Planning 

Considerations: 

Disaster Housing

Guidance for State, Local, Tribal and Territorial Partners 

May 2020
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Planning Considerations: Disaster Housing

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Table of Contents

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

1.1. Purpose .............................................................................................................................. 1 

1.2. Audience............................................................................................................................. 1 

1.3. Organization ....................................................................................................................... 2 

1.4. Background......................................................................................................................... 2 

1.5. Housing Goals..................................................................................................................... 3 

1.6. Disaster Housing Assistance ................................................................................................ 4 

1.6.1. State Disaster Housing Programs and Resources ................................................... 4 

1.6.2. Federal Disaster Housing Assistance...................................................................... 4 

2. Sheltering and Housing Phases ................................................................................. 6

2.1. Sheltering ........................................................................................................................... 7 

2.2. Temporary Housing............................................................................................................. 8 

2.3. Permanent Housing .......................................................................................................... 10

3. Housing Considerations .......................................................................................... 12

3.1. Regulations and Authorities.............................................................................................. 12

3.2. Populations....................................................................................................................... 13

3.2.1. Individuals with Access and Functional Needs..................................................... 14

3.2.2. Homeless and Precariously Housed Populations.................................................. 15

3.2.3. Incarcerated Individuals...................................................................................... 16

3.2.4. Healthcare and Senior Facilities........................................................................... 16

3.3. Natural Environment......................................................................................................... 17

3.4. Infrastructure .................................................................................................................... 18

3.5. Housing Availability........................................................................................................... 19

3.6. Contracting ....................................................................................................................... 20

3.7. Host State Agreements ..................................................................................................... 21

3.8. Wraparound Services........................................................................................................ 21

3.9. Home and Safety Inspections............................................................................................ 22
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3.10. Public Information, Outreach and Preparedness ............................................................... 23

4. Housing Assistance Programs ................................................................................. 26

5. Developing a Disaster Housing Plan ........................................................................ 27

5.1. Step 1: Form a Collaborative Disaster Housing Planning Team........................................... 27

5.2. Step 2: Understand the Housing Situation......................................................................... 29

5.3. Step 3: Determine Housing Goals and Objectives.............................................................. 31

5.4. Step 4: Housing Plan Development.................................................................................... 31

5.5. Step 5: Housing Plan Preparation, Review and Approval.................................................... 32

5.6. Step 6: Housing Plan Implementation and Maintenance ................................................... 33

6. Glossary ................................................................................................................. 35

7. Acronyms ............................................................................................................... 38

Appendix A: Housing Assistance Programs ....................................................................... 40

State and Local Housing Assistance Programs.............................................................................. 40

Federal Housing Assistance Programs.......................................................................................... 41

Army Corps of Engineers (USACE)...................................................................................... 42

Department of Agriculture (USDA) .................................................................................... 42

Department of Health and Human Services (HHS) ............................................................. 43

Department of Housing and Urban Development (HUD) ................................................... 44

Department of Veterans Affairs (VA)................................................................................. 45

Federal Emergency Management Agency (FEMA).............................................................. 46

Small Business Administration (SBA) ................................................................................. 47

Appendix B: Authorities and References ........................................................................... 48

Authorities................................................................................................................................... 48

References................................................................................................................................... 50

Other References......................................................................................................................... 51

Appendix C: Disaster Housing Planning Checklist ............................................................. 53

Step 1: Form the Collaborative Planning Team............................................................................. 53

Step 2: Understand the Housing Situation.................................................................................... 53
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Conduct Housing-Related Research and Analysis............................................................... 53

Planning Assumptions and Considerations ........................................................................ 54

Step 3: Determine Housing Goals and Objectives......................................................................... 57

Step 4: Housing Plan Development .............................................................................................. 58

Purpose, Scope, Situation Overview and Planning Assumptions ........................................ 58

Concept of Operations ...................................................................................................... 58

Direction, Control and Coordination.................................................................................. 62

Communications............................................................................................................... 62

Administration, Finance and Logistics................................................................................ 62

Preparedness, Mitigation and Recovery ............................................................................ 62

Implementation, Maintenance and Training...................................................................... 63

Authorities and References............................................................................................... 63

Step 5: Housing Plan Preparation, Review and Approval .............................................................. 63

Step 6: Housing Plan Implementation and Maintenance .............................................................. 64

 
Planning Considerations: Disaster Housing

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1. Introduction

In the aftermath of disasters, communities often face situations that require creative short-term and 

long-term housing solutions for populations with different geographic, infrastructure and 

socioeconomic challenges. Effectively moving survivors into post-disaster housing is a critical step 

toward long-term recovery. However, many jurisdictions do not have disaster housing plans, due in 

part to the perception that housing is solely the Federal Government’s responsibility and a lack of 

full-time disaster housing staff. 

While some housing programs are federally resourced, they are state managed and locally executed. 

Planning for disaster housing should occur at all levels of government before a disaster strikes.

“The optimal framework for response and recovery is one that is federally supported, state 

managed, and locally executed.”

2018–2022 Federal Emergency Management Agency (FEMA) Strategic Plan

1.1. Purpose

This document supplements Comprehensive Preparedness Guide (CPG) 101: Developing and 

Maintaining Emergency Operations Plans. It provides guidance on national housing priorities, types 

of housing, key considerations and housing-specific planning recommendations for state, local, tribal 

and territorial (SLTT) jurisdictions to use, in conjunction with the Six-Step Planning Process described 

in CPG 101, to develop or improve disaster housing plans.1 

1.2. Audience

This document provides guidance to SLTT partners as they develop disaster housing plans and 

strategies for their communities. In many instances, emergency managers coordinate the 

development of disaster housing plans with designated recovery leaders and appropriate housing 

and mass-care subject matter experts from across their jurisdictions and the private sector. 

 

1 CPG 101, Version 2, November 1, 2010. https://www.fema.gov/media-library/assets/documents/25975. 
Planning Considerations: Disaster Housing

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1.3. Organization

In this document:

 The main text reviews sheltering and housing phases; describes common considerations for

disaster housing planning; summarizes available housing programs offered by various levels of 

government and the private sector; and helps planners tailor the Six-Step Planning Process from

CPG 101 to develop their disaster housing plans. 

 The appendices provide additional information on disaster housing programs, authorities and

resources, as well as a planning checklist to aid planners in developing disaster housing plans.

1.4. Background

Each community has unique characteristics, resources, cultural considerations and demographics 

that impact its ability to rebuild homes and restore public services. SLTT jurisdictions should 

understand the risks that could displace individuals and households for long periods of time, the 

potential disaster housing needs of their communities and their capability and capacity to help 

address those needs via sheltering, temporary housing2 or permanent housing solutions. 

Jurisdictions should tailor integrated sheltering and housing solutions and strategies for their 

residents to complement overall housing availability in the area. 

2017 Hurricane Season Housing Figures

 Hurricane Harvey left nearly 75,000 homes with at least 18 inches of floodwater.

 Florida supported a peak of 191,764 people in nearly 700 shelters across the state.

 During peak demand, Texas sheltered 42,399 survivors in congregate shelters, with 

approximately 1,403 survivors still in shelters 30 days after Hurricane Harvey made landfall.

 While FEMA programs supported Texas’ and Florida’s efforts to move most survivors out of 

shelters into temporary housing within 60 days, shelter operations in Puerto Rico and the 

U.S. Virgin Islands extended past 90 days.

 By May 2018, nearly 4.8 million households affected by the 2017 hurricanes and California 

wildfires registered for Federal assistance, more than the previous 10 years combined.

2017 Hurricane Season FEMA After-Action Report, July 12, 2018

 

2 The National Disaster Housing Strategy, published in 2009, uses the term “interim housing.” However, since its 

publication, the accepted term has changed to “temporary housing.”
Planning Considerations: Disaster Housing

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The ability to comprehensively address the housing needs of disaster survivors routinely appears in 

annual National Preparedness Reports as an area for improvement,3 and other reports and studies 

have documented gaps in the Housing core capability. A 2012 survey by the Los Angeles Housing 

Department determined that most agencies and organizations in Southern California did not have 

disaster housing plans despite the impending threat of earthquakes in that area.4 More recently, 

after-action reports on disasters such as flooding, wildfires and hurricanes continue to highlight 

ongoing gaps in delivering efficient and effective housing solutions for disaster survivors. 

These findings reinforce the importance of developing local disaster housing plans to better meet the 

diverse and complex needs of communities. To improve disaster housing capabilities across the 

Nation, SLTT jurisdictions should collaborate with regional partners, the private sector, 

nongovernmental organizations (NGOs) and the Federal Government to develop integrated disaster 

housing plans.

1.5. Housing Goals

The National Disaster Housing Strategy, released in 2009, established six national goals that create 

a common framework and provide a broad range of housing options, including sheltering, temporary 

housing and permanent housing, to meet urgent needs following a disaster, enabling individuals, 

households and communities to rebuild and meet their unique housing needs.5 The following six

goals are guiding principles for SLTT jurisdictional-specific housing plans:

1. Support individuals and communities in returning to self-sufficiency as quickly as possible.

2. Define and fulfill fundamental disaster housing responsibilities and roles.

3. Increase our collective understanding and ability to meet the needs of disaster survivors and 

affected communities.6

4. Build capabilities to provide a broad range of flexible housing options, including sheltering, 

temporary housing and permanent housing. 

 

3 2017 National Preparedness Report. https://www.fema.gov/media-library/assets/documents/134253. 

4 Los Angeles/Long Beach/ Riverside Regional Catastrophic Planning Grant Program Region Assessment and Gap Analysis 

Report, 2012. https://hcidla.lacity.org/assessment-and-gap-analysis-report. 

5 National Disaster Housing Strategy, January 16, 2009. https://www.fema.gov/media-library-data/20130726-1819-

25045-9288/ndhs_core.pdf. NOTE: A review of housing-related doctrine is ongoing. This document will be updated based 

on any changes to key principles, terms and authorities.

6 The National Disaster Housing Strategy uses the term “disaster victims.” However, since publication of the document, the 

accepted term has changed to “disaster survivors.”
Planning Considerations: Disaster Housing

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5. Better integrate disaster housing assistance with related community support services and 

long-term recovery efforts. 

6. Improve disaster housing planning to better recover from disasters, including catastrophic 

events. 

1.6. Disaster Housing Assistance

Consistent with the principles of the National Incident Management System, most incidents begin 

and end locally and typically require a unified approach from local agencies, the private sector and 

NGOs. While some incidents7 require additional support from neighboring jurisdictions or state 

governments, each jurisdiction or state should leverage its own resources and programs to help 

displaced survivors find housing or move back into their homes. The following sections describe 

some state and Federal housing programs that can help local jurisdictions secure viable housing 

solutions for all members of the community.

1.6.1. State Disaster Housing Programs and Resources

States have day-to-day housing responsibilities, but they also administer emergency housing 

programs. Many states implement these programs in conjunction with Federal assistance. 

Appendix A provides more information on state and Federal housing assistance programs.

Housing assistance also involves programs sponsored by or involving the private sector. In addition, 

states coordinate resources and capabilities across jurisdictions to support local activities, obtaining 

additional support through interstate mutual aid and assistance mechanisms such as the Emergency 

Management Assistance Compact (EMAC).

North Dakota’s Flood-Impacted Housing Assistance Program

In 2013, the North Dakota Legislative Assembly directed the state’s Housing Finance Agency to 

establish a grant program to help residents in flood-impacted areas rehabilitate or replace 

flood-damaged homes and provide transitional expenses to flood-impacted residents to facilitate 

housing availability. 

1.6.2. Federal Disaster Housing Assistance

The Federal Government can provide direct temporary housing and permanent housing construction 

assistance to individuals and households only when all other housing options, including financial 

 

7 For the purposes of this document, “incident” includes planned events as well as emergencies and/or disasters of all 

kinds and sizes.
Planning Considerations: Disaster Housing

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assistance for rent, transitional shelters and relocation, have been exhausted or are deemed 

unreasonable. Direct temporary housing assistance is limited to situations in which traditional 

financial options are insufficient to meet the needs of the affected populations. 

A host of Federal programs and grants, sponsored by various agencies such as FEMA, the 

Department of Housing and Urban Development (HUD), the Department of Agriculture (USDA) and 

the Small Business Administration (SBA), are available to help disaster survivors obtain temporary 

and permanent housing. Many of these programs have specific eligibility requirements; see the 

programs’ website links in Appendix A to review eligibility criteria. 

Following a Presidential emergency or major disaster declaration, Emergency Support Function 

(ESF) #6—Mass Care, Emergency Assistance, Temporary Housing and Human Services and the 

Housing Recovery Support Function (RSF) are the primary mechanisms to coordinate Federal 

disaster housing support8: 

 Through ESF #6, the Federal Government provides assistance to eligible individuals and 

households, to include congregate sheltering and temporary housing. 

 The Housing RSF, coordinated by HUD, helps SLTT governments identify resources—both human 

and financial capital—to help rehabilitate, modify and reconstruct destroyed and damaged 

housing, including developing new accessible, permanent housing options. 

ESF #6 and the Housing RSF collaborate to provide a range of housing solutions. SLTT planners 

should involve representatives from the Federal ESF #6 and the Housing RSF in the planning 

process to better understand Federal sheltering and disaster housing programs. 

Disaster Recovery Reform Act (DRRA) of 2018

This legislation authorizes FEMA to issue grants to states, territories and federally recognized 

tribes to implement direct housing assistance for temporary and permanent solutions as part of 

a two-year pilot program. 

 

8 For more information on Emergency Support Functions and Recovery Support Functions, refer to the National Response 

Framework and National Disaster Recovery Framework at https://www.fema.gov/national-planning-frameworks. 
Planning Considerations: Disaster Housing

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2. Sheltering and Housing 

Phases

The nature and magnitude of an incident drives the size, scope and scale of housing needs and the 

duration of assistance required. Planners should develop a range of integrated sheltering and 

housing assistance objectives to address the full spectrum of disasters, from smaller-scale incidents 

of short duration and concentrated impact to large-scale catastrophic incidents of widespread 

devastation that require long-term solutions. Disaster housing plans should be done iteratively and 

address the full range of potential incidents, from natural disasters to terrorism incidents and 

manmade events. Good references for determining applicable hazards are Threat and Hazard 

Identification and Risk Assessments9 and community hazard mitigation strategies and plans. 

A range of sheltering and temporary housing options typically meet the housing needs for smallerscale disasters. However, large-scale catastrophic incidents require extensive long-term 

reconstruction and rehabilitation to renew and revitalize the community and region. Some incidents, 

such as a radiological accident or catastrophic hurricane, may render an area uninhabitable for 

extended periods of time and require intensive advanced planning. 

Sheltering and housing solutions have three segments: sheltering, temporary housing and 

permanent housing (Figure 1). Planning for disaster housing solutions and recovery starts prior to an 

incident, during the “steady state,” when there is time for stakeholder engagement, research and 

analysis and discussions on the viability of courses of action (COAs). Disaster housing planning 

continues after an incident, when the COAs are tailored and operationalized based on the specifics 

of the situation. 

Figure 1: Sheltering and Housing Phases

 

9 Threat and Hazard Identification and Risk Assessment: http://www.fema.gov/threat-and-hazard-identification-and-riskassessment. 
Planning Considerations: Disaster Housing

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Following a disaster, multiple stakeholders work to help displaced individuals and families find 

alternative housing arrangements. Planners must work with whole community partners to realize 

innovative solutions across all sheltering and housing phases.

 Sheltering generally occurs in the days immediately before and after a disaster and provides 

survivors who are displaced from their homes with a place of safety to receive shelter, food and 

other types of support. As disasters increase in size and complexity, the numbers and types of 

shelters increase, along with the number of people in them. This typically results in long-term 

sheltering (i.e., more than two weeks). 

 Temporary housing is the intermediate period of housing assistance that covers the gap between 

sheltering and the return of disaster survivors to permanent housing. 

 Permanent housing is the final housing phase, when disaster survivors move back into their 

repaired homes or attain another form of resilient long-term housing. This can take years.

2.1. Sheltering

NGOs work closely with local governments to plan and manage shelters that meet local needs. 

Sheltering may be precautionary, such as accommodating individuals prior to a severe storm or 

immediately following an incident. When required, additional support is provided by states, tribes or 

territories and, if necessary, by the Federal Government. In most cases, shelter residents return 

home within a short period of time or locate other housing on their own. However, in large-scale 

disasters, extended shelter stays may be required until individuals can either return home or 

transition to temporary or permanent housing. 

Shelters serve multiple purposes. They provide a safe, sanitary and secure location for individuals 

and households to shelter or regroup; obtain updates regarding damages, casualties and response 

and recovery efforts; and in some instances, register for disaster assistance. All shelters, and the 

services they provide, must be accessible to those with access and functional needs.10 

Major or catastrophic incidents require more intensive sheltering support. Not only will the number of 

people requiring shelter support be large, but extensive damage to structures and infrastructure will 

limit sheltering options and result in substantially longer shelter operational periods. 

When the demand for shelters exceeds capacity or traditional shelters are not available, planners 

and emergency managers may need to use nontraditional (congregate and/or noncongregate) 

sheltering options, such as tents, vacant buildings, dormitories, campgrounds or cruise ships. 

 

10 Per FEMA Directive 123-29, Disability Integration and Coordination – Inclusive Emergency Management, individuals 

having 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.
Planning Considerations: Disaster Housing

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Nontraditional shelters should be considered and discussed during the planning process, because 

they require additional monitoring and resources to address potential unanticipated problems that 

could arise. Weighing the availability, benefits and concerns for sheltering resources is an important 

part of integrated disaster housing COA development. Table 1 defines congregate and 

noncongregate sheltering options and provides examples of each type. 

Table 1: Sheltering Examples

Shelter Type Definition Examples

Congregate A safe, sanitary and 

secure private or public 

facility with large open 

spaces.

 Pre-existing shelter facilities

 Large-venue sheltering (i.e., mega-shelters)

 Schools, houses of worship, community centers

 Retreats/Conference centers 

 Soft-sided survivor support camps

 Social services shelters (e.g., homeless)

 All-Purpose community centers or facilities

Noncongregate A nontraditional facility 

that provides 

individuals and 

households with a level 

of privacy higher than 

that of a congregate 

shelter.

 Hotel, motel, trailer

 Dormitories/Group quarters and other vacant 

institutional facilities

 Cruise ships, recreational vessels, floating hotels

 Recreational vehicles 

 Seasonal and commercial recreational camps 

 Family and friends

When a disaster impacts thousands of people in a single community, a large, congregate shelter 

(sometimes referred to as a mega-shelter) may be the best way to serve them. A mega-shelter is an 

arena, stadium, convention center or similar high-occupancy facility that can shelter an exceptionally 

large population of evacuees from a major disaster.11 Mega-shelters create a “little city” where 

evacuees have access to services such as medical care and pharmacies, postal services, legal 

services, daycare and places to power electrical devices. 

2.2. Temporary Housing

Temporary housing is the intermediate phase of housing assistance that covers the gap between 

sheltering and the return of survivors to permanent dwellings. This phase provides displaced 

 

11 Mega-Shelter Planning Guide. International Association of Venue Managers Life Safety Council. October 1, 2010. 

https://www.fema.gov/pdf/emergency/disasterhousing/mspg.pdf. 
Planning Considerations: Disaster Housing

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survivors with safe, habitable and secure places to live with access to community services and the 

opportunity to begin the process of recovery. 

Temporary housing assistance begins with financial assistance for rent, hotel or motel 

reimbursement and home repairs or replacement. For most incidents, this addresses most 

temporary housing requirements. Much of this assistance can be obtained through homeowners’ 

insurance policies, which should be stressed as the best and first line of recovery assistance. For 

catastrophic disasters that destroy, damage or contaminate homes or communities to such an 

extent that they are uninhabitable for an extended period, additional housing options are required. 

Operational planning for temporary housing begins immediately after an incident, while survivors are 

still in shelters, and builds off the concepts and COAs from pre-incident disaster housing plans. 

Temporary housing can extend from weeks to months. In catastrophic or major incidents where the 

damage to housing infrastructure is substantial or in rural areas where rental housing is limited, this 

period may be many months.

When infrastructure is not severely damaged and the number of individuals with needs is 

manageable, existing resources such as rental properties are the simplest, and in many ways the 

best, options. However, if the damage to the community’s infrastructure is significant or the area is 

rural and rental property is unavailable, more levels of government become involved and the 

complexity of solutions increases. In some instances, noncongregate shelter options (e.g., family and 

friends, hotels, motels, trailers) may represent the best temporary housing option. Examples of 

temporary housing used by jurisdictions and states include the following:

 Friends and family

 Hotel, motel

 Commercial space

 Rental housing units 

 Unused Federal residential properties

 Manufactured homes

 Recreational vehicles

 Temporary or alternative housing units

 Vacant apartment buildings.

Decisions made for temporary housing may have substantial implications for long-term recovery, 

which is once again why appropriately documenting necessary decisions, roles and responsibilities 

and authorities in a housing plan is imperative. Temporary housing solutions require greater 

involvement of the whole community. Planning for temporary housing COAs is complex, as noted in 

Chapter 3, Housing Considerations, and should involve many stakeholders. 
Planning Considerations: Disaster Housing

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2.3. Permanent Housing 

The stress level of disaster survivors increases the longer they are without permanent housing. 

Therefore, the goal is to transition survivors from temporary to permanent housing as quickly as 

possible. However, identifying permanent housing relies on many factors such as availability, 

financial resources and aligning individuals to housing with the appropriate accommodations. 

Examples of permanent housing solutions include:

 Construction of kit homes 

 Lease or purchase of single or multifamily homes, apartments or condominiums 

 Modular, manufactured or panelized housing 

 Rehabilitated single or multifamily homes

 Permanent housing construction.

Unlike sheltering and temporary housing, permanent housing depends primarily on the personal 

decisions and financial ability of individuals. Following an incident, available affordable and 

accessible rental housing in the community may be limited and will impact renters’ transition to 

permanent housing. 

Homeowners’ tasks are more complex. They must decide whether they want to repair, rebuild or 

possibly relocate; coordinate with their insurance providers; and seek financing as needed. Local 

government decisions on land use, building and occupancy inspections and permits and providing 

wraparound or basic community services may guide homeowner decisions. A jurisdiction can 

expedite homeowner transitions by identifying and incorporating local government decisions 

impacting permanent housing into their plan. These decisions will enable communities to build back 

better and create more resilient homes. 

Money is required to repair or rebuild. Hopefully, homeowners have insurance, but insurance may 

not cover all rebuilding costs. Homeowners who are inadequately insured may be at higher risk of 

delays in achieving permanent housing. Jurisdictions should incorporate information on applicable 

financial programs for homeowners, renters, nonprofits and businesses into disaster housing plans 

to help planners understand the situation and develop COAs. For example:

 Many states have a state housing finance agency that may have access to Federal resources 

such as the Community Development Block Grant Disaster Recovery (CDBG-DR) and HOME 

Investment Partnerships (HOME) programs, low-income housing tax credits or other programs of 

that nature. 

 Some states, such as Florida, operate a state housing trust fund for a variety of housing 

purposes, including rebuilding housing following an incident. 

 States can also use general funds to support permanent housing, even if they do not have a 

housing trust fund. 
Planning Considerations: Disaster Housing

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 Most importantly, state, tribal and territorial governments are conduits for many Federal disaster 

housing programs, including preparedness grants, as well as a host of other programs offered by 

various Federal departments and agencies. 

Appendix A lists housing assistance programs. 
Planning Considerations: Disaster Housing

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3. Housing Considerations

Disaster housing plans vary by jurisdiction and the threats that jurisdiction faces. Factors such as 

demographics, infrastructure, geography, topography, tourism levels, businesses, government 

programs and jurisdictional rules and regulations all present unique challenges to jurisdictions and 

states. There is no “one size fits all’ approach towards disaster housing. 

Jurisdictions should examine lessons learned and best practices of other communities and 

incorporate relevant considerations into their own plans.12 In addition, considerations evolve or grow 

as solutions transition from sheltering to temporary housing to permanent housing. Thorough 

discussions of these considerations during planning is critical for the success of any COA.

This section identifies some planning considerations for emergency managers and planning teams to 

factor into disaster housing plans, along with example questions to help frame the discussion. 

3.1. Regulations and Authorities 

Various statutory authorities and policies provide the basis for disaster housing assistance and can 

impact the availability of housing and the development of permanent housing options:

 Laws, statutes, ordinances and executive orders dictate the ability to reconstruct, repair, allocate 

and issue disaster housing. 

 Local zoning ordinances, environmental regulations, fire codes, limitations for building in 

floodplains or coastal barriers and accessibility requirements must be taken into account. 

 States, local governments, tribes and territories may have unique authorities that impact their 

emergency response activities and disaster housing programs. 

 Most Federal assistance is based on authorities provided by the Robert T. Stafford Disaster 

Relief and Emergency Assistance Act, as amended (the Stafford Act), 42 U.S.C. 5121-5207; the 

Post-Katrina Emergency Management Reform Act of 2006 (PKEMRA), 6 U.S.C. 701 et seq.; the 

Disaster Recovery Reform Act of 2018 (DRRA), Pub. L. 115-254, Division D; and those of other 

Federal departments and agencies. 

Thorough research on the regulations and authorities that impact the implementation of a disaster 

housing plans is critical to its viability, as each jurisdiction has unique laws and ordinances. For 

 

12 Emergency management associations such as the National Emergency Management Association 

(https://www.nemaweb.org) and the International Association of Emergency Managers (https://www.iaem.org) are 

examples of resources that can share best practices and lessons learned from other jurisdictions.
Planning Considerations: Disaster Housing

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example, various HUD programs allow waivers of regulations following a Presidential Disaster 

Declaration. If waivers to regulations exist, then planners should document them, along with the 

process for obtaining them, to expedite their execution when needed. 

Engaging representatives from various local, state and Federal government agencies in the planning 

process can help identify regulations that could delay the ability to get displaced survivors into 

temporary and permanent housing. Appendix B lists Federal laws, regulations and waivers to 

consider when writing disaster housing plans. 

 Regulations and Authorities Questions to Consider

 What entities have regulatory or legislative responsibilities for disaster housing within the 

jurisdiction?

 What is the legal basis for mutual aid agreements to provide housing assistance?

 What health and safety protocols can impact return to, and occupancy of, homes and 

buildings?

 What codes and ordinances (e.g., placement of temporary housing units, distance from 

roadways, multiple temporary housing units on property, zoning, local flood damage 

prevention ordinances) may need to be waived or suspended to support temporary housing 

solutions?

3.2. Populations

The projected number of survivors requiring disaster housing assistance and their demographics are 

two of the largest planning factors that influence disaster housing plans. Densely populated areas 

require more disaster housing resources than rural areas. For example, areas along the Gulf Coast 

are likely to have many displaced survivors during a hurricane, versus less densely populated inland 

areas. For regions with considerable population fluctuation throughout the year (e.g., summer 

vacationers), planning to accommodate the larger anticipated displaced populations is a best 

practice. Certain demographic and social characteristics also significantly impact disaster housing 

plans for an area: age, acute medical needs, socioeconomic status, individuals with access or 

functional needs, individuals with limited English proficiency (LEP), immigrants and seasonal tourists. 

Collecting data from survivors immediately following a disaster will help jurisdictions better 

determine exact housing needs and develop optimal solutions. Strategies for collecting actionable 

data include developing multiagency shelter transition teams (as outlined in the National Mass Care 
Planning Considerations: Disaster Housing

14

Strategy13) or implementing a case management or case work program. Planners should establish 

data sharing agreements prior to an incident and include all relevant housing partners. 

3.2.1. Individuals with Access and Functional Needs

The social vulnerability14 of communities affects sheltering, temporary housing and permanent 

housing options and locations. SLTT partners should factor in these demographics and engage and 

collaborate with FEMA regional disability integration specialists, state-designated disability 

integration coordinators and members from across the disability community to better understand 

accessible housing needs. These entities may also be able to help identify possible resources for 

shelter and housing for limited or extended periods. 

Accessible resources, accommodations and reasonable modifications ensure housing plans and 

operations include individuals with disabilities and others with access and functional needs. For 

example, survivors with access and functional needs must often stay in proximity to their established 

support system, which restricts available accessible housing options. Appendix B lists the primary 

authorities that address accessibility requirements. 

Advanced planning is essential to ensure equitable access and services for all survivors. Making 

general population shelters and temporary housing accessible to those with access and functional 

needs may require additional items and services, such as:

 Communication assistance and services

 Transportation and personal care assistants

 Assistance with activities of daily living

 Modifications to ensure reasonable accommodations

 Crisis counseling

 Availability of food and beverages appropriate for individuals with dietary restrictions

 Medical support

 Provisions for service and assistance animals.

Planning and executing disaster housing solutions for individuals with access and functional needs 

requires a combined effort of government, private sector and nonprofit agencies. In addition, these 

 

13 National Mass Care Strategy: https://www.fema.gov/national-mass-care-strategy. 

14 The Centers for Disease Control and Prevention (CDC) maintains a Social Vulnerability Index (SVI) based on U.S. Census 

data to determine a community’s social vulnerability. CDC defines social vulnerability as the resilience of communities 

confronted by external stresses on human health (e.g., natural or human-caused disasters or disease outbreaks). Factors 

such as poverty, crowded housing and lack of access to transportation impact social vulnerability. https://svi.cdc.gov/. 
Planning Considerations: Disaster Housing

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collaboration efforts help educate community members with access and functional needs about the 

importance of personal preparedness plans.15 

3.2.2. Homeless and Precariously Housed Populations

Planners should also account for the needs of their community’s homeless and precariously housed 

populations as part of the disaster housing planning process. For example, obtaining an estimate of 

the locality’s pre-disaster homeless and precariously housed populations and the services needed to 

transport and shelter or house them following a disaster is imperative for the community’s needs 

assessment. This requires engaging with the entities responsible for adult social services in their 

communities to better understand various government homeless assistance programs and their 

eligibility requirements, as well as engaging mainstream public and nonprofit agencies that have 

responsibilities toward parts of the precariously housed population.16

Precariously Housed Individuals or Households

These individuals are on the edge of homelessness and may be doubled up with friends and 

relatives or paying extremely high proportions of their resources for rent. This group is often 

characterized as being at imminent risk of becoming homeless. 

Examples of precarious situations common to both urban and rural areas include:

 People staying with friends or family who have nowhere else to go and no resources to obtain 

their own housing (e.g., individuals renting rooms on a temporary basis without a formal 

lease agreement).

 People in institutions and treatment facilities within one week of exit who have no access to 

or resources for housing once released. 

Some private-sector programs may be able to provide solutions, such as permanent supportive 

housing17 while homeless individuals seek affordable housing. In addition, planners should research 

available Federal programs to assist the homeless and incorporate these into their disaster housing 

plan COAs as appropriate. For example, HUD’s Continuum of Care program and related network of 

service providers may be useful resources. 

 

15 A variety of resources for planners on access and functional needs is located at https://www.fema.gov/resourcespeople-disabilities-access-functional-needs. 

16 HUD’s Homeless Assistance Programs: A Guide to Counting Unsheltered Homeless People, 2008. 

https://files.hudexchange.info/resources/documents/counting_unsheltered.pdf. 

17 Permanent supportive housing provides permanent housing and supportive services to individuals and families 

experiencing homelessness to ensure housing stabilization, maximum levels of self-sufficiency and an overall better quality 

of life.
Planning Considerations: Disaster Housing

16

3.2.3. Incarcerated Individuals

Another population to consider is the incarcerated. Incarcerated individuals are subject to the same 

hazards as the public. Correctional facilities are responsible for evacuating and housing their 

resident population, due to issues such as security and detention, for the safety of the incarcerated 

evacuees and protecting the public from potential escapees. 

Incarcerated persons are sheltered at like facilities (e.g., Federal-to-Federal, county-to-county) as 

available. However, some county and state prisons provide “rent out” space for Federal prisoners. 

These arrangements generally do not require direct involvement of a jurisdiction’s emergency 

planners, but planners should coordinate with facilities to confirm they have plans in place and do 

not need additional assistance from the local government.

The National Institute of Corrections commissioned guidance for responding to a variety of 

3.2.4. Healthcare and Senior Facilities

Healthcare and other skilled nursing or senior facilities are also responsible for developing 

emergency operations and contingency plans. Many individuals in senior living complexes or assisted 

living facilities can be relocated to general population shelters, but temporary and permanent 

housing solutions must address specific requirements based on their medical needs. 

These facilities often rely on assistance from the government or third parties to transport and 

relocate patients during disasters. Most healthcare facilities have memoranda of understanding to 

facilitate evacuation and temporary housing processes. Planners should factor in the resources 

needed to accommodate this segment of the population, as well as potential capability gaps. A good 

practice is for planners to follow up with nursing facilities to ensure their contingency plans are 

updated and contain information such as accessible transportations for evacuation to shelters or 

temporary housing locations.

Populations Questions to Consider

 What are the most densely populated areas in the jurisdiction?

 Does the jurisdiction’s population fluctuate throughout the year (e.g., high tourist season)?

 What is the demographic breakdown of the jurisdiction? How current are the statistics?

 Which agencies within the jurisdiction provide services to the people with access and

functional needs?

prison emergencies, including transportation needs, titled A Guide to Preparing for and 

Responding to Prison Emergencies: Self-Audit Checklists, National Survey Results, Resource 

Materials, Case Studies, available at https://nicic.gov/guide-preparing-and-responding-prisonemergencies-self-audit-checklists-national-survey-results. 
Planning Considerations: Disaster Housing

17

 What is the homeless population in the jurisdiction? Are there plans for sheltering or 

housing them following a disaster?

 What portion of the community receives pre-disaster housing assistance? 

 What are the estimated numbers of the community’s homeowners and renters?

 How many hospitals or medical centers are in the jurisdiction? Do they have evacuation 

plans in place?

 Does the disaster housing planning team have copies of evacuation plans for jails/prisons, 

healthcare facilities and institutions?

3.3. Natural Environment

Geography is a key contributing factor to community vulnerability. Proximity to hazard-prone areas, 

such as coasts, floodplains, seismic zones or potential contamination sites, directly affects the 

number of people requiring housing assistance and the potential duration. 

Statistical and geographical information system (GIS)-based modeling approaches can assist 

planners in determining risk based on the natural environment. For example, Flood Insurance Rate 

Maps, storm surge models, wind and rain prediction models and seismic risk approaches help 

planners predict the areas most likely to sustain damage during certain incidents, the population 

that will require housing assistance and the likely types of assistance needed. 

In developing pre-disaster housing plans, local planners or emergency managers should consult 

existing GIS analyses of their region and incorporate known topography challenges, culturally 

sensitive locations (e.g., tribal sacred grounds, historical sites) and other known environmental 

considerations into their COAs. In addition, jurisdictions can use FEMA’s Emergency Management 

Performance Grant to fund GIS analyses to help develop disaster housing plans.18

 Natural Environment Questions to Consider

 Has the jurisdiction conducted GIS modeling to determine topography and assess impacts 

from hazards? 

 What unique environmental risks in the jurisdiction (e.g., coastal areas, floodplains, 

seismic zones) could result in large numbers of displaced persons or challenges with 

rebuilding?

 

18 Emergency Management Performance Grant Program: https://www.fema.gov/emergency-management-performancegrant-program. 
Planning Considerations: Disaster Housing

18

 Are any cultural or historical sites in the jurisdiction governed by specific regulations?

 Would any zoning regulations hinder the ability to rebuild in certain locations due to

environmental considerations?

 Does the jurisdiction have high-risk flooding areas or special flood hazard areas?

 Are threatened or endangered species or other protected wildlife or plants present in any

proposed locations where land-clearing activities may be required?

3.4. Infrastructure 

The viability and resiliency of infrastructure and its corresponding community lifeline(s) directly 

correlate to a community’s resilience, including residential properties, businesses and services. 

Homes and businesses in flood zones, on earthquake faults and on the coastline are susceptible to 

certain types of disasters. Therefore, difficult decisions may need to be made at the local level about 

whether infrastructure can be rebuilt in certain areas.

 Community Lifelines: The most fundamental services in the community that, when stabilized,

enable all other aspects of society to function. https://www.fema.gov/lifelines.

Public infrastructure and lifelines (e.g., water, power) are especially critical, as the loss of these 

assets impacts the ability of individuals to return to their communities in a timely manner. Poorly 

constructed or maintained buildings, inadequately maintained public infrastructure, commercial and 

industrial development and certain types of housing stock all increase the vulnerability of the built 

environment. For example, older buildings may be more susceptible to damage because they could 

still be adhering to the code regulations required at the time of their construction.

Planners should consult recent land surveys, local development records, building permits and 

census population data to better understand the condition of existing infrastructure and planned 

growth, based on forecasted changes to the total number of persons inhabiting their jurisdictions. 

This will help them more accurately document the disaster housing resources that may be required 

and any potential gaps in capabilities.

Infrastructure Questions to Consider

 What critical infrastructure (e.g., water/wastewater plants, healthcare systems), if

damaged, could impact the ability of individuals to return to their homes?

 What are the specific building codes to which structures need to be repaired or rebuilt?

 Do planners have access to a list of key public and private infrastructure partners (e.g.,

power providers, utility companies) on which the jurisdiction relies?
Planning Considerations: Disaster Housing

19

 Have any new developments or construction occurred in the jurisdiction or surrounding 

jurisdiction(s) which might impact housing risks?

3.5. Housing Availability

Following a catastrophic incident resulting in many displaced survivors, temporary and permanent 

housing options may be limited. This situation could result from insufficient housing resources prior 

to the incident, legal restrictions or damage to pre-disaster alternative housing resources. Emergency 

managers and planners must maintain awareness of current housing stock within their jurisdiction 

and identify temporary housing facilities and realistic site locations prior to an incident. 

Engaging local developers, property management companies and entities such as the local Board of 

Realtors is one way that planners can start identifying potential housing solutions for their 

communities. In some cases, jurisdictions can negotiate pre-disaster contracts with the private 

sector to provide temporary or permanent housing. This will alleviate the need to navigate legal 

requirements during the height of a response to an incident. In addition, planners can discuss the 

possibility of relaxing or allowing temporary waivers from certain fees or requirements, such as those 

associated with environmental, zoning or other mandates. This is especially important for housing 

solutions that require delivery and installation. Planners may also want to consider establishing 

processes for quickly permitting and approving utility connections and sites for temporary and 

permanent housing. A best practice is to coordinate with local jurisdictions regarding existing 

building, zoning, floodplain management, codes and regulations when working on the housing plan. 

Understanding current housing stock in a community and identifying potential options for disaster 

housing are critical to determining available resources as part of the planning process. A disaster 

housing plan should include a list of identified housing facilities and units as an appendix.

 Housing Availability Questions to Consider

 What is the composition of the current housing stock (e.g., rentals, single-family, 

multifamily, short-term occupancy)?

 What percentage of the housing inventory is accessible to people with access and 

functional needs?

 What percentage of the housing inventory allows household pets?

 What is the percentage of homeowners and renters in the area?

 What percentage of the housing inventory is non-primary residences?

 Does the jurisdiction have temporary housing resources (e.g., temporary housing units, 

trailers)?
Planning Considerations: Disaster Housing

20

 Are agreements in place for temporary housing solutions (e.g., with neighboring 

jurisdictions, colleges, hotels)?

 Can building codes or zoning ordinances be waived to create additional temporary housing 

solutions? If so, what is the process for that?

 Does the jurisdiction have an inventory of potential areas that could support group sites?

 Does the jurisdiction have an inventory of available commercial parks and pads for lease 

for manufactured housing units and recreational vehicles?

 Has the planning team considered the housing needs of recovery workers and volunteers?

3.6. Contracting

Contractors are a critical force multiplier during any incident response. Jurisdictions may consider 

establishing pre-positioned contracts with vendors to expedite access to housing resources following 

an incident. As part of the planning process, emergency managers should identify any existing prepositioned contracts and discuss the need for additional advance contracts that could help obtain 

housing services and resources in a timely manner. This is particularly valuable for addressing 

housing needs following smaller-scale emergencies where Federal resources may not be available. 

PKEMRA requires FEMA to identify and establish contracts prior to an incident for frequently 

requested goods and services. In 2017, FEMA had an inventory of 77 advance contracts and 

reported that it obligated about $2.3 billion on 57 of them for hurricane assistance—$890 million for 

Harvey, $459 million for Irma and $945 million for Maria. Some commonly acquired products and 

services under these advance contracts were architect and engineering services, inspection services 

and prefabricated buildings.19 SLTT planners should reach out to their regional FEMA office to obtain 

more information or guidance on pre-positioned contracts. In addition, to assist with validating a 

contractor’s integrity, compliance with public policy, record of past performance and financial and 

technical resources, jurisdictions can search the General Services Administration’s System for Award 

Management to determine if a vendor is suspended or debarred.20

 Contracting Questions to Consider

 What, if any, pre-positioned contracts exist in the jurisdiction for housing-related services?

 If any exist, have they recently been reviewed for accuracy and currency?

 

19 2017 Disaster Contracting: Observations on Federal Contracting for Response and Recovery Efforts. February 2018. U.S. 

Government Accountability Office. https://www.gao.gov/assets/700/690425.pdf. 

20 System for Award Management: https://www.sam.gov. 
Planning Considerations: Disaster Housing

21

 If none exist, are there resource gaps where a contract should be considered?

 What contract process would be used to address housing needs? 

 Does the planning team understand the requirements for Federal acquisitions?

3.7. Host State Agreements

Through mutual aid agreements, SLTT jurisdictions provide disaster-related assistance to one 

another. This includes sheltering and housing displaced survivors from other jurisdictions or states. 

For example, Florida provided sheltering and temporary housing for evacuees from Puerto Rico 

following Hurricane Maria. Reimbursement to host states for their efforts is either through existing 

mutual aid agreements (e.g., EMAC), direct reimbursement from FEMA or in response to a state’s 

request to FEMA under the Stafford Act.

 Host State: A state that, by agreement with an impact state or FEMA, is providing evacuation 

and sheltering support to individuals from another state.

 Impact State: A state, territory or tribe that has received a Presidential emergency or major 

disaster declaration.

Planners should identify any existing host state agreements already in place or consider establishing 

agreements with neighboring states during preparedness planning efforts to expand the capacity of 

available sheltering and temporary housing options.

 Host State Questions to Consider

 Are any host state agreements in place at the state or territorial level?

 If not, should host state agreements be established?

 If an agreement exists, does it specifically address relocation of displaced individuals?

 Does the agreement specify procedures or limits to sharing information on displaced 

individuals (e.g., personally identifiable information)?

3.8. Wraparound Services 

Providing temporary housing requires more than just providing structures. Individuals and 

households should be relocated to neighborhoods with reasonable access to community and 

“wraparound” services (e.g., schools, fire and emergency services, grocery stores, healthcare, crisis 

counseling, daycare, public transportation, social services, employment counseling, veterinarians). 
Planning Considerations: Disaster Housing

22

The National Disaster Housing Strategy identifies several planning assumptions for wraparound 

services that emergency managers and planners should consider in their housing plans:

 Certain wraparound services are fundamental in that they meet a community’s basic needs for 

security, restoration of private sector life support and community connectivity. 

 Providing wraparound services expedites individual/family recovery plans and the identification 

of a more permanent housing solution. 

 To the extent possible, several wraparound services may be met through assistance that enables 

and/or connects community nonprofit organizations’ abilities and interests in meeting the needs 

directly.21

 Wraparound Services Questions to Consider

 Have the wraparound services and the agencies or organizations responsible for providing 

them been identified within the jurisdiction?

 Are wraparound service providers included in disaster housing planning efforts? 

 What community organizations and partners can provide support and resources?

3.9. Home and Safety Inspections

After an incident, it is likely that several types of assessment teams will be surveying damaged 

homes. The teams will often have different missions and objectives, though they will also have some 

commonalities that may help inform building safety and recovery efforts for the community.

Building safety inspections22 occur first and evaluate safety and habitability for continued use and 

assess the need for restricted or prohibited entry. This evaluation determines safety and does not 

assess damage or assistance eligibility. Next, housing inspections may be required to assess 

damages, estimate the value of lost property and determine eligibility for certain disaster assistance 

programs. Following catastrophic incidents, the volume of safety evaluations and home inspections 

may exceed the capacity to perform these activities in a timely manner, delaying delivery of housing 

 

21 National Disaster Housing Strategy, pg. 52. https://www.fema.gov/media-library-data/20130726-1819-25045-

9288/ndhs_core.pdf. 

22 Guidance for conducting inspections, including planning and implementation, can be found in FEMA P-2055 

Post-Disaster Building Safety Evaluation Guidance (November 2019). https://www.fema.gov/medialibrary/assets/documents/184924. 
Planning Considerations: Disaster Housing

23

assistance to survivors and related recovery efforts. Planners should consider the inspections and 

certifications required to legally certify occupancy once a home is deemed safe and secure. 

In considering how to expedite safety evaluations and housing inspections, planners should identify 

the existing pool of building inspectors and permitting officials available for post-disaster repair and 

reoccupancy. Mutual aid assistance compacts such as EMAC are force multipliers for jurisdictions. 

Planners should include information on additional inspection resources in their disaster housing 

plans. Visit https://www.fema.gov/resource-management-mutual-aid for additional information on 

the National Mutual Aid System and guidance for incorporating mutual aid into planning efforts. 

 Home and Safety Inspections Questions to Consider

 What entity is responsible for occupation and safety inspections?

 What are the available housing inspection resources within the jurisdiction?

 Does the state recognize certifications and licenses from other states?

 Are mutual aid agreements in place for additional housing inspectors?

 Can the jurisdiction streamline, simplify and expedite building permit applications and 

inspections?

 What is the current wait time to receive a certification of occupancy? Can this be expedited 

post incident?

3.10. Public Information, Outreach and 

Preparedness

A critical aspect of preparedness and planning efforts is identifying and transmitting accessible 

information that will help individuals and households prepare for potential displacement from their 

homes following an incident. Synchronized, proactive messaging, prior to and following an incident, 

encourages individuals and households to plan and react accordingly for displacement and helps 

alleviate some of the burden on jurisdictions. 

The disaster housing planning process should include public outreach to include relevant social 

media platforms. Emergency managers, housing agencies and public officials should ensure 

residents are aware of housing resources and how to access them. For example, the State of Texas 

created a dedicated website for disaster housing resources following Hurricane Harvey (Figure 2).23 

 

23 Texas Department of Housing and Community Affairs: https://www.tdhca.state.tx.us/texans.htm. 
Planning Considerations: Disaster Housing

24

Figure 2: Screenshot of the State of Texas Housing Website

Messaging about the importance of flood insurance, homeowners and rental insurance and 

documentation of proof of ownership (e.g., deed, title, mortgage statement) can expedite disaster 

assistance. Jurisdictions and states should develop a communications strategy that includes 

preparedness activities and messaging in alternative formats, so everyone has access to information 

regarding services and assistance. 

This communication strategy may include sharing tools, such as fact sheets or checklists, that a 

state or agency has already developed. For example, FEMA’s direct housing assistance website for 

Hurricane Harvey includes information on temporary and permanent housing for individuals and 

households.24 Planners can identify and even script messages on housing assistance, funding and 

reimbursements as part of the planning process.

 Public Information, Outreach and Preparedness Questions to Consider

 What accessible communications channels have been identified to relay disaster housing 

information?

 Has disaster housing-related messaging already been developed within the jurisdiction?

 Who is responsible for releasing information to the public within the jurisdiction?

 What community organizations can help amplify housing-related messaging?

 

24 FEMA Direct Housing Assistance: https://www.fema.gov/media-library/assets/documents/155389. 
Planning Considerations: Disaster Housing

25

 What is the protocol to synchronize messages between local, state and Federal entities?

 Does the jurisdiction have a website or social media presence to convey disaster-related 

housing information?

 If not, will one be established? Who will establish, maintain and update it? 
Planning Considerations: Disaster Housing

26

4. Housing Assistance Programs

Many government agencies and organizations have disaster housing responsibilities, capabilities 

and resources. Local jurisdictions, businesses and states provide the first line of housing assistance 

to affected individuals and households. As such, a variety of housing programs and resources exist 

at the SLTT levels and do not require a Stafford Act declaration.

After a Presidentially declared disaster, Federal housing programs become available to the survivors 

and community to begin the recovery process, including programs administered by FEMA. This is 

beneficial because no single program can mitigate all disaster housing challenges; however, 

navigating the various programs, particularly those of the Federal Government, can be difficult 

because of their similarities. 

SLTT planners should have a broad knowledge of these programs, including their applicability, 

intended use, funding and reimbursement policies, population served, end-state, activation 

requirements and authorities. Planners should ensure that their disaster housing plans catalog the 

housing assistance programs and resources that are unique to their jurisdictions as well as the 

criteria and information for accessing them.

Appendix A provides examples of state disaster housing programs and a high-level overview of 

various Federal programs that help survivors find temporary and permanent housing. Annex 1 of the 

National Disaster Housing Strategy provides more details on these programs.25

 

25 National Disaster Housing Strategy Annexes. January 16, 2009. https://www.hsdl.org/?view&did=232305. 
Planning Considerations: Disaster Housing

27

5. Developing a Disaster 

Housing Plan 

CPG 101 provides a standardized planning process that SLTT jurisdictions can use to develop 

disaster housing plans that integrate and synchronize with existing operational and strategic 

planning products and efforts. This promotes consistency between plans and provides a familiar 

framework for stakeholders to engage and participate. Figure 3 depicts the Six-Step Planning 

Process from CPG 101. 

Figure 3: Six-Step Planning Process

This section offers housing-related recommendations and best practices that SLTT jurisdictions 

should incorporate into their six-step planning process when developing disaster housing plans.

The Pre-Disaster Recovery Planning Guide for Local Governments is another reference when 

developing a disaster housing plan.26 The housing capability transcends both response and recovery, 

and this document offers recovery-specific planning recommendations for planners. 

5.1. Step 1: Form a Collaborative Disaster 

Housing Planning Team

As previously noted, disaster housing responsibilities, capabilities and resources involve a diverse 

array of organizations with varied missions and vested interests. No single entity has the means to 

address the full spectrum of disaster housing challenges. In addition, jurisdictions are all unique, 

with different risks, demographics and geographies and different levels of resources and capabilities 

to address disaster housing. Therefore, planners should identify the appropriate representatives 

from all levels of government, NGOs and the private sector to participate in the disaster housing 

planning process for a specific jurisdiction. It is important to understand what capabilities and 

expertise each stakeholder can bring to a jurisdiction’s disaster housing solution. 

 

26 Pre-Disaster Recovery Planning Guide for Local Governments: https://www.fema.gov/medialibrary/assets/documents/129203. 
Planning Considerations: Disaster Housing

28

In this step, planners establish the core and collaborative disaster housing planning teams.

The core planning team is a small group of planners or writers that takes input from the collaborative 

planning team and develops the products for the planning process. This group establishes the 

schedule, communicates with stakeholders, sets expectations, leads the planning process and 

develops the actual draft. 

The collaborative planning team is a larger group of stakeholders that contributes expertise to the 

planning process. To ensure transparency with the community, the collaborative planning team 

should be as broad as possible, including:

 Representatives from various government agencies at the jurisdictional, regional, state and 

Federal levels that have a role in providing disaster housing or wraparound services

 Nonprofit organizations

 Local land developers and builders

 Volunteer organizations

 Disability organizations

 Faith-based organizations

 Chambers of commerce

 Organizations representing the needs of children, seniors, people with access and functional 

needs, people with LEP and historically underserved populations

 As appropriate, organizations representing culturally sensitive locations (e.g., tribal sacred 

grounds) and/or historical sites.

Table 2 provides additional examples of organizations that may be involved in disaster housing. 

These agencies and organizations will vary by jurisdiction. An expansive collaborative planning team 

establishes relationships that bring creativity and innovation to disaster housing planning.
Planning Considerations: Disaster Housing

29

Table 2: Example Participants for a Housing Collaborative Planning Team

Government Organizations Private Sector/Nonprofit Organizations

 Local elected/appointed officials (e.g., 

mayors, city/county managers)

 Emergency management and public safety 

(police/fire/emergency medical services)

 Housing finance agency

 Public housing authorities

 Building departments

 Planning and zoning authorities

 Public works departments

 Health and social services departments

 Floodplain management

 Environmental protection

 Department of Education

 Economic development (local and regional)

 Parks and Recreation

 Historic preservation boards or commissions

 Americans with Disabilities Act (ADA) 

coordinators

 Military installations

 ESF #6 and Housing RSF representatives 

(FEMA, HUD, SBA, USDA, VA)

 American Red Cross 

 Voluntary organizations active in disaster 

 Nonprofit organizations 

 Long-term recovery groups

 Community development corporations

 Utility companies

 Architectural, building and safety and 

planning associations 

 Insurance brokers, agents and carriers

 Commercial and residential construction 

developers

 Rental property 

representatives/associations

 Realtors

 Independent charities

 Education community (private)

 Advocacy organizations (access and 

functional needs, children, immigrant, 

homeless, racial/ethnic concerns, lowincome)

 Chambers of commerce

 Faith-based organizations

 Media outlets

 Private health care and senior facilities

5.2. Step 2: Understand the Housing Situation

As noted in CPG 101, planners start the problem-solving process by researching and analyzing how a 

jurisdiction’s threats and hazards can create potential for displaced survivors for long periods of 

time. Planners use pre-disaster housing inventories, populations and services as their basis for 

developing housing solutions, but the impacts from the event are likely to make the post-disaster 

inventory differ significantly.

Know Your Community

The key to determining risks, impacts and consequences is to know your community and 

understand what defines its identity. Using existing data from local planning documents or local 
Planning Considerations: Disaster Housing

30

community organizations, identify and map all community features, attributes, people and assets 

(e.g., social, political, financial, infrastructure, public and private sector, institutional). 

Understanding these community features assists in hazard identification and provides a 

thorough understanding of the resources at the community’s disposal. Examine previous 

disasters and their impacts and communicate to the planning team any community insights from 

these previous disasters.

The first step to understanding a disaster housing scenario is to conduct focused research on a 

broad range of characteristics of a jurisdiction, such as the size, composition and distribution of the 

population, as well as land use patterns, socioeconomic conditions, local government, local cultural 

considerations, and businesses, community groups, infrastructure conditions and other community 

resources. Leveraging housing data from local and national housing surveys such as the American 

Housing Survey (AHS) and the American Community Survey (ACS) can assist with this activity.27 28 

 AHS: Conducted every two years by the Census Bureau for HUD, the AHS measures housing 

quality and costs over time with a longitudinal sample cohort. The data obtained about 

residences and households provides valuable information that helps Federal, state and local 

governments plan to meet the housing needs of the Nation. The AHS covers the 50 states 

and Washington, DC.

 ACS: Administered by the Census Bureau, the ACS collects data on an ongoing basis to 

provide communities with information for important decisions. The ACS covers the 50 states, 

Washington, DC, and Puerto Rico.

In addition, many communities have some form of data integration center that collects and 

enhances information to support broader community decisions. The Greater New Orleans Data 

Center is an example of such an organization.29 Planners can access such data tools to better 

determine the disaster housing needs of their communities.

This step also includes obtaining knowledge about the various regulations and laws on options for 

disaster housing. One tool to elicit this data is a fact sheet or questionnaire distributed to the 

collaborative planning team that seeks information on a variety of issues and capabilities unique to 

their organizations. In addition, these team members can point the planners to existing resources or 

data specific to the jurisdiction. For example, health officials can provide data on various elements of 

the population, as well as which critical health services require restoration before temporary housing 

structures are usable. 

 

27 U.S. Census Bureau, American Housing Survey: https://www.census.gov/programs-surveys/ahs/. 

28 U.S. Census Bureau, American Community Survey Data: https://www.census.gov/programs-surveys/acs/data.html. 

29 The Data Center: https://datacenterresearch.org. 
Planning Considerations: Disaster Housing

31

This is also an opportunity to assess the capabilities of the community and its broader network of 

resources. For example, research can help identify how many dormitory rooms would be available at 

local or regional institutions of higher learning, which new hotels or apartments are being developed 

and which vacant rental properties require repair. 

When all research is complete, the core planning team analyzes the data to create a “scenario” that 

maximizes the requirements for sheltering and housing within a community. Based on the scenario, 

the planning team develops facts and assumptions pertaining to the housing mission.

5.3. Step 3: Determine Housing Goals and 

Objectives

Using information from the scenario in Step 2, the planning team considers how displaced survivors’ 

needs will evolve and identifies projected housing requirements. These requirements become the 

priorities and basis for establishing jurisdiction goals and objectives. Jurisdictions should reference 

the national disaster housing goals when establishing their housing goals and objectives. However, 

executives and elected officials of each jurisdiction may have additional goals or objectives based on 

the unique characteristics and vision of the community.

The core planning team develops a list of goals and objectives for disaster housing. 

 Goals are broad, general statements that indicate the intended solution to the identified 

problems. They are what personnel and equipment resources are supposed to achieve. 

 Objectives are specific and measurable and focus on actions carried out during the operation. 

They lead to achieving the goals and determining the actions that participants in the operation 

must accomplish. Translating objectives into actions is part of Step 4. 

As goals and objectives are set, planners may identify more requirements that will feed into the 

development of COAs as well as the capability estimate (see Step 4).

5.4. Step 4: Housing Plan Development

In this step, the planning team develops operational COAs to achieve each objective. Given the 

complexity of disaster housing authorities, the planning team should establish a projected timeline 

for housing actions, ranging from sheltering through permanent housing. Using this timeline, 

planners can identify decision points and response actions required to achieve the objective or 

response goal (i.e., the desired end state). The timeline also helps determine how much time is 

available or needed to complete a sequence of actions. This is particularly important to help 

survivors move out of shelters and to return to some level of normalcy as quickly as possible. 
Planning Considerations: Disaster Housing

32

When developing COAs, jurisdictions must understand which organization(s) have responsibility for 

which actions and whether those actions depend on any decisions, legal authorities or the 

completion of other tasks. In addition, some housing assistance programs have timelines 

established in law, regulations or policies that can include deadlines for applications, completion of 

work, developing administrative plans, program duration or timelines for submitting extension 

requests or appeals. Planners should consider developing a section on key decisions and their 

implications.

After selecting housing COAs, the planning team develops capability estimates that identify the 

capabilities and resources needed to accomplish tasks. Capability estimates help planners decide 

whether pursuing a COA is realistic and supportable. 

Once the estimates are completed, the planning team uses the information from Step 2 to identify 

existing disaster housing resources and any gaps or shortfalls (in direct or indirect disaster housing 

capabilities, resources, authorities or funding). Gaps are usually between the projected number of 

people requiring some form of housing assistance and the actual capacity to house them with 

existing resources. However, projecting actual disaster housing needs has historically been a 

challenge—survivors make their own choices and the length of time it takes to deliver housing 

solutions may impact the participation rate.

At this juncture, the planning team should start identifying housing capabilities outside the 

jurisdiction (e.g., regional, Federal, NGO) that can fill some of the housing shortfalls. It should also 

discuss the need for mutual aid agreements, host state agreements or waivers.

5.5. Step 5: Housing Plan Preparation, Review 

and Approval

Once the core planning team develops a draft of the plan, representatives from the collaborative 

planning team should review and validate the content and potentially identify additional coordination 

points, functions or resources. 

Particularly, since roles and responsibilities for disaster housing support encompass many agencies 

and organizations, any errors or conflicts must be resolved and addressed prior to the plan’s 

approval and publication. Conducting at least one stakeholder engagement period is a best practice. 

Refer to CPG 101 for successful strategies to facilitate input from stakeholders. 

After the core planning teams reviews and adjudications of comments, the collaborative planning 

team members should have an opportunity for a final review of the document to ensure that all 

critical omissions or errors are resolved. The lead planner or emergency manager then submits the 

plan to the appropriate executive decision-maker for approval.
Planning Considerations: Disaster Housing

33

5.6. Step 6: Housing Plan Implementation and 

Maintenance

States typically convene housing task forces at their state emergency operations center (EOC) or a 

joint field office to implement the housing plan and identify actual housing solutions following an 

incident. During the planning process, emergency managers are encouraged to identify personnel to 

serve on an interagency housing task force. 

Ideally, an exercise to test the viability of the housing COAs occurs prior to the plan’s approval, but 

that is not always the case. Therefore, the emergency manager should identify exercise and training 

opportunities for the disaster housing plan as soon as possible following its publication. 

To help emergency managers determine the qualifications that specific housing roles require, 

jurisdictions and states can leverage the National Qualification System (NQS) disaster housing job 

titles and position task books. The NQS establishes standard minimum qualifications for specific 

incident-related positions to provide consistency across the Nation and support nationwide 

interoperability.30

Collaborative exercises should involve partners identified in the plan to help familiarize them with the 

plan and solidify a practical understanding of processes, decision points and delivery of capabilities. 

Tabletop exercises (TTXs) are useful tools for identifying potential resource shortfalls or plan 

weaknesses. Lessons learned from TTXs, other exercises or trainings inform decisions by senior 

leaders to make changes to the plan. The Homeland Security Exercise and Evaluation Program 

(HSEEP) provides a set of guiding principles for exercise programs, as well as a common approach to 

exercise program management, design and development, conduct, evaluation and improvement 

planning. Emergency managers should consult HSEEP for additional information on how exercises 

can assess and validate housing capabilities.31

Lessons learned from real-world incidents are critical inputs to plan revisions and housing solutions. 

These incidents, while unfortunate, offer an opportunity to assess existing plans and identify 

planning or resource gaps. Partners, such as the members of a disaster housing task force, can 

further refine housing plans and strategies based on the execution of existing plans in the face of a 

real-world incident.

 

30 Guideline for the National Qualification System. FEMA. November 2017. https://www.fema.gov/media-librarydata/1523470612203-906948554492c1f2663c9e69eb636401/NIMS_NQS_Guideline_April2018.pdf. 

31 Homeland Security Exercise and Evaluation Program: https://www.fema.gov/hseep. 
Planning Considerations: Disaster Housing

34

State-Led Disaster Housing Task Force (SLDHTF)

At the state level, a SLDHTF is a permanent body that coordinates SLTT, Federal, NGO and 

private sector experts to identify and evaluate housing programs, resources and capabilities as 

part of the disaster housing planning effort. It primarily consists of SLTT officials who have a role 

in disaster housing. Following an incident, the SLDHTF:

 Activates upon initiation of the state-led housing mission

 Determines the scope of disaster-caused housing needs

 Explores available rental resources and feasible alternatives

 Identifies and implements housing solutions following an incident.

Scheduled periodic reviews, revisions and exercises of the disaster housing plan are necessary to 

keep it current and effective. Reviews should consider lessons learned from real-world incidents or 

exercises that included a disaster housing mission, new national policy or significant changes within 

the jurisdiction, such as government reorganizations, housing booms and shifts in demographics. 
Planning Considerations: Disaster Housing

35

6. Glossary 

Access and Functional Needs: Individuals having access and functional needs may include, but are 

not limited to, people with disabilities, older adults and individuals with limited English proficiency 

(LEP), limited access to transportation and/or limited access to financial resources to prepare for, 

respond to and recover from the emergency.

Agency: A government element with a specific function offering a particular kind of assistance.

Congregate Shelters: A safe, sanitary and secure private or public facility with large open spaces. 

Course of Action (COA): An approach that accomplishes an objective or mission.

Emergency Operations Center (EOC): The physical location where the coordination of information and 

resources to support incident management activities (on-scene operations) normally takes place. An 

EOC may be a temporary facility or located in a more central or permanently established facility, 

perhaps at a higher level of organization within a jurisdiction.

Emergency Operations Plan (EOP): The ongoing plan maintained by various jurisdictional levels for 

responding to a wide variety of potential hazards. It describes how people and property will be 

protected; details who is responsible for carrying out specific actions; identifies the personnel, 

equipment, facilities, supplies and other resources available; and outlines how all actions will be 

coordinated.

Emergency Support Function (ESF): The grouping of governmental and certain private sector 

capabilities into an organizational structure to provide capabilities and services most likely needed to 

manage domestic incidents.

Host State: A state that, by agreement with an impact state or FEMA, is providing evacuation and 

sheltering support to individuals from another state.

Impact State: A state, territory or tribe that has received a Presidential emergency or major disaster 

declaration.

Incident: An occurrence, natural or manmade, that necessitates a response to protect life or 

property. In this document, the word “incident” includes planned events as well as emergencies 

and/or disasters of all kinds and sizes.

Jurisdiction: A political subdivision (e.g., municipality, county, parish, territory, tribe, state, Federal) 

responsible for ensuring public safety, health and welfare within its legal authorities and geographic 

boundaries.

Mega-Shelter: An arena, stadium, convention center or similar very high-occupancy facility that is 

used to shelter an exceptionally large population of evacuees from a major disaster.
Planning Considerations: Disaster Housing

36

Noncongregate Shelters: A nontraditional facility (e.g., home of family or friends, trailer, hotel, 

dormitory, cruise ship, recreational vehicle) that provides individuals and households with a level of 

privacy higher than that of a congregate shelter.

Nongovernmental Organization (NGO): A group that is based on the interests of its members, 

individuals or institutions that is not created by a government; it may work cooperatively with 

government. Examples include faith-based groups, relief agencies, organizations that support people 

with access and functional needs and animal welfare organizations.

Objective: A statement of an outcome to be accomplished or achieved. Incident objectives are used 

to select strategies and tactics. Incident objectives should be realistic, achievable and measurable, 

yet flexible enough to allow strategic and tactical alternatives.

Permanent Housing: Safe, sanitary and secure housing that can be sustained without continued 

disaster-related assistance.

Private Sector: Organizations and individuals 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.

Reasonable Modification: A structural change made to existing premises, occupied or to be occupied 

by a person with a disability, to afford such person full enjoyment of the premises.

Shelter: A safe, sanitary and secure place that provides life-sustaining services in a congregate or 

noncongregate facility for individuals who have been displaced by an emergency or a disaster.

Sheltering: The provision of short-term life-sustaining services in a safe, sanitary and secure 

environment for disaster survivors who have been displaced from their homes and are unable to 

meet their own immediate post-disaster housing needs.

State: Used in this document to include any U.S. state, the District of Columbia, the Commonwealth 

of Puerto Rico, the U.S Virgin Islands, Guam, American Samoa, the Commonwealth of the Northern 

Mariana Islands and any U.S. possession.

State-Led Disaster Housing Task Force (SLDHTF): A permanent body that coordinates SLTT, Federal, 

nongovernmental and private sector experts to identify and evaluate housing programs, resources 

and capabilities as part of disaster housing planning. 

Temporary Housing: The intermediate period of housing assistance that covers the gap between 

sheltering and the return of disaster survivors to permanent housing. Generally, this period may span 

from the day after a disaster declaration through a period up to 18 months.

Temporary Housing Unit: Manufactured housing, recreational vehicle or other readily fabricated 

dwelling (e.g., pre-fabricated dwelling).
Planning Considerations: Disaster Housing

37

Wraparound Services: Infrastructure and additional essential services to address disaster-related 

needs of affected residents living in temporary housing sites. These services go beyond the physical 

need for housing or political subdivision of a state and typically include basic social services and 

access to utilities, transportation, grocery stores and medical and employment facilities.
Planning Considerations: Disaster Housing

38

7. Acronyms 

ACS American Community Survey

ADA Americans with Disabilities Act

AHS American Housing Survey

CDBG Community Development Block Grant

CDBG-DR Community Development Block Grant – Disaster Recovery

COA Course of Action

CPG Comprehensive Preparedness Guide

CSBG Community Services Block Grant

DRRA Disaster Recovery Reform Act

EMAC Emergency Management Assistance Compact

EO Executive Order

EOC Emergency Operations Center

EOP Emergency Operations Plan

ESF Emergency Support Function

FEMA Federal Emergency Management Agency

FHA Federal Housing Administration

FTH First-Time Homebuyer

GIS Geographic Information System

HHS Department of Health and Human Services

HMGP Hazard Mitigation Grant Program

HOME HOME Investment Partnerships Program

HSEEP Homeland Security Exercise Evaluation Program
Planning Considerations: Disaster Housing

39

HSPD Homeland Security Presidential Directive

HUD Department of Housing and Urban Development

IAPPG Individual Assistance Program and Policy Guide

LEP Limited English Proficiency

NFIP National Flood Insurance Program

NGO Nongovernmental Organization

NQS National Qualification System

PKEMRA Post-Katrina Emergency Management Reform Act

RSF Recovery Support Function

SBA Small Business Administration

SLDHTF State Led Disaster Housing Task Force

SLTT State, Local, Tribal and Territorial

TTX Tabletop Exercise

USACE Army Corps of Engineers

USDA Department of Agriculture

VA Department of Veterans Affairs
Planning Considerations: Disaster Housing

40

Appendix A: Housing Assistance 

Programs 

State and Local Housing Assistance Programs

The composition of governments in each SLTT jurisdiction differs. As a result, disaster housing 

programs vary across each jurisdiction. Some states and jurisdictions have dedicated housing 

assistance programs or resources in addition to those supplied by the Federal Government. Table 3

provides some examples of state housing programs.

As part of the planning process, planners should understand the disaster housing programs at the 

local, state and Federal levels, along with their purpose, scope and eligibility requirements.

Table 3: Examples of State Disaster Housing Programs

State Program Purpose Link

Florida Hurricane 

Housing Recovery 

Program

Provides funding that can be 

used for a wide variety of housing 

activities, including repairs and 

rehabilitation of damaged units, 

replacement housing, rent 

payment assistance and 

foreclosure prevention.

https://www.floridaho

using.org/programs/s

pecial-programs/ship--

-state-housinginitiatives-partnershipprogram/disasterrelief

Maryland Maryland 

Disaster Housing 

Assistance 

Program

Provides short-term, emergency 

rental assistance for families or 

individuals displaced by a natural 

disaster, as identified by the 

Maryland Emergency 

Management Agency or the 

Maryland Department of Human 

Resources, while the voucher 

recipient arranges for long-term 

housing or awaits permanent 

housing assistance. 

www.dhcd.maryland.g

ov/Communities/Docu

ments/TenantParticip

atonFactSheet.pdf 

Massachusetts Massachusetts 

Accessible 

Housing Registry 

Program

Helps people with disabilities find 

rental housing in Massachusetts, 

primarily accessible and barrierfree housing.

http://www.massacce

sshousingregistry.org/
Planning Considerations: Disaster Housing

41

State Program Purpose Link

Minnesota Disaster Recovery 

Loan Program

Provides assistance as a last 

resort when private insurance 

and Federal assistance are not 

adequate to return a damaged 

home to its pre-disaster 

condition. The program is 

activated in the event of a 

federally declared natural 

disaster.

http://www.mnhousin

g.gov/wcs/Satellite?c

=Page&cid=1358905

001749&pagename=

External/Page/EXTSta

ndardLayout

North Carolina Back @ Home Assistance for individuals and 

families who are not eligible for 

individual assistance through 

FEMA or who may be receiving 

limited FEMA assistance and still 

need help securing housing or 

other supportive services. 

Services include help finding 

housing, rent and utility 

assistance, move-in supplies 

and, if needed, help accessing 

other resources like job training 

and placement and child care.

https://www.backatho

me.org/

Single-Family 

Rehabilitation 

Program

Provides funding to rehabilitate 

owner-occupied homes in 

disaster-affected counties. 

Assistance is provided through 

local governments or nonprofit 

agencies.

https://www.nchfa.co

m/currenthomeowners/repairyour-home/singlefamily-rehabilitationprogram

Virginia The Emergency 

Home and 

Accessibility 

Repair Program

Provides funds to remove urgent 

emergency health and safety 

hazards. It also addresses 

physical accessibility barriers for 

low-income Virginians.

https://www.dhcd.virgi

nia.gov/eharp

Federal Housing Assistance Programs

The following sections summarize major Federal programs by department or agency that provide, or 

help provide, sheltering or temporary or permanent housing for individuals or households affected by 

a major disaster. These programs help individuals and households return to their pre-disaster state 

of sustainable, self-sufficient housing. More details on these programs are in the National Disaster 
Planning Considerations: Disaster Housing

42

Housing Strategy Annex 1: Overview of Disaster Housing Programs for Federal, State, Tribal and 

Local Government and Nongovernmental Organizations.32

Army Corps of Engineers (USACE)

Table 4: USACE Disaster Housing Program

Program Purpose Activation Link

Operation Blue 

Roof 

Provides homeowners in 

disaster areas with fiberreinforced sheeting to cover 

their damaged roofs until 

arrangements can be made for 

permanent repairs.

Presidential 

emergency or major 

disaster declaration

https://www.usace.ar

my.mil/Media/FactSheets/Fact-SheetArticleView/Article/475463/

temporary-roofing/ 

Department of Agriculture (USDA)

Table 5: USDA Disaster Housing Programs

Program Purpose Activation Link

Direct Loan 

and Loan 

Guarantee 

Programs

Provides qualified applicants 

the opportunity to acquire, build, 

rehabilitate, improve or relocate 

dwellings in rural areas. 

Borrowers may either obtain 

direct loans from USDA or from 

private lenders that are 

guaranteed by USDA.

Presidential 

emergency or major 

disaster declaration

https://www.rd.usda.g

ov/programsservices/services/rura

l-developmentdisaster-assistance

Farm Labor 

Housing Direct 

Loans and 

Grants

Helps develop housing for farm 

workers through direct loans 

and grants.

Presidential 

emergency or major 

disaster declaration

https://www.rd.usda.g

ov/programsservices/farm-laborhousing-direct-loansgrants

First-Time 

Homebuyers 

(FTH) and 

USDA Loans

Provides incentives such a 0% 

down payment, lenient 

qualifications and low mortgage 

insurance to incentivize FTHs in 

rural areas as defined by USDA. 

A borrower who hasn’t owned a 

home in the past three years 

may also qualify for an FTH loan.

Standing program https://www.usdaloan

s.com/program/firsttime-homebuyers/

 

32 National Disaster Housing Strategy Annexes. January 16, 2009. https://www.hsdl.org/?view&did=232305. 
Planning Considerations: Disaster Housing

43

Program Purpose Activation Link

Multifamily 

Housing 

Rental 

Assistance

Makes rental assistance 

payments to owners of rental 

housing whose houses are 

uninhabitable due to a disaster. 

Eligible tenants pay no more 

than 30% of their income in 

rent.

Presidential 

emergency or major 

disaster declaration

https://www.rd.usda.g

ov/programsservices/multi-familyhousing-rentalassistance

Rural Rental 

Housing Loans

Enables developers to provide 

multifamily housing for the 

elderly, individuals with a 

disability and families who 

cannot afford the purchase 

price and maintenance costs of 

their own homes. Borrowers 

may obtain loans from private 

lenders to finance multifamily 

housing in rural areas, and 

USDA guarantees to pay for the 

lender losses in case of 

borrower default.

Presidential 

emergency or major 

disaster declaration

https://www.hud.gov/

sites/documents/195

65_515_RURALRENTA

L.PDF

Single-Family 

Housing 

Repair Loans 

and Grants

Provides very-low-income rural 

homeowners with direct loans to 

repair their homes.

Presidential 

emergency or major 

disaster declaration

https://www.rd.usda.g

ov/programsservices/single-familyhousing-repair-loansgrants

Department of Health and Human Services (HHS)

Table 6: HHS Disaster Housing Programs

Program Purpose Activation Link

Community 

Services Block 

Grant (CSBG)

Provides block grants to states, 

U.S. territories and federally 

recognized Native American 

tribes following disasters, who 

then distribute the monies to 

community action agencies and 

other organizations serving lowincome populations. 

Any disaster, 

regardless of 

whether there is a 

Presidential 

emergency or major 

disaster declaration

https://www.acf.hhs.g

ov/ocs/programs/csb

g
Planning Considerations: Disaster Housing

44

Program Purpose Activation Link

Social Services 

Block Grant 

Provides block grants to states, 

U.S. territories and federally 

recognized Native American 

tribes following disasters for the 

provision of social services to 

low-income populations. 

Upon passage of a 

supplemental 

appropriations bill 

following a disaster

https://www.acf.hhs.g

ov/ocs/programs/ssb

g

Department of Housing and Urban Development (HUD)

Table 7: HUD Disaster Housing Programs

Program Purpose Activation Link

Community 

Development 

Block Grant 

(CDBG) 

Funds local community 

development activities such as 

affordable housing, economic 

revitalization, public services 

and infrastructure restoration. 

Ongoing program 

funded by annual 

appropriation to 

HUD

https://www.hudexch

ange.info/programs/c

dbg/

Community 

Development 

Block Grant – 

Disaster 

Recovery 

(CDBG-DR) 

Often used as a distribution 

mechanism for disaster 

recovery funds made available 

by Congressional supplemental 

appropriations.

Supplemental 

appropriations made 

by Congress 

following a 

Presidential disaster 

declaration

https://www.hudexch

ange.info/programs/c

dbg-dr/

FHA Mortgage 

Insurance for 

Disaster 

Victims – 

Section 203(h)

Provides insurance for 

mortgages made by qualified 

lenders to victims of a major 

disaster who have lost their 

homes and are in the process of 

rebuilding or buying another 

home. 

Presidential 

emergency or major 

disaster declaration

https://www.hud.gov/

program_offices/housi

ng/sfh/ins/203h-dft

FHA 

Rehabilitation 

Mortgage 

Insurance – 

Section 203(k)

Helps those who have lost their 

homes by insuring a single, longterm, fixed or adjustable rate 

loan that can cover both the 

acquisition and rehabilitation of 

a property that is at least a year 

old.

Any disaster, 

regardless of 

whether there is a 

Presidential 

emergency or major 

disaster declaration

https://www.hud.gov/

program_offices/housi

ng/sfh/203k
Planning Considerations: Disaster Housing

45

Program Purpose Activation Link

HOME 

Investment 

Partnerships 

Annual formula grants to 

participating jurisdictions that 

allow states and local 

governments to fund a wide 

range of activities that build, buy 

and/or rehabilitate affordable 

housing or provide direct rental 

assistance to low-income 

people.

Standing program https://www.hud.gov/

program_offices/com

m_planning/affordabl

ehousing/programs/h

ome/

Housing 

Counseling

Provides counseling to 

consumers on seeking, 

financing, maintaining, renting 

or owning a home. 

HUD-approved housing 

counseling agencies have 

played key roles in the recovery 

from many disasters.

No formal activation https://www.hudexch

ange.info/programs/h

ousing-counseling/

Loss 

Mitigation 

Services for 

FHA 

Homeowners

Incorporates a process to avoid 

foreclosures where lenders 

assist borrowers who have been 

unable to make loan payments 

and are in danger of defaulting 

on their loans.

At the discretion of 

the HUD Secretary 

https://www.hud.gov/

program_offices/housi

ng/sfh/nsc/lossmit

Public Housing 

Capital Fund

Makes improvements that 

benefit public housing residents, 

who are predominantly families 

and elderly people with incomes 

below 50 percent of the 

HUD-adjusted area median 

income (AMI).

No formal activation; 

case-by-case basis

https://www.hud.gov/

hudprograms/phcapfu

nd

Department of Veterans Affairs (VA)

Table 8: VA Disaster Housing Programs

Program Purpose Activation Link

VA Home 

Loans

Helps veterans, certain Service 

personnel (including certain 

Reservists and Guard members) 

and certain unmarried surviving 

spouses of veterans obtain 

credit to buy, build or improve 

homes.

At the discretion of 

the VA Secretary 

following a 

Presidential 

emergency or major 

disaster declaration

https://benefits.va.go

v/homeloans/
Planning Considerations: Disaster Housing

46

Federal Emergency Management Agency (FEMA)

Table 9: FEMA Sheltering and Disaster Housing Assistance

Program Purpose Activation Link

Cora Brown 

Fund 

Helps meet disaster-related 

needs that have not or will not 

be met by governmental 

agencies or any other 

organization.

Presidentially 

declared major 

disaster or 

emergency not 

caused by or 

attributable to war

http://www.federalgra

ntswire.com/corabrown-fund.html

Hazard 

Mitigation Grant 

Program (HMGP)

Provides grants to SLTT 

governments who implement 

long-term hazard mitigation 

measures that will reduce the 

loss of life and property due to 

natural disasters.

Presidential 

emergency or major 

disaster declaration

https://www.fema.gov

/hazard-mitigationgrant-program-new

Individual 

Assistance (IA)

Through IA, FEMA provides 

direct assistance to 

individuals and households as 

well as SLTT governments to 

support individual survivors.

Presidential 

emergency or major 

disaster declaration

https://www.fema.gov

/individual-assistanceprogram-tools

https://www.fema.gov

/individual-assistanceprogram-and-policyguide

 Disaster Case 

Management 

(DCM)

An IA program, DCM provides 

case management services, 

including financial assistance, 

to SLTT government agencies 

or qualified private 

organizations to provide such 

services to victims of major 

disasters to identify and 

address unmet needs.

Major disaster 

declaration

https://www.fema.gov

/individual-assistanceprogram-and-policyguide

 Individual 

and 

Households 

Program (IHP)

An IA program, IHP provides 

financial and direct assistance 

to eligible individuals and 

households affected by a 

disaster who have uninsured 

or underinsured necessary 

expenses and serious needs.

Major disaster 

declaration 

authorizing 

Individual 

Assistance

https://www.fema.gov

/individual-assistanceprogram-and-policyguide
Planning Considerations: Disaster Housing

47

Program Purpose Activation Link

 Transitional 

Sheltering 

Assistance 

(TSA)

An IA program, TSA is a 

short-term noncongregate 

sheltering form of assistance 

for displaced disaster 

survivors taking refuge in 

emergency shelter locations 

other than their pre-disaster 

primary residence. FEMA may 

provide TSA at the request of 

a declared state, territorial or 

tribal government.

Major disaster 

declaration

https://www.fema.gov

/individual-assistanceprogram-and-policyguide

National Flood 

Insurance 

Program (NFIP)

Enables individuals to 

purchase insurance against 

losses from physical damage 

or loss of buildings and/or 

contents.

Standing program http://www.fema.gov/

business/nfip/

Small Business Administration (SBA)

Table 10: SBA Disaster Housing Program

Program Purpose Activation Link

Disaster Loan 

Assistance

Provides low-interest, fixed-rate 

loans to disaster victims, 

enabling them to repair or 

replace property damaged or 

destroyed in declared disasters. 

At the discretion of 

SBA Administrator or 

following a 

Presidential 

emergency or major 

disaster declaration

https://disasterloan.s

ba.gov/ela/Informatio

n/Inde
Planning Considerations: Disaster Housing

48

Appendix B: Authorities and 

References 

Authorities

Each SLTT jurisdiction has unique statutes and policies that govern their housing activities. This 

portion of the appendix focuses on Federal authorities that jurisdictions and states should consider 

when developing their disaster housing plans. 

NOTE: This list is not exhaustive.

 Age Discrimination Act of 1975, 42 U.S.C. § 6101–6107: Prohibits discrimination on the basis of 

age in programs and activities receiving Federal financial assistance.

 Americans with Disabilities Act of 1990 (ADA), Public Law 101-336, as amended. 42 U.S.C. 

§ 12101: Prohibits discrimination on the basis of a disability and defines a person with a 

disability as an individual who has a physical or mental impairment that substantially limits one 

or more major life activities. All federally funded programs must be ADA compliant.

 Architectural Barriers Act, as amended, 42 U.S.C. § 4151 et seq.: Requires that all buildings and 

facilities designed, constructed or altered with Federal funds, or leased by a Federal agency, 

comply with Federal standards for physical accessibility (requirements are limited to architectural 

standards in new and altered buildings and in newly leased facilities). Federal funds that provide 

shelter or temporary or permanent housing after a disaster must comply with this act. 

 Civil Rights Act of 1964, Title VI, Public Law 88–352: Prohibits discrimination on the basis of 

race, color and national origin by recipients of Federal financial assistance.

 Civil Rights Act of 1968, Title VIII (Also known as the Fair Housing Act of 1968), 42 U.S.C. 

§ 3601–3619: The 1968 act expanded on the Civil Rights Act of 1964 by prohibiting 

discrimination concerning the sale, rental and financing of housing based on race, religion or 

national origin. A 1974 Amendment added gender and a 1988 Amendment protects people with 

disabilities and families with children. 

 Executive Order (EO) 12898 – Federal Actions to Address Environmental Justice in Minority 

Populations and Low-Income Populations: Directs Federal agencies to identify and address 

disproportionately high and adverse human health or environmental effects of their actions on 

minority and low-income populations with the goal of achieving environmental protection for all 

communities.
Planning Considerations: Disaster Housing

49

 EO 13166 – Improving Access to Services for Persons with Limited English Proficiency: Requires 

Federal agencies to examine the services they provide, identify any need for services to those 

with LEP and develop and implement a system to provide those services so LEP people have 

meaningful access to them. 

 EO 13347 – Individuals with Disabilities in Emergency Preparedness: Ensures that the support 

needed by individuals with disabilities is integrated into the development and implementation of 

emergency preparedness plans by Federal and SLTT governments and private organizations.

 Federal Aviation Administration Reauthorization Act of 2018 (Disaster Recovery Reform Act of 

2018), Public Law 115-254, Division D: Acknowledges the shared responsibility of disaster 

response and recovery and aims to reduce the complexity of FEMA and build the Nation’s 

capacity for the next catastrophic event. The law contains more than 50 provisions that require 

FEMA policy or regulation changes for full implementation, as they amend the Robert T. Stafford 

Disaster Relief and Emergency Assistance Act.

 Flood Disaster Protection Act of 1973, Public Law 93-234: Mandates the purchase of flood 

insurance to protect property located in special flood hazard areas.

 Homeland Security Presidential Directive 5 (HSPD-5), Management of Domestic Incidents, 2003: 

Establishes a single, comprehensive national incident management system.

 International Code Council: International Residential Code, 2018: Establishes minimum 

regulations covering all aspects of construction for one- and two-family dwellings and 

townhouses not more than three stories above grade. 

 National Fire Protection Association 5000: Building and Construction Safety Code, 2018: 

Includes provisions to regulate and control the permitting, design, construction, quality of 

materials, use and occupancy and location of all buildings, structures and certain equipment.

 National Flood Insurance Act of 1968, 42 U.S.C. 4001 et seq.: Establishes NFIP, an insurance 

alternative to disaster assistance, to meet the escalating costs of repairing damage to buildings 

and their contents caused by floods.

 Pets Evacuation and Transportation Standards Act of 2006, Public Law 109-308: Amends the 

Stafford Act to require state and local emergency preparedness operational plans to address the 

needs of individuals with household pets and service animals following a major disaster or 

emergency.

 Post-Katrina Emergency Management Reform Act, Public Law 109–295, Title VI: Amends the 

Stafford Act with several important provisions, including that after a major disaster or emergency 

declaration, accelerated Federal assistance can be sent by FEMA in the absence of a specific 

request by a state. 
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 Rehabilitation Act of 1973, 29 U.S.C. § 701 et seq.: Section 504 prohibits discrimination on the 

basis of disability in any program or activity that receives Federal financial assistance, including 

federally subsidized housing programs. 

 Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act), Public Law 

93-288, as amended, 42 U.S.C. § 5121-5207: § 408(c): Enables the Federal Government to 

assist states affected by a disaster to expedite the rendering of aid and emergency services and 

the reconstruction of devastated areas. It provides statutory authority for most Federal disaster 

response activities, especially as they pertain to FEMA programs, including disaster housing. 

References

This section includes references to documents and websites cited throughout this guide.

 2017 Hurricane Season FEMA After-Action Report. FEMA. July 12, 2018. 

https://www.fema.gov/media-library-data/1531743865541-

d16794d43d3082544435e1471da07880/2017FEMAHurricaneAAR.pdf. 

 2017 National Preparedness Report. FEMA. August 28, 2017. https://www.fema.gov/medialibrary/assets/documents/134253. 

 American Housing Survey. Census Bureau. https://www.census.gov/programs-surveys/ahs.html. 

 Community Development Block Grants (Disaster Recovery Assistance). HUD. 

https://www.hud.gov/hudprograms/disaster-recovery. 

 CPG 101, Version 2. FEMA. November 1, 2010. https://www.fema.gov/medialibrary/assets/documents/25975. 

 Emergency Management Performance Grant Program. FEMA. https://www.fema.gov/emergencymanagement-performance-grant-program. 

 HOME Investment Partnerships Program. HUD. 

https://www.hud.gov/program_offices/comm_planning/affordablehousing/programs/home/. 

 Homeland Security Exercise and Evaluation Program. FEMA. https://www.fema.gov/medialibrary/assets/documents/32326. 

 Individual Assistance Program and Policy Guide (IAPPG). FEMA. 

https://www.fema.gov/individual-assistance-program-and-policy-guide. 

 Los Angeles/Long Beach/ Riverside Regional Catastrophic Planning Grant Program Region 

Assessment and Gap Analysis Report. 2012. https://hcidla.lacity.org/assessment-and-gapanalysis-report. 
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 National Disaster Housing Strategy. FEMA. January 16, 2009. https://www.fema.gov/medialibrary-data/20130726-1819-25045-9288/ndhs_core.pdf. 

 National Disaster Recovery Framework, Second Edition. FEMA. June 2016. 

https://www.fema.gov/media-library-data/1466014998123-

4bec8550930f774269e0c5968b120ba2/National_Disaster_Recovery_Framework2nd.pdf. 

 Pre-Disaster Recovery Planning Guide for Local Governments. FEMA. February 2017. 

https://www.fema.gov/media-library/assets/documents/129203. 

 Pre-Disaster Recovery Planning Guide for State Governments. FEMA. November 2016. 

https://www.fema.gov/media-library-data/1485202780009-

db5c48b2774665e357100cc69a14da68/PreDisasterRecoveryPlanningGuideforStateGovernments-1.pdf. 

 Pre-Disaster Recovery Planning Guide for Tribal Governments. FEMA. September 2019. 

https://www.fema.gov/media-library-data/1569336890061-

561aa3c96a097f4789fa6e766735592d/PreDisasterRecoveryPlanningGuideforTribalGovernment.pdf. 

 Preserving Our Freedom: Ending Institutionalization of People with Disabilities During and After 

Disasters. National Council on Disability, May 24, 2019. 

https://ncd.gov/publications/2019/preserving-our-freedom. 

Other References

These are additional helpful resources that have not been mentioned or referenced elsewhere in this 

guide. 

 FEMA Disaster Housing Resource Center. Provides resource information, such as links to housing 

strategic documents, temporary housing resources and permanent housing resources. 

https://www.fema.gov/housing-resources. 

 FEMA PREPTalks Website. PrepTalks are given by subject-matter experts and thought leaders to 

spread new ideas, spark conversation and promote innovative leadership for the issues 

confronting emergency managers over the next 20 years. https://www.fema.gov/preptalks. 

 HUD Counseling Disaster Recovery Toolkit. Outlines the key actions that housing counseling 

agencies should take post disaster to ensure they can resume operations quickly and expand 

services as necessary to assist their clients in recovery. 

https://www.hudexchange.info/programs/housing-counseling/housing-counseling-disasterrecovery-toolkit/operating/. 
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 HUD Disaster Resources Website. Provides information on HUD’s disaster resources. 

https://www.hud.gov/info/disasterresources. 

 SBA Disaster Assistance Website. Provides information to businesses and homeowners on the 

various SBA disaster assistance programs. https://www.sba.gov/funding-programs/disasterassistance. 
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Appendix C: Disaster Housing 

Planning Checklist 

The following checklist is a tool for emergency planners to help develop their disaster housing plan. 

The checklist follows the suggested EOP format defined in CPG 101.

Step 1: Form the Collaborative Planning Team

 Create a work plan for the effort.

 Identify governmental, private sector and NGO entities with responsibilities or equities for 

developing housing solutions.

 Identify members of the core and collaborative planning teams.

 Conduct a kickoff meeting to establish the timeline, milestones and expectations.

 Determine whether these same members will participate in a housing task force to execute the 

plan.

Step 2: Understand the Housing Situation

Conduct Housing-Related Research and Analysis

 Understand the demographics and infrastructure in the jurisdiction, including determining the 

number of people with access and functional needs.

 Review results pertaining to housing from national, regional or statewide studies.

 Create a scenario to drive the planning effort (e.g., the maximum number of people to shelter, 

number of homes destroyed).

 Research existing roles and responsibilities by distributing surveys or fact sheets to collaborative 

planning team members.

 Identify the lead agency(ies) for disaster housing solutions.

 Identify mutual aid partners.
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 Consider issuing a community survey to better understand local demographics and housing

needs.

Planning Assumptions and Considerations 

 Based on the scenario, develop assumptions (e.g., will enough resources be available, 

percentage of displaced survivors that will request assistance) to frame the COAs.

 Review the planning considerations in this document, as well as any additional assumptions 

(e.g., available resources, usable locations, permitting and utility connection processes) and 

complete or refine them based on the jurisdiction’s needs.

REGULATIONS AND AUTHORITIES: KEY QUESTIONS TO CONSIDER

 What entities have regulatory or legislative responsibilities for disaster housing within the 

jurisdiction?

 What is the legal basis for mutual aid agreements to provide housing assistance?

 What health and safety protocols can impact return to, and occupancy of, homes and buildings?

 What codes and ordinances (e.g., placement of temporary housing units, distance from 

roadways, multiple temporary housing units on property, zoning, local flood damage prevention 

ordinances) may need to be waived or suspended to support temporary housing solutions?

POPULATIONS: KEY QUESTIONS TO CONSIDER

 What are the most densely populated areas in the jurisdiction?

 Does the jurisdiction’s population fluctuate throughout the year (e.g., high tourist season)?

 What is the demographic breakdown of the jurisdiction? How current are the statistics?

 Which agencies within the jurisdiction provide services to people with access and functional 

needs?

 What is the homeless population in the jurisdiction? Are there plans for sheltering or housing 

them following a disaster?

 What portion of the community receives pre-disaster housing assistance? 

 What are the estimated numbers of the community’s homeowners and renters?

 How many hospitals or medical centers are in the jurisdiction? Do they have evacuation plans in 

place?
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 Does the disaster housing planning team have copies of evacuation plans for jails/prisons, 

healthcare facilities and institutions?

NATURAL ENVIRONMENT: KEY QUESTIONS TO CONSIDER

 Has the jurisdiction conducted GIS modeling to determine topography and assess impacts from 

hazards? 

 What unique environmental risks in the jurisdiction (e.g., coastal areas, floodplains, seismic 

zones) could result in large numbers of displaced persons or challenges with rebuilding?

 Are any cultural or historical sites in the jurisdiction governed by specific regulations?

 Would any zoning regulations hinder the ability to rebuild in certain locations due to 

environmental considerations?

 Does the jurisdiction have high-risk flooding areas or special flood hazard areas?

 Are threatened or endangered species or other protected wildlife or plants present in any of the 

proposed locations where land-clearing activities may be required?

INFRASTRUCTURE: KEY QUESTIONS TO CONSIDER 

 What critical infrastructure (e.g., water/wastewater plants, healthcare systems, schools), if 

damaged, could impact the ability of individuals to return to their homes?

 What are the specific building codes to which structures need to be repaired or rebuilt?

 Do planners have access to a list of key public and private infrastructure partners (e.g., power 

providers, utility companies) on which the jurisdiction relies?

 Have any new developments or construction occurred in the jurisdiction or surrounding 

jurisdiction(s) which impact housing risks? 

HOUSING AVAILABILITY: KEY QUESTIONS TO CONSIDER

 What is the composition of the current housing stock (e.g., rentals, single-family, multifamily, 

short-term occupancy)?

 What percentage of the housing inventory is accessible to people with access and functional 

needs?

 What percentage of the housing inventory allows household pets?

 What is the percentage of homeowners and renters in the area?

 What percentage of the housing inventory is non-primary residences?
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 Does the jurisdiction have temporary housing resources (e.g., temporary housing units, trailers)?

 Are agreements in place for temporary housing solutions (e.g., with neighboring jurisdictions, 

colleges, hotels)?

 Can building codes or zoning ordinances be waived to create additional temporary housing 

solutions? If so, what is the process for that?

 Does the jurisdiction have an inventory of potential areas that could support group sites?

 Does the jurisdiction have an inventory of available commercial parks and pads for lease for 

manufactured housing units and recreational vehicles?

 Has the planning team considered the housing needs of recovery workers and volunteers?

CONTRACTING: KEY QUESTIONS TO CONSIDER

 What, if any, pre-positioned contracts exist in the jurisdiction for housing-related services?

 If any exist, have they recently been reviewed for accuracy and currency?

 If none exist, are there resource gaps where a contract should be considered?

 What is the contract process that would be used to address housing needs? 

 Does the planning team understand the requirements for Federal acquisitions?

HOST STATE AGREEMENTS: KEY QUESTIONS TO CONSIDER

 Are any host state agreements already in place at the state or territorial level?

 If not, should host state agreements be established?

 If an agreement exists, does it specifically address relocation of displaced individuals?

 Does the agreement specify procedures or limits to sharing information on displaced individuals 

(e.g., personally identifiable information)?

WRAPAROUND SERVICES: KEY QUESTIONS TO CONSIDER 

 Have the wraparound services and the agencies or organizations responsible for providing them 

been identified within the jurisdiction?

 Are wraparound service providers included in disaster housing planning efforts? 

 What community organizations and partners can provide support and resources?
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HOUSING INSPECTIONS: KEY QUESTIONS TO CONSIDER

 What entity is responsible for occupation and safety inspections?

 What are the available housing inspection resources within the jurisdiction?

 Does the state recognize certifications and licenses from other states?

 Are mutual aid agreements in place for additional housing inspectors?

 Can the jurisdiction streamline, simplify and expedite building permit applications and 

inspections?

 What is the current wait time to receive a certification of occupancy? Can this be expedited post 

incident?

PUBLIC INFORMATION, OUTREACH AND PREPAREDNESS: KEY QUESTIONS TO CONSIDER

 What accessible communications channels have been identified to relay disaster housing 

information?

 Has disaster-housing-related messaging already been developed within the jurisdiction?

 Who is responsible for releasing information to the public within the jurisdiction?

 What community organizations can help amplify housing-related messaging?

 What is the protocol to synchronize messages between local, state and Federal entities?

 Does the jurisdiction have a website or social media presence to convey disaster-related housing 

information?

 If not, will one be established? Who will establish, maintain and update it?

Step 3: Determine Housing Goals and Objectives

 Review the goals from the National Disaster Housing Strategy.

 Verify with senior officials (elected or appointed) any additional housing goals that are unique to 

the jurisdiction.

 Conduct a working session with the collaborative planning team to map out a framework for each 

goal (goal; objective; actions).

 Develop COAs for each objective.
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 Determine the measure(s) of success for each objective.

 Discuss the jurisdiction’s capability to achieve the objectives, including discussing strengths and 

weaknesses of staffing, funding and resources.

 Identify housing capability gaps and solutions for closing them.

Step 4: Housing Plan Development

Purpose, Scope, Situation Overview and Planning Assumptions

PURPOSE

 Indicate the reason a disaster housing plan is necessary in context of the jurisdiction or state.

 State what the plan is intended to accomplish.

SCOPE

 Clearly indicate when sheltering and housing phases are anticipated to transition from sheltering 

to temporary housing to permanent housing.

SITUATION OVERVIEW

 Describe the unique characteristics of the jurisdiction or state (e.g., population, demographics, 

geography, socioeconomic factors, infrastructure) and what impact they have on its ability to 

provide disaster housing.

 Explain the roles and responsibilities of key organizations (from research in Step 2).

PLANNING ASSUMPTIONS

 Include the list of planning assumptions specific to sheltering, temporary housing or permanent 

housing

Concept of Operations

SHELTERING

 Identify and describe the agencies and their actions to identify, open and staff emergency 

shelters, including the temporary use of reception centers while waiting for shelters to officially 

open.
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 Describe mutual aid agreements that are in place with other jurisdictions for receiving sheltering 

assistance, including providing shelters when it is not practical to do so locally.

 Describe the conditions (e.g., snow emergencies, chemical incidents, pandemics) under which 

in-place and noncongregate sheltering (e.g. trailer, hotel) will be used. Identify which agencies 

will support these operations and how they will determine when to implement these operations.

 Describe how the jurisdiction will ensure the physical and programmatic accessibility of shelter 

facilities, effective communication using multiple methods, full access to emergency services 

and reasonable modification of programs or policies where needed.

 Describe how shelters will coordinate their operations with on-site and off-site support agencies.

 Identify and describe the agencies and their actions to inform the public about sheltering-inplace (e.g., implementation, updates and termination).

 Describe the plans, methods and agencies/organizations responsible for distributing emergency 

relief items (e.g., hygiene kits, cleanup items, infant care supplies).

 Identify and describe the agencies/organizations and their methods to provide feeding services, 

both within the shelter facilities and at other identified feeding sites or mobile feeding 

operations.

 Identify and describe the agencies and their actions to provide short-term lodging and other 

mass care needs (e.g., beds/cots, food/water, crisis counseling, phones, clergy support, 

household pet/service animal support).

 Identify and describe the agencies and their methods to provide care and support for 

institutionalized populations, children and individuals with access and functional needs, 

including their caregivers.

 Identify and describe the actions to ensure that ADA Accessibility Guidelines govern shelter site 

selection and operation.

 Describe the method to provide necessary developmentally appropriate supplies (e.g., diapers, 

formula, age-appropriate foods), staff, medicines, durable medical equipment and supplies 

needed during an emergency for children and those with access and functional needs.

 Describe the mechanisms or processes for handling and providing services for unaccompanied 

minors in shelters.

 Describe the method to provide guidance on the admission and treatment of service animals.

 Identify and describe the agencies and their actions to identify, screen and handle evacuees 

exposed to hazards from a disaster (e.g., infectious waste, polluted floodwaters, chemical 

hazards) and to keep the shelter free of contamination.
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 Describe how shelters inform evacuees about incident status, including actions that shelter 

residents may need to take when they return home.

 Identify and describe the agencies and their actions to notify and inform the public about the 

status of injured or missing relatives.

 Identify and describe the agencies and their actions to care for household pets and service 

animals that are brought to shelters.

 Describe the method for household pet registration, including identification of a current rabies 

vaccination for all animals.

 Describe the method to reunite rescued animals with their owners.

 Identify and describe the actions to address the long-term care, permanent relocation or 

disposition of unclaimed pets.

TEMPORARY HOUSING

 Identify and describe the agencies/organizations who have the lead for temporary housing.

 Identify the wraparound services that need to be in place to enable temporary housing solutions 

(varies by jurisdiction).

 Identify utility connection processes and the responsible party for each step. 

 Identify potential waivers or payment plans for utility connections for applicants with past due 

accounts.

 Identify and coordinate with private sector utility companies to expedite inspections and 

connections.

 List the inventory of potential temporary housing solutions. Include those within the jurisdiction 

and within neighboring jurisdictions or states (within a reasonable commuting time).

 Include a list of programs that can provide rental assistance.

 Address a surge plan for building inspectors/permit officials. Explore mechanisms to increase 

staffing/capability for local code enforcements and inspections. 

 Determine the need for any post-disaster expedited approval processes for waiving ordinances to 

accommodate temporary housing.

 Develop a contract template to use should emergency repairs be needed to public facilities 

necessary for housing.
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 Determine whether the state currently inventories rental properties. If yes, ensure that buildings 

can accommodate people with access and functional needs in accordance with the Architectural 

Barriers Act/ADA.

 Identify the number of houses and housing units in the special flood hazard area.

 Determine if the state has agreements with other states to host evacuees on an interim basis 

and provide health, social services, education and child‐care access if need exceeds capacity.

 Create an inventory of commercial recreational vehicle and manufactured housing pads and 

parks, including availability status.

 Describe the plan to compile damage assessments.

 Identify what types of temporary housing units can be used within the jurisdiction or state and 

communicate that to FEMA.

 Determine if a communications plan is in place to distribute information on housing assistance.

PERMANENT HOUSING

 Identify permanent housing vacancy rates and fair market rates for a range of housing sizes 

across the jurisdiction.

 Identify sites where temporary housing can be converted to permanent housing.

 Consider ordinances that:

 Allow temporary housing units such as manufactured housing units on private property.

 Allow or temporarily remove restrictions on auxiliary housing units in single-family 

neighborhoods.

 Specify how environmental and historic resources will be protected when permanent housing 

is placed on private and/or public property.

 Permit electrical connection in the absence of a building permit so that repair work can 

begin; the electrical connection permit might indicate that all work must be brought into 

compliance with existing codes.

 Establish a limited building permit that will allow limited repairs to prevent further damage to a 

structure.

 Identify surge resources that are available following a disaster to assist with reviewing building 

permits and design/repair submittals to ensure compliance with the latest building codes, 

standards and ordinances.
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 Plan to make accommodations for individuals with access and functional needs.

Direction, Control and Coordination

 Describe plan leadership and oversight.

 If a Housing Task Force will execute the plan, describe the composition, roles and responsibilities 

and triggers for activating and deactivating it.

 Provide a clear unity of command when involving multiple organizations and multiple incident 

scenes.

Communications

OPERATIONAL COMMUNICATION

 Identify a mechanism to ensure timely, accurate and consistent disaster housing messaging 

across disciplines and jurisdictions.

 Identify support organizations, capabilities and teams to establish effective and continuous 

interoperable communication, including cellular communications.

PUBLIC INFORMATION AND WARNING

 Provide a coordinated joint approach to deliver timely, accurate, accessible and consistent 

messaging in multiple formats on disaster housing.

 Address messaging and distribution mechanisms to account for the demographics and resources 

of the jurisdiction.

 Address the use of social media to distribute public information rapidly to prevent inaccurate or 

misleading information.

Administration, Finance and Logistics

 Identify administrative controls to provide resource and expenditure accountability.

Preparedness, Mitigation and Recovery

 Incorporate short-term, interim and long-term recovery strategies/objectives.

 Address how to implement support plans for survivors and families of the deceased.

 Include strategies to implement the RSFs after the incident.
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 Account for those with access and functional needs in recovery planning efforts.

 Outline remediation procedures for damaged or hazardous sites.

Implementation, Maintenance and Training

 Identify the agency responsible for updating and maintaining the plan.

 Identify applicable available disaster housing training and exercises.

 Identify/summarize how and to whom the plan is distributed; indicate whether it is shared with 

the public.

 Include a schedule to review and revise the plan.

 Identify the process used to review and revise the plan.

 Include all partners involved in the annex development in the plan’s maintenance and training 

schedule.

 Outline the responsibility of partners to review and provide changes to the plan; identify the 

process to provide feedback.

Authorities and References

 Include a list of the relevant authorities.

 Include links to applicable references and guidance.

Step 5: Housing Plan Preparation, Review and 

Approval

 Release the document for at least one formal comment period.

 Conduct adjudication session(s) with the housing collaborative planning team.

 Ensure concurrence of agencies/organizations on the collaborative planning team.

 Obtain approval of senior leaders of agencies with primary responsibilities for housing.
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Step 6: Housing Plan Implementation and 

Maintenance

 Execute a rollout strategy communicating the release and availability of the plan to key 

stakeholders.

 Conduct training on the housing plan.

 Identify opportunities to exercise the housing plan.

 Identify and address training gaps identified through real-world events, exercises and routine 

plan reviews.

 Update the plan based on lessons learned.

 Conduct periodic reviews as identified within the housing plan.