.,

kiosk) as needed

 Provide

Technical

support to STT

partners

 Mission

Assignment

 Federal

contracts
Mass Care/Emergency Assistance Pandemic Planning Considerations

24 

Table 17: Activity – Security

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION ACTION FEDERAL/SUPPORT 

ACTION

Crowd control N/A Coordinate with

HHS/CDC

 Coordinate with local

law enforcement

 Establish state and

local security contract

 Arrange for

additional

security support

(ESF #13) if

requested by the

state

Table 17: Activity – Health Support Services

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

Provide infant 

and child feeding 

and hygiene 

support

 Coordinate with

state and local

health officials

to ensure

compliance

with current

guidance

 Ensure

contracts are

prepared for

supplies of

infant feeding

support

 Coordinate with

lead child

support state

agency to

identify all

supplies needed

for child health

support

Procure supplies, 

services and 

equipment using:

 Local vendors

and/or suppliers

 Sponsoring

organization

 Donations

 State emergency

management

 FEMA CUSI

Catalog

https://nationalmasscarestrategy

.org/wp-content/

uploads/2019/0

9/ CUSI-SLCatalog_

September2019.pdf

 Mission

Assignment

 Federal contracts

www.fns.usda.

gov/cn/covid-19-

meal- timesnationwidewaiver

Medical 

Personnel 

 On-call health

and mental

health

practitioners

 Multiple health

professionals

 Pre-identify

organizations with

specialized

volunteer staff

 Determine

capability and

capacity of local

non-governmental

organizations

(NGOs) and state

 Mission

Assignment (i.e.,

HHS)

 Disaster Medical

Assistance

Teams (DMAT)
Mass Care/Emergency Assistance Pandemic Planning Considerations

25 

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

agencies (assess 

sustain- ability of 

current resources)

 Establish

contracts with

local 8(A)

businesses and

staffing agencies

Crisis 

Counseling 

 On-call

behavioral

health

professionals/c

risis counselors

 Coordinate with

state and local

health officials

to ensure

compliance with

current

guidance

 Increase

psychoeducational training

and services for

survivors

 Establish virtual

capability to

practice social

distancing.

Examples:

hotline or video

conferencing for

delivery of

services

 Identify

organizations with

specialized staff to

include volunteer

 Determine

capability and

capacity of state

and local agencies

and NGOs (assess

sustainability of

current resources)

 Consider

establishing a

virtual capability

for community

health programs,

voluntary agencies

and faith-based

programs with a

focus on

behavioral health

issues including

bereavement

counseling to

provide mental

health services

 Provide technical

assistance and

funding through

federal awards so

that the state, tribe

or territorial

government may

augment existing

crisis counseling

services to those

impacted by the

declared disaster

Table 18: Activity – Custodial Services

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

Environmental 

cleaning 

N/A  Provide laundry

equipment or

services to allow

Contracting for 

local environmental 

cleaning services 

 GSA Multiple

Award Schedule
Mass Care/Emergency Assistance Pandemic Planning Considerations

26 

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

linens (such as 

bed sheets, 

blankets, and 

towels) to be 

washed in hot 

water. Provide 

laundry soap and 

tumble dry on a 

hot setting

 Provide

information about

infection control

and safe handling

of contaminated

linens to laundry

workers

should be 

considered

(MAS) Purchasing 

Programs

 Disaster

purchasing

 Public Health

Emergency (PHE)

 Cooperative

purchasing

 1122 Program

www.gsa.gov/buyi

ngselling/purchasing

-programs/gsaschedules/schedu

le-buyers/stateand-localgovernments

 See CDC Interim

Guidance

www.cdc.gov/

coronavirus/2019

-ncov/community/

homelessshelters/

index.html

Waste 

management 

collection: 

garbage / 

infectious 

waste 

 Separate

standard

garbage

collection from

medical waste.

Dispose of

regulated

medical waste

in appropriate

waste

receptacle

(e.g., needles

or other sharp

objects in

puncture-proof

sharps

container

labeled with

 Increase

frequency of

garbage collection

 Place certified

infectious waste

disposal in a “DO

NOT TOUCH”

waste

receptacle/plastic

trash bag. ALL

WASTE SHOULD

BE TREATED AS

“INFECTIOUS”

 Contracting for

infectious waste

disposal should

be considered

for shelters with

an Isolated Care

Area

GSA Multiple Award 

Schedule (MAS) 

Purchasing Programs

 Disaster

purchasing

 Public Health

Emergency (PHE)

 Cooperative

purchasing

 1122 Program

www.gsa.gov/buyi

ngselling/purchasing

-programs/gsaschedules/schedu

le-buyers/stateand-localgovernments
Mass Care/Emergency Assistance Pandemic Planning Considerations

27 

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

bio- hazard 

sticker)

 See CDC Interim

Guidance

www.cdc.gov/

coronavirus/2019

-

ncov/community/

homelessshelters/

index.html

Table 19: Activity – Shelter-In-Place: Activity External Affairs

TASK STANDARD/ 

CONCURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL/SUPPORT 

ACTION

Messaging N/A  Messaging

should be

provided in

various

languages and

forms (closedcaptioning,

Braille, etc.) to

meet various

needs and in

settings to reach

survivors with

disabilities

and/or access

and functional

needs

 Develop a

messaging plan

prior to incident to

ensure timely

distribution of

information to the

public

 Use health

messages and

materials

developed by

credible public

health sources,

such as local and

state public health

departments or

the Centers for

Disease Control

and Prevention

(CDC)

 Coordination

through External

Affairs ESF #15

Additional Information

MEDICAL SUPPORT TO SHELTERS 

Medical surge has been a focus since April 2009, and much of the work in surge has involved HHS

guidance to states, Emergency Medical Treatment and Labor Act (EMTALA) regulations. 
Mass Care/Emergency Assistance Pandemic Planning Considerations

28 

In addition, HHS has several mechanisms in place to help meet state requests for medical personnel 

after all other options (e.g., Emergency Management Assistance Compact (EMAC), Voluntary 

Organizations Active in Disaster (VOAD)) have been exhausted. These include the National Disaster 

Medical System (NDMS), United States Public Health Services (USPHS) Commissioned Corps, 

Medical Reserve Corps, and the Veterans Administration (VA). However, many of these resources 

come from the same communities that would be affected by a pandemic; therefore, the ability of the 

federal government to meet multiple state requests for assistance could be very limited.

CDC LINK FOR CLEANING REQUIREMENTS 

www.cdc.gov/coronavirus/2019-ncov/community/disinfecting-building-facility.html

APPENDIX B: FEEDING

Non-Congregate Sheltering

NON-CONGREGATE: (Hotel, motel, dormitories, converted building space)

Table xx: Activity – Health and Safety 

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Establish 

agreements 

with food 

surveyors

N/A N/A  Establish formal

agreements or

contracts with food

banks to provide

necessary food

commodities

 Determine

capability and

capacity of local

NGOs and state

agencies (assess

sustainability of

current resources)

 Establish contracts

with local vendors

 Provide technical

support to STT

partners
Mass Care/Emergency Assistance Pandemic Planning Considerations

29 

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Personal 

protective 

equipment 

requirements 

 Follow current

federal and state

regulations

including

hairnets, gloves,

and masks

 Coordinate with

HHS and CDC

officials for

appropriate

guidance

related to PPE

 Ensure that the

appropriate

environmental

health

professionals

inspect feeding

vehicles and

equipment

CDC Guideline for 

optimizing PPE and 

equipment supply 

www.cdc.gov/

coronavirus/2019-

ncov/hcp/ppestrategy/index.html

Dietary needs  Coordinate with

health services

staff

 Shelf stable

meals may not

be appropriate

for survivors

affected by the

pandemic. Light

broths, drinks

with

electrolytes,

and “bland”

foods that are

easily digested

should be

considered

 Ensure jurisdictions

haveimmediate

access to required

supplies

 Coordinate with

state and local

health officials to

ensure compliance

with current

guidance

USDA/FNS review 

inventory to 

determine what 

commodities may be 

available to meet the 

needs of individuals 

and families

Supplemental 

Nutrition 

Assistance 

Program (SNAP)

N/A  Coordinate with

state and local

health officials

to ensure

compliance with

current

guidance

 Submit approval

request to FNS.

Ability to

administer program if social

distancing is

required

 Cooperation

among state and

local SNAP

agencies, the state

education agency,

and local

educational

agencies will be

required

USDA-FNS COVID-19 

www.fns.

usda.gov/disaster/

pandemic/covid-19

USDA_FNS CNP 60 

Waiver www.

fns.usda.gov/cn/waiv

er-60- day-reportingrequirements
Mass Care/Emergency Assistance Pandemic Planning Considerations

30 

Table 20: Activity – Staffing

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Food servers N/A  Number of

personnel needed

will depend on the

type of feeding

being considered

 Ensure that there

are sufficient

staffing sources to

meet the

increased need for

food servers

 Coordinate with

federal agencies

for staffing

support

Security  Local law  Public reaction to

diminished food

supplies may

necessitate

additional security

at congregate

feeding sites

 Ensure sufficient

law enforcement

protection

 Mission

Assignment (i.e.

ESF #13 if

requests for

additional security

support is

requested)

Table 21: Activity – Food Distributors

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Food Banks  Secures

donations from

national

food/grocery

manufacturers,

retailers,

growers,

government

agencies and

other

organizations

 Food banks will

encounter staff/

volunteer

shortfalls due to

illnesses

volunteer staff or

reluctance to go

out in public

 Food banks may

experience a

significant

decrease in

donations due to

Food supply

shortages

 Establish

agreements with

food banks

 Coordinate with

food banks and

programs to

distribute meals

to seniors,

homebound

families and

those in

congregate

shelters

 Provide technical

support to STT

partners with

development of

feeding plans
Mass Care/Emergency Assistance Pandemic Planning Considerations

31 

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Restaurant  Provide

discounted meals

and/or coupons

 Restaurants may

close due to ill

employees

 Ensure that

there are

multiple

restaurants in

the area where

hotels may be

used to house

symptomatic

survivors

 Determine

whether

restaurant meals

would be an

eligible expense

through the Public

Assistance

program

Caterers  May be asked to

deliver meals to

hotels/motels

 Caterers may

have difficulty

delivering meals

due to COVID-19

 Ensure there are

multiple mobile

feeding

capabilities

 Coordinate contracts for vendor

support

Mobile Food 

Distributers

N/A  Coordinate with

state and local

health officials to

ensure

compliance with

current guidance

 Distribution of

emergency food

and supplies for

survivors who are

isolated or

quarantined in

their homes in

accordance with

local community

plans

 Monitor these

mobile personnel

for pandemic

like-illness

 Coordinate with

local NGOs and

volunteers

 Determine

capability and

capacity of local

NGOs and state

agencies (assess

sustain-ability of

current

resources)

 State submits

RRF for Federal

support

 Provide technical

support to

jurisdictions with

development of

feeding plans

 Mission

Assignment

 Federal contracts
Mass Care/Emergency Assistance Pandemic Planning Considerations

32 

Table 22: Activity – Household Pet and Service Animal Feeding

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Household Pet 

and Support 

Animal Feeding

N/A  Use shelfstable, easily

digestible feed

when possible

to avoid

gastrointestinal

problems and

have more

palatable

perishable

feeds on hand

for stressed

animals who

are reluctant to

eat

 Establish

agreements with

pet food

providers

 Determine

capability and

capacity of local

NGOs and state

agencies (assess

sustain- ability of

current

resources)

Procure supplies, 

using: 

 Local vendors

and/or suppliers

 Donations

 State submits

RRF for Federal

support

 Mission Assignment

 Federal contracts

Table 23: Shelter-In-Place/Activity – Unique Feeding Considerations

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Caterers 

Coordination 

with localities

 Maintain

awareness of

active feeding

programs, e.g.

Meals on

Wheels,

school lunch

program

 Determine

availability of

the various

programs and

preparedness

for

maintaining

capacity level

and

distribution

means

 Survey shortfalls and

trigger points

to identify

possible need

for jurisdiction

support with

food stuffs

 FEMA provide

technical

assistance to

state and local

governments

Mobile N/A  Coordinate

with state and

 Coordinate

with local

 Provide

technical
Mass Care/Emergency Assistance Pandemic Planning Considerations

33 

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

local health 

officials to 

ensure 

compliance 

with current 

guidance

 Distribute

emergency

pet food and

supplies to

survivors who

are isolated or

quarantined

in their homes

in accordance

with local

community

plans

 Monitor these

mobile

personnel for

signs of

illness

NGOs and 

volunteers

 Determine

capability and

capacity of

local NGOs

and state

agencies

Assess

sustainability

of current

resources

 State submits

RRF for

Federal

support

support to 

state, tribal 

and territorial 

partners with 

development 

of feeding 

plans

Dietary N/A  Survivors with

symptoms of

illness may

not be able to

tolerate or

want typical

shelf stable

meals. They

will need light

broths, drinks

with

electrolytes,

and foods

that are easily

digested

 Ensure that

the programs

providing

mobile

feeding services have

foods that will

support those

in quarantine

who may be

symptomatic

 USDA/FNS

review

inventory to

determine

what

commodities/

programs may

be available to

meet the

needs

Additional Information 

USDA FEEDING PROGRAMS https://www.nationalmasscarestrategy.org/wpcontent/uploads/2014/07/cusi- catalog-as-of-march-2013-v2.pdf
Mass Care/Emergency Assistance Pandemic Planning Considerations

34 

APPENDIX C: HOUSEHOLD PETS, SERVICE AND SUPPORT 

ANIMALS

CONGREGATE/NON-CONGREGATE

NOTE: Household pet shelters may be stand-alone (pets only), cohabitation (pets and humans in 

same facility), or co-located (pets and humans in nearby facilities). 

Service and support animals will remain with their owners at all times and will have access to the 

same level of care and resources as household pets

Table 24: Activity – Facility Selection

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Determine 

capacity per 

facility

 Based on

animal size,

layout, and

facility size

 Coordinate

with HHS and

CDC officials

for

appropriate

guidance

 Reevaluate

number of

available

shelter spaces

based on

pandemic

guidelines and

identify

additional

collocation

facilities, if

required

 Provide

technical

support to STT

partners

 Mission

Assignment

 Federal

contracts

Table 25: Activity – Staffing

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Volunteers  Local or state

volunteer

organizations

are identified

and trained

for animal

emergency

shelter work

 Due to likely

staffing

shortages,

identification

of other

volunteer

resources

during the

planning

 Identify local

volunteer

sources

 Utilize shelter

residents to

perform

duties in animal shelter

 FEMA, USDA/

APHIS provides

guidance for

more sources

of volunteers

 Mission

Assignment

 Federal

contracts
Mass Care/Emergency Assistance Pandemic Planning Considerations

35 

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

phase is 

critical

Table 26: Activity – Registration

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Shelter 

registration 

(coordinated 

with human 

registration) 

 Standard

shelter

registration

process (e.g.

name,

address,

phone

number)

 Identify pets

needing

medical care

 Identify pets

needing

medical care

 Evaluate

shelter

residents to

evaluate

readiness to

provide care

for their pets

 Ensure there

are sufficient

health

assessment

registration

forms

 Train staff on

use of forms

and referral to

veterinary

medical triage

 Train staff in

animal

handling,

including

safety

protocols

 Provide hand

hygiene

station in

registration

areas

 Establish

automated

shelter

registration

process (i.e.,

kiosk) as

needed

 Provide

technical

assistance and

guidance

 Mission

Assignment

 Federal

contracts
Mass Care/Emergency Assistance Pandemic Planning Considerations

36 

Table 27: Activity – External Affairs

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Internal 

messaging 

(residents, 

staff) 

 Whiteboards,

public

announcements,

flyers, braille,

auditory

assistance

 Consider

additional

forms of

communication

(e.g., video

screens,

internet feeds)

 Develop

process for

providing

information

Technology

(IT)/Audio

Visual (AV)

equipment

 FEMA

EA/APHIS relay

updated

pertinent

information to

Joint

Information

Center for

dissemination

to states

Table 28: Activity – Security

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Restricted Areas  Barriers for

pet

containment

including

survivor

crates for

animals

 Security protocols to

prevent

unauthorized

visits to

animal shelter

 Barriers for

pet

containment

 Security

protocols to

prevent

unauthorized

visits to

animal shelter

 Ensure

sufficient law

enforcement

protection

 Establish contract with local

security firm

 Mission

Assignment

(i.e., ESF #13)

if requested for

additional

security

support

 Federal

contracts

Table 29: Human Health and Safety

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Infection Control  Basic animal

shelter best

practice

 Increase

cleaning of

commonly used

areas where

Procure 

supplies, 

services and 

 Mission

Assignment
Mass Care/Emergency Assistance Pandemic Planning Considerations

37 

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

 For additional

information,

see the links

to specific

articles under

additional

information at

the end of

household

pet’s

worksheet

bodily fluids, 

droplets and 

other airborne 

particles may 

reside

 Provide staff

with guidance

on cleaning

procedure and

safe disposal of

pet waste

 Place hand

sanitizer and

portable hand

hygiene stations

at the entrance

and throughout

the facility

 Prevent ill

persons from

visiting/working

 Offer alternatives

to owner visits if

owner is ill (e.g.,

daily verbal

confirmation or

digital photo that

pet is safe)

equipment 

using: 

 Local

vendors

and/or

suppliers

 State

submits

request for

Federal

support

 National

Veterinary

Response

Teams

(NVRT’s) spell

out accepted

role as public

veterinary

health mobile

lab

 Federal

contracts
Mass Care/Emergency Assistance Pandemic Planning Considerations

38 

TABLE 30: Activity - Wraparound Services

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION ACTION FEDERAL 

SUPPORT/ACTION

General 

cleaning

 General

sanitary and

infection

control

measures

 Routinely clean

(e.g., daily,

before/ after

meals and

immediately

when visibly

soiled and all

areas and items

that are more

likely to have

frequent hand

contact (like

doorknobs,

faucets, handrails) use

recommend use

of EPA registered

household

disinfectant.

 Coordinate with

state and local

health officials to

ensure

compliance with

current guidance

 Procure sup- plies,

services and

equipment using:

 Local vendors

and/or suppliers

 Sponsoring

organization

 Donations

GSA Multiple Award 

Schedule (MAS) 

Purchasing Programs

 Disaster purchasing

 Public Health

Emergency (PHE)

 Cooperative

purchasing

 1122 Program

www.gsa.gov/buyingselling/purchasingprograms/gsaschedules/schedulebuyers/state-andlocal-governments

 See CDC Interim

Guidance

www.cdc.gov/

coronavirus/2019-

ncov/community/

homeless-shelters/

index.html

Laundry  General

sanitary and

infection

control

measures

 Linens (bed

sheets, blankets,

and towels)

should be

washed in hot

water using

laundry soap and

tum- bled dry on

a hot setting.

Survivors

handling linens

should use PPE

 Ensure sufficient

supplies and

cleaning contracts

 See CDC Interim

Guidance

www.cdc.gov/

coronavirus/2019-

ncov/community/

homeless-shelters/

index.html

Waste 

management 

collection: 

garbage / 

 Standard

garbage

collection

with

separate

 Increased

frequency in

garbage

collection

 Contracting for

certified infectious

waste disposal

should be

 See CDC Interim

Guidance

www.cdc.gov/

coronavirus/2019-

ncov/community/
Mass Care/Emergency Assistance Pandemic Planning Considerations

39 

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION ACTION FEDERAL 

SUPPORT/ACTION

infectious 

waste 

collection of 

infectious 

waste managed by a 

biohazard 

specialist

 Include certified

infectious waste

disposal

considered for 

shelters

homeless-shelters/

index.html

Table 31: Activity - Veterinary Medical Services

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Veterinary 

Services 

 Veterinarian

and

technicians

available to

shelter

 Veterinary and

technicians

trained in

pandemic

control

available to

shelter

 Contract for

veterinarians and

technicians

 ESF #11 Animal and

Plant Health

Inspection Service

(APHIS)

 Coordinate sup- port

if needed

Table 32: Activity - Shelter Supplies and Materials

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Supplies, trash 

receptacles, 

crates 

N/A  Increased

inventory of

supplies

related to

infection

control

 Cache of animal

shelter supplies,

or contract for

supplies

 ESF #11 Animal and

Plant Health

Inspection Service

(APHIS) coordinates

sup- port if needed
Mass Care/Emergency Assistance Pandemic Planning Considerations

40 

Table 33: Activity – Pet Feed

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Pet feed N/A  Use shelfstable,

nutritious,

easily

digestible feed

when possible

to avoid

gastrointestinal

problems, and

have more

palatable

perishable

feeds on hand

for stressed

animals who

are reluctant to

eat

 Develop/

Implement Mutual

Aid Agreements

(e.g., Emergency

Management

Assistance

Compact [EMAC])

between

jurisdictions

and/or private

industry

 Facilitate

emergency

assistance

agreements

between states

and/or private

industry

Table 34: Shelter-In-Place: Activity – External Affairs

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Messaging  Each

jurisdiction

has

messaging

unique to

their

capabilities

 Messaging

should be

provided in

various

languages and

forms (closedcaptioning,

braille, Spanish,

etc.) to meet

various needs

and to reach

survivors with

access or

functional

support needs

 Consider a plan

for shelter-inplace

 APHIS coordinates

support if needed
Mass Care/Emergency Assistance Pandemic Planning Considerations

41 

Additional Information 

Compendium of Measures to Prevent Disease Associated with Animals in Public Settings, 2009, 

www.cdc.gov/mmwr

CDC GUIDELINES 

• CDC’s up-to-date Guidance for COVID-19: www.cdc.gov/coronavirus/2019-ncov/

• Interim US Guidance for Risk Assessment and Public Health Management of Persons with

Potential 2019 Novel Coronavirus (COVID-19) Exposure in Travel- associated or Community

Settings www.cdc.gov/coronavirus/2019-ncov/php/risk- assessment.html

• Interim Guidance for Implementing Home Care of People Not Requiring Hospitalization for

2019 Novel Coronavirus (COVID-19) www.cdc.gov/coronavirus/2019-ncov/hcp/guidancehome-care.html

• Frequently Asked Questions (including COVID-19 and Animals)

www.cdc.gov/coronavirus/2019-ncov/faq. html#COVID-19-and-Animals

• CDC’s Healthy Pets, Healthy People Website www.cdc.gov/healthypets/index.html

• Compendium of Measures to Prevent Disease Associated with Animals in Public Settings

www.cdc.gov/mmwr/preview/mmwrhtml/rr5805a1. html

• Petting Zoo Guidelines, February 2007 www.public.health.wa.gov.au/cproot/2222/2/

Petting%20Zoo%20Guidelines%202009.pdf

• NASPHV Compendium of Veterinary Standard Precautions for Zoonotic Disease Prevention in

Veterinary Personnel www.nasphv.org/documentsCompendiaVet.html

• World Health Organization (WHO) Website external icon www.who.int/

• World Organization for Animal Health (OIE) Q & A Website www.oie.int/scientificexpertise/spec- ificinformation-and-recommendations/questions-and-answers-on-2019novelcoronavirus/
Mass Care/Emergency Assistance Pandemic Planning Considerations

42 

APPENDIX D: DISTRIBUTION OF EMERGENCY SUPPLIES

Non-Congregate Sheltering

NON-CONGREGATE: (Hotel, motel, dormitories, converted building space)

Table 35: Activity – Points of Distribution

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Establishment of 

PODs

 State and

local

responsibility

to establish

PODs

 Availability of

public

transportation

may be

limited, as a

result of

quarantine

restrictions

put in place

 PODs may need

to be

established with

consideration on

how staffing

may impact

recommended

social distancing

measures

 Consider

strategically

placing PODs in

close proximity

to where

survivors are

being housed

 FEMA provides

technical assistance

to State and local

governments on

disaster

management and

control, and provides assistance for

the purchase, and

distribution of

consumable

supplies

 Mission Assignment

 Federal contracts

Table 36: Activity – Distribution of Emergency Supplies

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Distribution  Individuals

and familiesvisit PODs for

supplies

 Accessible dropoff sites should

be considered

 Determine

alternate

means to

distribute

emergency

supplies

 FEMA provides

technical assistance

to state and local

governments on

disaster

management and

control

Transportation  Survivors go

to PODs for

supplies

 Organizations

may need to

support the

distribution of

goods to specific

locations

 Identify

alternate

delivery options

 FEMA provides

technical assistance

to state and local

governments on

disaster

management and

control
Mass Care/Emergency Assistance Pandemic Planning Considerations

43 

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

 Accessible

transportation to

POD’s must be

available.

 The U.S. Postal

Service is resource,

available to serve

the needs of

jurisdictions

Shelter-In-Place

Table 37: Activity – Distribution of Emergency Supplies

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Distribution  PODs have

been the

primary

means of

distribution

for emergency

operations

 Survivors may

be confined to

their homes or

other isolated

settings

 Consider the

delivery and

drop off of

emergency

items or drivethrough PODs

with limited

human to

human

interaction

 FEMA provides

technical assistance

to state and local

governments on

disaster

management and

control, and

provides assistance

for the purchase,

and distribution of

consumable

supplies

Provide for 

survivors 

sheltering in 

place

 Not a

standard

procedure

 Emergency

supplies include

survivor

packaged meals

and other

essential items:

toilet paper

tissues, overthe- counter

medicine,

detergent

 Look at having

voluntary

organizations

provide

resources and

handle

distribution of

goods

 FEMA provides

technical assistance

to state and local

governments on

disaster

management and

control, and provides assistance for

the purchase, and

distribution of

consumable

supplies. FEMA can

assist with the

movement of

supplies and

persons
Mass Care/Emergency Assistance Pandemic Planning Considerations

44 

Table 38: Distribution Considerations (Shelter-In-Place Distribution of Emergency Supplies) 

TASK DESCRIPTION

Distribution considerations  Collaborate with the U.S. Postal Service, commercial

delivery companies and other community agencies

(foodbanks, etc.) to deliver food and supplies

 Identify available resources and facilities that can be used

and shared

 Map your service delivery area to determine which

agencies currently service which neighborhoods

 Identify areas without current service and solicit

agreement/commitment to provide service

 Establish agreements and accounts, as necessary, with

commercial vendors to provide service in un-serviced and

remote areas

 Coordinate delivery of bulk supplies to points of distribution

(e.g. drop off food and supplies to a building or

neighborhood, allowing residents to handle neighborhood

distribution rather than going door-to-door)

 Secure cooperation/agreement with facility

owners/managers

 Plan to use a “knock and leave” drop-off method for home

deliveries using disposable equipment when possible

 Identify vendors and set up accounts for supplies and

services that will be required to establish large food and

supply distribution programs

 Ensure the availability of “DO NOT TOUCH” waste

receptacle/plastic trash bags and disinfectant

 Ensure there is a security system in place
Mass Care/Emergency Assistance Pandemic Planning Considerations

45 

APPENDIX E: MASS EVACUEE SUPPORT

Evacuation Areas (Mass care areas)

Table 39: Activity – Staffing and Registration

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Staffing  Voluntary

organizations

and local

response

teams support

the mass care

and

emergency

assistance

site activities

 Coordinate with

local and state

public health

officials for

appropriate

guidance

Coordinate with local 

voluntary 

organizations to 

determine capability 

and capacity to 

sustain operations

Procure:

 Local staffing

 services

 State submits

RRF for Federal

support.

 Mission

Assignment

 Federal contracts

Shelter 

Registration 

 Standard

shelter

registration

process (e.g.,

name,

address,

phone

number)

 Provide

separate

registration

areas for those

who self –

identify as being

ill

 Conduct an

initial screening

of all staff and

residents

 Monitor and

record

occurrence of

pandemic like

symptoms and

report to the

local officials.

 Provide any

person with

symptoms

(cough, fever)

with a surgical

mask

 Coordinate with

state and local

health officials

 Ensure that there

is a sufficient

number of

registration staff

 Train staff on use

of forms and

referral to

medical triage

 Provide separate

waiting areas for

registrants who

are not ill and

those who selfidentify as ill prior

to medical

screening.

 Set up handhygiene station in

registration areas

 Provide technical

support to SLTT

partners

 Mission

Assignment

 Federal contracts
Mass Care/Emergency Assistance Pandemic Planning Considerations

46 

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

 Ensure staff is

briefed on

safety and

security

procedures and

precautions

prior to triage of,

and interaction

with, residents

 Secondary

screening to

include a more

detailed

examination

 Ensure

appropriate

measures for

social distancing

are put in place

(6ft or more

space provided)

 Provide barriers

between

preregistration

areas

 Increase use of

technology for

registration

process

Table 40: Activity – Site Sanitation

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Site sanitation N/A  Recommend use

of EPA-registered

household

disinfectant

 Frequency of

cleaning and

janitorial services

should be used,

with special

attention to hightouch areas such

as tables,

doorknobs, light

switches,

countertops,

handles, desks,

phones,

 Ensure

bathrooms and

other sinks are

consistently

stocked with

soap and drying

materials for

handwashing

 Provide alcoholbased hand

sanitizers that

contain at least

60% alcohol

Procure supplies, 

services and 

equipment using:

GSA Multiple Award 

Schedule (MAS) 

Purchasing Programs

 Disaster purchasing

 Public Health

Emergency (PHE)

 Cooperative

purchasing

 1122 Program

www.gsa.gov/buying

-selling/purchasingprograms/gsaschedules/schedule

-buyers/state-andlocal-governments
Mass Care/Emergency Assistance Pandemic Planning Considerations

47 

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

keyboards, 

toilets, faucets, 

sinks, etc.

 Local vendors

and/or suppliers

 Sponsoring

organization

 Donations

 State submission

of RRF for Federal

support

 See CDC Interim

Guidance

www.cdc.gov/

coronavirus/2019-

ncov/community/

homeless-shelters/

index.html

Waste 

management 

collection: 

garbage / 

infectious waste

 Separate

standard

garbage

collection

from

medical

waste

 Dispose of

regulated

medical

waste in

appropriate

waste

receptacle,

e.g., needles

or other

sharp

objects in

punctureproof sharps

container

labeled with

biohazard

sticker

 Increase

frequency of

garbage

collection

 Dispose of

certified

infectious waste

in a “DO NOT

TOUCH” waste

receptacle/plasti

c trash bag. ALL

WASTE SHOULD

BE TREATED AS

“INFECTIOUS”

 Contracting for

certified

infectious waste

disposal should

be considered

for shelters with

an Isolated Care

Area (ICA)

GSA Multiple Award 

Schedule (MAS) 

Purchasing Programs

 Disaster purchasing

 Public Health

Emergency (PHE)

 Cooperative

purchasing

 1122 Program

 www.gsa.gov/buying

-selling/purchasingprograms/gsaschedules/schedule

-buyers/state-andlocal-governments

 See CDC Interim

Guidance Homeless

Populations |

COVID-19 | CDC

Table 41: Activity – Emergency Supplies

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

Comfort/ 

Hygiene kits

 Comfort kits

containing

hygiene items

such as

toothpaste,

 Modify hygiene

kits to include

hand sanitizer

and face masks if

available

Procure supplies, 

services and 

equipment using:

 Local vendors

and/or suppliers

FEMA CUSI Catalog 

https://nationalmasscarestrategy.org/

wp-content/

uploads/2019/09/
Mass Care/Emergency Assistance Pandemic Planning Considerations

48 

TASK

STANDARD/ 

CURRENT 

PROCEDURE

GUIDANCE FOR 

PANDEMIC

JURISDICTION 

ACTION

FEDERAL 

SUPPORT/ACTION

brush and 

tissues 

 Donations

 State submits

RRF for Federal

support

CUSI-SL-Catalog_

September-2019.pdf

Tracking 

equipment 

 Tracking

material to

include

forms,

computers,

bracelets,

etc.

 Increase

frequency of

equipment

cleaning

 Procure

supplies,

services and

equipment

using:

 Local vendors

and/or suppliers

 Donations

 State submits

RRF for federal

support

 Mission Assignment

 Federal contracts

PPE (for shelter 

residents and 

shelter staff)

N/A Coordinate with 

state and local 

health officials to 

ensure compliance 

with current 

guidance

Equipment includes:

 Hand sanitizer

 Gloves

 Masks and

respirators

 Hand hygiene

stations

 Eye protection

Procure supplies, 

services and 

equipment using:

 Local vendors

and/or suppliers

 Donations

 State

submission of

RRF for Federal

support

 Develop

jurisdictional

guidance on

distribution of

appropriate PPE

CDC- Optimizing PPE

Supplies

www.cdc.gov/coronavir

us/2019-

ncov/hcp/ppestrategy/index.html

 Mission Assignment

 Federal contracts

Table: 42 Evacuation Planning Considerations During a Pandemic Outbreak 

Assumptions Pre-Disaster Operational 

 Due to the threat of pandemic

illness, many jurisdictions

have implemented social

distancing measures in an

effort to reduce further spread

of the virus

 Assess community demographics and potential highrisk impact areas

 Conduct evacuee support

planning that includes

identifying non-congregate

 Assess community

demographics and potential

high-risk impact areas

 Reevaluate the jurisdiction’s

evacuation/shelter plan and

adjust number of available
Mass Care/Emergency Assistance Pandemic Planning Considerations

49 

Assumptions Pre-Disaster Operational 

 A large disaster event could

displace thousands of

residents

 Many residents do not have

other options for sheltering

 Some jurisdictions may not

have a sufficient number of

non-congregate sheltering

options to accommodate the

potentially impacted

population

 Congregate shelters may be

required in order to provide a

safe location for those in the

path of an impending disaster

 A pandemic will impact the

availability of paid staff and

volunteers that traditionally

provide support and services

to evacuees

facilities: (hotels/motels, 

dorms, vacant facilities with 

survivor room set-up) 

Determine capacity and 

functionality of sites

 Layout/floor plans should

include space considerations

for quarantine and screening

of staff and survivors

 Include considerations for

people with disabilities and

others with access and

functional needs

 Consult with ESF #8 (Public

Health) experts to receive

guidance on addressing

pandemic related issues

 Determine logistics and

resource requirements to

support government- assisted

evacuations

 Determine logistics for conducting registration and

providing wrap-around

services to populations that

will stay in non-congregate

shelters

 Increase and establish

agreements with NGOs,

agencies, volunteers and

private sector vendors that

will be needed for evacuee

support

 Develop host jurisdiction

agreements

reception center/shelter spaces 

based on CDC shelter 

guidelines 

 Increase sheltering capacity and

capability (including a process

to rapidly identify and survey

spontaneous shelter sites

during activations)

 Layout/floor plans should

include space considerations

for quarantine and screening of

staff and survivors

 Include considerations for

people with disabilities and

others with access and

functional needs

 Consult with ESF #8 (Public

Health) experts to receive

guidance for addressing

pandemic related issues

 Determine logistics and

resource requirements to

support government assisted

evacuations

 Determine logistics for

conducting registration and

providing wrap-around services

to populations that will stay in

non-congregate shelters

 Increase and establish

agreements with NGOs,

agencies, volunteers and

private sector vendors that will

be needed for evacuee support

 Develop host jurisdiction

agreements
Mass Care/Emergency Assistance Pandemic Planning Considerations

50 

APPENDIX F: MASS CARE/EMERGENCY ASSISTANCE 

RESOURCE REQUEST PROCESS
Mass Care/Emergency Assistance Pandemic Planning Considerations

51 
Mass Care/Emergency Assistance Pandemic Planning Considerations

52 
Mass Care/Emergency Assistance Pandemic Planning Considerations

53 

APPENDIX G: GLOSSARY AND ACRONYMS 

Glossary

TERM DEFINITION 

Access and

Functional needs

Individuals with access and functional needs may include, but are not 

limited to, people with disabilities, older adults, and individuals with 

limited English proficiency, limited access to transportation and/or 

limited access to financial resources to prepare for, respond to and 

recover from the emergency. Federal civil rights law and policy require 

nondiscrimination, including on the bases of race, color, national origin, 

religion, sex, age, disability, English proficiency and economic status. 

Many individuals with access and functional needs are protected by 

these provisions.

Barriers Include self-standing structures that create separation between cots 

providing privacy and a small measure of isolation. Commercial privacy 

screens would suffice, but in a pandemic incident resources may be 

scarce and privacy screens may be unavailable. Providers may have to 

construct barriers from readily available materials.

Congregate shelter Generally provided in large open settings that provide little to no privacy 

in facilities that normally serve other purposes such as schools, 

churches, community centers and armories.

Consumable medical 

supplies (cms)

Medical supplies (e.g., medications, diapers, bandages, etc.) that are 

ingested, injected or applied and/or are one time use only.

Distribution of 

emergency supplies 

(des)

Provide emergency supplies and/or the resources to distribute them.

Durable medical 

equipment (dme) 

Medical equipment (e.g., walkers, canes, wheelchairs, etc.) used by 

persons with a disability to maintain their usual level of independence.
Mass Care/Emergency Assistance Pandemic Planning Considerations

54 

TERM DEFINITION 

Emergency Any occasion or instance for which, in the determination of the 

President, Federal assistance is needed to supplement state and local 

efforts and capabilities to save lives and to protect property and public 

health and safety, or to lessen or avert the threat of a catastrophe in any 

part of the United States. See section 102(1) of the Stafford Act. 

Feeding Provide food to sustain the health of survivors/families while they are 

being sheltered or sheltered-in-place.

Household pet A domesticated animal, such as a dog, cat, bird, rabbit, rodent or turtle 

that is traditionally kept in the home for pleasure rather than commercial 

purposes, can travel in commercial carriers and be housed in temporary 

facilities. Household pets do not include reptiles (except turtles), 

amphibians, fish, insects/arachnids, farm animals (including horses) and 

animals kept for racing purposes. Source DAP 9523.19.

NOTE: FEMA’s definition is solely to make judgments about eligibility of 

costs associated with household pets and service animals and does not 

limit a jurisdiction’s prerogative to plan for sheltering other animals.

Isolation The process of separating individuals who have become ill with a 

contagious disease from people who are not sick.

Incident An occurrence or event, natural or human caused that requires a 

response to protect life or property. Incidents can, for

example, include major disasters, emergencies, terrorist attacks, 

terrorist threats, civil unrest, wild land and urban fires, floods, hazardous 

materials spills, nuclear accidents, aircraft accidents, earthquakes, 

hurricanes, tornadoes, tropical storms, tsunamis, war- related disasters, 

public health and medical emergencies and other occurrences requiring 

an emergency response. Source: National Response Framework.
Mass Care/Emergency Assistance Pandemic Planning Considerations

55 

TERM DEFINITION 

Individual with a 

disability

Individual who has a physical or mental impairment that substantially 

limits one or more major life activities (an “actual disability”), or a record 

of a physical or mental impairment that substantially limits a major life 

activity (“record of”), or an actual or perceived impairment, whether or 

not the impairment limits or is perceived to limit a major life activity, that 

is not both transitory and minor (“regarded as”). 

Major disaster Any natural catastrophe (including any hurricane, tornado, storm, high 

water, wind-driven water, tidal wave, tsunami, earthquake, volcanic 

eruption, landslide, mudslide, snowstorm or drought) or, regardless of 

cause, any fire, flood, or explosion in any part of the United States that, 

in the determination of the President, causes damage of sufficient 

severity and magnitude to warrant major disaster assistance under the 

Stafford Act to supplement the efforts and available resources of states, 

local governments, and disaster relief organizations in alleviating the 

damage, loss, hardship or suffering caused thereby. See section 102(2) 

of the Stafford Act.

Medical counter 

measures (mcm)

Medicines, devices, or other medical interventions that can lessen the 

harmful effects of a pandemic.

National center for 

missing and exploited 

children (ncmec)

Has a legislative mandate from the Congress of the United States to 

provide assistance to agencies and families in finding missing children 

and reducing child sexual exploitation.

National emergency 

child locater center 

(neclc)

Was established in collaboration with the National Center for Missing 

and Exploited Children (NCMEC) to support SLTT governments and law 

enforcement agencies in tracking and locating children who have 

become separated from their parents or guardians as a result of a 

Presidentially-declared disaster. See 6 U.S.C. Section 774.
Mass Care/Emergency Assistance Pandemic Planning Considerations

56 

TERM DEFINITION 

Non-congregate Sheltering that provides alternatives for incidents when conventional 

congregate sheltering methods are unavailable or overwhelmed or 

when longer-term temporary sheltering is required. Typically, facilities 

that are used to provide a higher level of privacy than conventional 

congregate shelters are, hotels, cruise ships, dormitories and/or 

converted buildings, or staying with friends/family and other facilities 

with private sleeping spaces but possibly shared bathroom /cooking 

facilities.

Nongovernmental 

organization (ngo)

An entity with an association that is based on interests of its members, 

survivors, or institutions. It is not created by a government, but it may 

work cooperatively with government. Such organizations serve a public 

purpose, not a private benefit. Examples of NGOs include faith-based 

charity organizations and the American Red Cross. NGOs, including 

voluntary and faith-based groups, provide relief services to sustain life, 

reduce physical and emotional

distress, and promote the recovery of disaster survivors. Often these 

groups provide services that help survivors with disabilities. NGOs and 

voluntary organizations play a major role in assisting emergency 

managers before, during and after an emergency.

Private sector Organizations and entities that are not part of any governmental 

structure. The private sector includes for-profit and not-for-profit 

organizations, formal and informal structures, commerce and industry.

Quarantine The process of separating and restricting the movement of people who 

were/or potentially have been exposed to a contagious disease as a 

precautious to assess they condition and prevent the spread of disease.

Service animal A dog (or miniature horse) that is trained to do work or perform tasks for 

survivors with disabilities. A support animal that only functions to 

provide comfort or emotional support is not a service animal. Household 

pets, support animals and service animals all receive support services 

under ESF #6.
Mass Care/Emergency Assistance Pandemic Planning Considerations

57 

TERM DEFINITION 

Shelter-in-place Survivors required to shelter in place, either in private dwellings, offices, 

shopping malls, or other sites that provide an isolated setting for either 

the survivor’s safety or for the safety of others.

Social distancing Social distancing, also “physical distancing,” is the practice of keeping 

space between yourself and other people at least 6 feet (2 meters) 

outside of your home.

Acronyms

ADA Americans with Disabilities Act

APHIS Animal and Plant Health Inspection Service

ARC American Red Cross

AV Audio Visual

CBO Community Based Organizations

CDC Centers for Disease Control and Prevention

CMS Consumable Medical Supplies

CNCS Corporation for National and Community Service

CNP Child Nutrition Programs

CUSI Commonly Used Shelter Items

DC Distribution Centers

DOD Department of Defense

DME Durable Medical Equipment

DFA Direct Federal Assistance

D-SNAP Disaster-Supplemental Nutrition Assistance Program
Mass Care/Emergency Assistance Pandemic Planning Considerations

58 

EMAC Emergency Management Assistance Compact

EMTLA Emergency Medical Treatment and Labor Act

EOC Emergency Operating Center/ Emergency Operation Center

EPA Environmental Protection Agency

ESAR Emergency System for Advance Registration of Volunteer Health Professionals

ESF Emergency Support Function

FBO Faith-Based Organizations

FDA Food and Drug Administration

FEMA Federal Emergency Management Agency

FNS Food and Nutrition Services

GSA General Service Administration

HHS Health and Human Services

HQ Headquarters

HVAC Heating, Ventilating, and Air Conditioning

IA Individual Assistance

IASC Individual Assistance — Support Contracts

ICA Isolated Care Area

ISB Incident Support Bases

IT Information Technology

JFO Joint Field Office

JIC Joint Information Center

LEA Local Educational Agencies

MA Mission Assignment

MAS Multiple Award Schedule
Mass Care/Emergency Assistance Pandemic Planning Considerations

59 

MC/EA Mass Care/Emergency Assistance

MOU Memorandum of Understanding

NCMEC National Center for Missing and Exploited Children

NDMS National Disaster Medical System

NECLC National Emergency Child Locater Center

NEMIS National Emergency Management Information System

NGO Non-Governmental Organization

NPSC National Processing Service Center

NRF National Response Framework

NSS National Shelter System

NASPHV National Association of Public Health Veterinarians

NVRT National Veterinary Response Teams

OIE World Organization for Animal Health

P-SNAP Pandemic Supplemental Nutrition Assistance Program

PAS Personal Assistance Services

PHE Public Health Emergency

PIO Public Information Officer

POD Point of Distribution

PPE Personal Protective Equipment

RRF Resource Request Form

SLTT State, Local, Tribal, and Territorial

SME Subject Matter Expert

SNAP Supplemental Nutrition Assistance Program

STT State, Tribal, Territorial
Mass Care/Emergency Assistance Pandemic Planning Considerations

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TSA Transitional Shelter Assistance, The Salvation Army

USDA U.S. Department of Agriculture

VOAD National Voluntary Organizations Active in Disaster

WHO World Health Organization

 CDC Webpage regarding Legal Authorities for Isolation and Quarantine www.cdc.gov/quarantine/

aboutlawsregulationsquarantineisolation.html

 CDC Fact Sheet: Quarantine Stations www.hsdl.org/?abstract&did=11748

Other Useful Websites

AMERICANS WITH DISABILITIES ACT

 Chapter 7 Addendum 2: The ADA and Emergency Shelters: Access for All in Emergencies and

Disasters www.ada.gov/pcatoolkit/chap7shelterprog.pdf

AMERICAN RED CROSS

 www.redcross.org/about-us/news-and- events/news/2020/coronavirus-safety-and- readinesstips-for-you.html

 SEVERAL RESOURCES ARE IN BOTH ENGLISH AND SPANISH. People affected by disaster and/or

evacuating can register their status as “safe and well.” Worried loved ones can then search for

these posted messages. This site is available 24/7. Supported registration is also available via

the Red Cross disaster services call center at 800-RED-CROSS (800-733- 2767) or (866) 438-

4636 www.redcross.org/safeandwell Available in Spanish at www.sanoysalvo.org.

ASSOCIATION FOR PROFESSIONALS IN INFECTION CONTROL AND EPIDEMIOLOGY (APIC)

 www.apic.org/Resource_/TinyMceFileManager/Practice_Guidance/Emergency_

Preparedness/Shelters_Disasters.pdf

CENTERS FOR DISEASE CONTROL AND PREVENTION 

 www.cdc.gov

APPENDIX H: INTERNET LINKS

Primary Government Pandemic Internet Link
Mass Care/Emergency Assistance Pandemic Planning Considerations

61 

 CDC Activities and Initiatives Supporting the COVID-19 Response and the President’s Plan for

Opening America Up Again https://www.cdc.gov/coronavirus/2019-ncov/downloads/php/CDCActivities-Initiatives-for-COVID-19-Response.pdf#page=53

 www.cdc.gov/coronavirus/2019-ncov/ index.html

 Hand Hygiene www.cdc.gov/handhygiene/index.html

 http://emergency.cdc.gov/disasters/evaccenters.asp

ENVIRONMENT PROTECTION AGENCY (EPA)

 Created for the purpose of protecting human health and the environment by writing and

enforcing regulations based on laws passed by Congress www.epa.gov

FEDERAL EMERGENCY MANAGEMENT AGENCY (FEMA)

 www.ready.gov/pandemic

 FEMA Guidance on Planning for Integration of Functional Needs Support Services in General

Population Shelters. November 2010 www.fema.gov/pdf/about/odic/fnss_ guidance.pdf

 COVID-19 Pandemic Operational Guidance for the 2020 Hurricane

Season https://www.fema.gov/media-library/assets/documents/188203

FEDERAL EMERGENCY MANAGEMENT AGENCY (FEMA), NRC RESOURCE CENTER 

 The National Response Framework (NRF) Resource Center provides ready access to information

and tools needed for all response partners to fulfill their roles under the Framework

www.ready.gov/sites/default/files/2019-06/ national_response_framework.pdf

GENERAL SERVICES ADMINISTRATION 

 GSA serves a breadth of government needs, assists a range of businesses, and provides citizens

and consumers with a wealth of information and services www.gsa.gov

 State, local, regional and tribal governments, including instrumentalities may access GSA

Multiple Award Schedule (MAS) (also known as Federal Supply Schedules) for purchase of need

supplies and services under the following programs: Cooperative Purchasing, Disaster

Purchasing, Public Health Emergency purchasing and the 1122 program. Information on each of

these programs, including resources to support COVID-19 purchasing under MAS, can be found

at www.gsa.gov/buying-selling/purchasing-programs/gsa-schedules/schedule-buyers/state-andlocal-governments
Mass Care/Emergency Assistance Pandemic Planning Considerations

62 

NATIONAL RESTAURANT ASSOCIATION 

 Guidance documents for survivors, businesses, and communities involved with the restaurant

business www.restaurant.org/Manage-My-Restaurant/ BusinessOperations/preparedness/Covid19

NATIONAL VOLUNTARY ORGANIZATIONS ACTIVE IN DISASTERS 

 Provides a list of national VOAD members and links to their websites www.nvoad.org

OCCUPATIONAL HEALTH AND SAFETY OFFICE

 Provides employers with worker safety and health guidance to reduce the impact of COVID-19

outbreak conditions on its workers, customers, and the public. www.osha.gov/coronavirus

READY.GOV

 Provides information about preparing for disasters such as a pandemic. www.ready.gov

U.S. DEPARTMENT OF AGRICULTURE

 Guidance for COVID-19 www.usda.gov/coronavirus

WORLD HEALTH ORGANIZATION

 Guidance documents for survivors, communities, prevention and mitigation in low resources

com- munities, ethical considerations in developing a public health response, and management

in air transportation www.who.int/emergencies/diseases/novel-coronavirus-2019