Damage Assessment Operations 

Manual 

A Guide to Assessing Damage and Impact

April 5, 2016
FEMA’s mission is to support our citizens

and first responders to ensure that as a nation we work together to 

build, sustain, and improve our capability to prepare for, protect 

against, respond to, recover from,

and mitigate all hazards.
The Department of Homeland Security Federal Emergency Management Agency (FEMA) has 

developed four levels of operational guidance for use by emergency management teams and 

other personnel involved in conducting or supporting disaster operations. This manual 

corresponds with Level 2, defined and formatted in bold italics.

Level 1 - Overview: A brief concept summary of a disaster-related function, team, or 

capability

Level 2 - Standard Operating Procedures (SOP) or Operations Manual: 

A complete reference manual, detailing the procedures for performing a single 

function (Standard Operating Procedure), or a number of interdependent 

functions (Ops Manual)

Level 3 - Field Operations Guide (FOG): A durable pocket or desk guide, containing 

essential fundamental information needed to perform specific assignments or 

functions 

Level 4 - Job Aid: A checklist or other aid for job performance or job training 

This manual is consistent with and supports the current plans and procedures of the National 

Response Framework (NRF) for implementation of the Robert T. Stafford Disaster Relief and 

Emergency Assistance Act, as amended, 42 U.S.C. § 5121 et seq. and its implementing 

regulations in Title 44, Chapter I of the Code of Federal Regulations (CFR) Emergency 

Management and Assistance.
Record of Changes

Change No. Copy No. Date Entered Posted By

1 1 04/05/2016 Tamara Theiler
Contents

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

Background ..................................................................................................................................................... 1

Intended Audience........................................................................................................................................... 1

Authorities....................................................................................................................................................... 2

US National Grid............................................................................................................................................. 2

Recovery Program Overview .......................................................................................................................... 3

FEMA PA Program.............................................................................................................................. 3

FEMA IA Programs.............................................................................................................................. 3

CONCEPT OF OPERATIONS.................................................................................................................................. 4

Pre-Incident Readiness.................................................................................................................................... 4

Local or County Damage Assessment............................................................................................................. 4

State or Tribal Government Verification......................................................................................................... 5

Joint Preliminary Damage Assessment ........................................................................................................... 6

Request for Federal Assistance ....................................................................................................................... 7

ROLES AND RESPONSIBILITIES.......................................................................................................................... 9

Local or County Roles and Responsibilities.................................................................................................... 9

State or Tribal Government Roles and Responsibilities................................................................................10

State or Tribal Government Public Assessment Team........................................................................11

State or Tribal Government Individual Assessment Team..................................................................12

FEMA Regional Office Roles and Responsibilities......................................................................................13

FEMA Damage Assessment Team Roles and Responsibilities.....................................................................14

FEMA Public Assistance Damage Assessment Team.........................................................................14

FEMA Individual Assistance Damage Assessment Team...................................................................15

FEMA Support Personnel and Technical Experts..............................................................................16

Small Business Administration Damage Assessment Team................................................................17

Other...................................................................................................................................................17

EVALUATING DAMAGE AND IMPACT FOR FEMA PUBLIC ASSISTANCE PROGRAM ......................19

Estimated Cost of Assistance ........................................................................................................................19

Identifying Potential Applicants and Damaged Facilities..................................................................20

Documenting Damage, Work, and Cost .............................................................................................22

Insurance Coverage in Force.........................................................................................................................39

Programs of Other Federal Agencies (OFA’s)..............................................................................................40

Capturing Localized Impact ..........................................................................................................................42

Hazard Mitigation .........................................................................................................................................43

Recent Multiple Disasters .............................................................................................................................43
EVALUATING DAMAGE AND IMPACT FOR FEMA INDIVIDUAL ASSISTANCE PROGRAMS...........44

Evaluating and Documenting Damage to Homes..........................................................................................44

Cause of Damage ...............................................................................................................................44

Jurisdictions Impacted and Concentration of Damage ......................................................................45

Types of Homes ..................................................................................................................................45

Homeownership Rates of Impacted Homes........................................................................................46

Percentage of Impacted Households with Insurance Coverage Appropriate to the Peril..................47

Number of Homes Impacted and Degree of Damage .........................................................................49

Red Cross Damage or Disaster Assessment (DA) Information ..........................................................59

Information Collected to Document Impact..................................................................................................60

Concentration of Damage ..................................................................................................................60

Trauma ...............................................................................................................................................61

Impact to populations with greater need............................................................................................62

Local, State or Tribal Government.....................................................................................................63

Uninsured/Underinsured Home and Personal Property Losses.........................................................67

Other Relevant Impact Data...............................................................................................................67

DAMAGE ASSESSMENT METHODS ..................................................................................................................68

Factors That Influence Assessment Methods Used.......................................................................................68

Typical Damage and Impact Assessment Methods.......................................................................................69

INTEGRATION OF GEOSPATIAL ANALYSIS AND TECHNOLOGY ..........................................................74

INTEGRATION OF MOBILE TECHNOLOGY...................................................................................................79

APPENDIX A: ROLES AND RESPONSIBILITIES.............................................................................................80

APPENDIX B: PA DAMAGE ASSESSMENT CATEGORY OF WORK CHECKLISTS................................97

APPENDIX C: PA PNP PROGRAM REQUIREMENTS...................................................................................110

APPENDIX D: PA SITE SHEET EXAMPLE......................................................................................................112

APPENDIX E: IA DAMAGE ASSESSMENT MATRIX ....................................................................................113

APPENDIX F: IA INSURANCE MATRIX ..........................................................................................................115

APPENDIX G: IA GIS PRODUCT EXAMPLES ................................................................................................117

APPENDIX H: IA STREET SHEET EXAMPLE................................................................................................121
Introduction

FEMA Damage Assessment Operations Manual 1

Introduction

The FEMA Damage Assessment Operations Manual is intended to expedite decision-making and 

the delivery of assistance by defining national standards for assessing damage and clearly 

outlining the information considered when evaluating requests for a Major Disaster Declaration.

To support this overall objective, this manual aims to achieve three major goals:

1. Promote accuracy by clearly defining the information and documentation that should be 

collected to assess damage and support requests for Stafford Act assistance;

2. Promote consistency by standardizing the criteria used to assess damage to residential homes 

and offering clear guidance on assessing damage to infrastructure;

3. Promote efficiency by empowering emergency management at all levels with the structure and 

information needed to streamline damage assessment efforts.

Following rare incidents of unusual severity, rapid assessment methods not outlined in this 

document may be used to determine the need for Stafford Act assistance. When this is the case, 

assessment methods described in this document will still be used after the declaration to 

determine unmet needs and organize operational resources. 

Background

Previous damage assessment manuals, standard operating procedures, tools, and job aids 

developed by FEMA have focused on the role of agency personnel in validating damage and 

impact information. While these documents have served as comprehensive training and reference 

materials for Federal members of Joint Preliminary Damage Assessments (PDA) teams, they did 

not address the important role played by local, State, and Tribal Governments in assessing 

damage and impact.

This manual has been written with an understanding that the goals of accuracy, consistency and 

efficiency cannot be accomplished unless the entire emergency management team is engaged and 

empowered. By outlining the specific damage and impact information required to support a 

request for Federal assistance and explaining how that information is evaluated, this manual will 

empower emergency managers at all levels. Additionally, this manual is intended to serve as a 

foundation for developing consistent job-aids and training. This multi-faceted team-based

approach is intended to support the rapid development of information needed by State and Tribal 

leadership to request a Major Disaster Declaration from the President.

Intended Audience

This manual is intended for emergency management practitioners as well as private sector and 

non-governmental stakeholders who have a role in assessing damage and impacts and/or 

requesting disaster assistance.
Introduction

FEMA Damage Assessment Operations Manual 2

Authorities

The damage assessments, Presidential disaster declaration requests, and evaluation factors for 

Major Disaster and Emergency Declarations are based on a hierarchy of statute, regulations, and 

policies. Specific authorities related to the damage assessment process include:

 Robert T. Stafford Disaster Relief and Emergency Assistance Act. Public Law 93-288, as 

amended, 42 U.S.C. §§ 5121 et seq.

 Public Assistance Program and Policy Guide, FP 104-009-2 (Jan. 2016)

 Title 44 of the Code of Federal Regulations (CFR), Emergency Management and Assistance

 Homeland Security Act (Public Law 107-296, as amended, 6 U.S.C. §§ 101 et seq.)

 Homeland Security Presidential Directive 5 (HSPD-5), Directive on Management of Domestic 

Incidents, February 28, 2003

 National Response Framework, May 2013

 National Incident Management System, December 2008

 FEMA Publication 1, November 2010

 Incident Management and Support Keystone, January 2011

 Presidential Policy Directive 8 (PPD-8), National Preparedness, March 30, 2011

 National Disaster Recovery Framework, September 2011

 National Mitigation Framework, May 2013

 Use of the United States National Grid (USNG), FEMA Directive 092-5

US National Grid

The US National Grid (USNG) is a nationally recognized grid reference system that quickly 

enables users to identify and communicate geographic areas or specific locations of interest. 

USNG creates a nationally consistent “language of location” by providing a system that is 

seamless across jurisdictional boundaries. It may be the only unambiguous way to describe 

locations when the end-user is operating either in an area away from the established road 

network, or in an area impacted by a natural disaster where road signs have been destroyed.

USNG is largely intended for positional reporting and ground operations, but can also be used 

for aggregating data to display its distribution over a given geographic area. Since it is a uniform 

and continuous grid, it is well-suited for summarizing point data over a large area for display on 

maps or mapping systems.

FEMA currently uses USNG in many of its programs. It is used to coordinate and track ground 

teams for Urban Search & Rescue (USR), PDA, and Disaster Survivor Assistance Teams. It is 

also used in mapping products to display concentrations of observed damage and applicants for 

IA.
Introduction

FEMA Damage Assessment Operations Manual 3

Recovery Program Overview

A Stafford Act declaration triggers FEMA’s broad statutory authorities to provide assistance. 

Depending on the programs authorized, this may include assistance to individuals and 

households, assistance to government and 

eligible private nonprofits, and assistance

for mitigation activities to protect against

future hazards.

Familiarity with the FEMA Recovery

Programs Individual Assistance (IA) and

Public Assistance (PA) can be helpful in

understanding the reasoning behind the 

information that is used to evaluate requests for Federal disaster assistance. The programmatic 

overview in this section is intended to help develop this understanding. In the next two sections, 

we will discuss FEMA's PA and IA programs in more detail.

FEMA PA Program

The FEMA PA program provides assistance to local, State and Tribal Governments, and certain 

types of private nonprofit (PNP) organizations to remove debris, provide emergency protective 

measures, and restore equipment, buildings, and other infrastructure damaged by the disaster.

FEMA IA Programs

FEMA IA programs provide assistance to support the recovery of disaster survivors who have 

uninsured or underinsured necessary expenses and serious needs. This may include assistance for 

temporary housing and housing repairs, critical disaster related expenses, and the replacement of 

essential personal property. Through its IA programs, FEMA may also provide funding to the 

State or Tribal Government to support programs that address crisis counseling (CCP), disaster 

case management (DCM), disaster legal services (DLS), and disaster unemployment assistance

(DUA).

Familiarity with the FEMA 

Recovery programs can be helpful in 

understanding the kind of 

information that is used to evaluate 

requests for a Major Disaster 

Declaration.
Concept of Operations

FEMA Damage Assessment Operations Manual 4

Concept of Operations

Disasters and their effects vary by event and by community. While it is not possible to create a 

one-size-fits-all approach to damage assessment, this Concept of Operations (CONOPS) is 

intended to promote effective time-phased coordination between emergency management

stakeholders at all levels.

It should be noted that while the timelines for individual phases described in this section are not 

defined, and may at times run concurrently, 44 CFR § 206.36 requires that a request for a 

Stafford Act declaration must be submitted within thirty days of the incident in order to be 

considered. The 30-day period may be extended by the Associate Administrator for the Office of 

Response and Recovery, provided that a written request, to include a justification, for an 

extension is submitted during this 30-day period.

Pre-Incident Readiness

As with all emergency management planning 

and readiness activities, being prepared to 

conduct effective, and efficient damage 

assessments begins by developing an 

understanding of risks, requirements, and 

current capacities. Information gathering and 

analysis through Geographic Information 

System (GIS) and other technologies can be 

used to identify high-risk areas and develop event triggers for planning and operational decisionmaking.

Emergency managers often maximize time and resources available to conduct damage 

assessments by forming damage assessment teams made up of non-emergency management 

office staff or personnel who do not have responsibilities immediately following a disaster. Once 

identified, damage assessment team members should be trained to collect damage information 

according to standards defined in later sections of this document in order to expedite analysis and 

decision-making.

Once personnel are selected and processes are established, practitioners at all levels can employ 

the planning, training, and exercise cycle to build capacity and refine operations.

Local or County Damage Assessment 

Not every incident will require detailed information beyond what is available through general 

monitoring. As an example, minimal damage that commonly results from rainstorms or small 

earthquakes may not need any further assessment, because supplemental assistance likely will 

not be necessary. If, however, it is determined that more in-depth information is needed,

emergency managers in impacted jurisdictions should coordinate with county, State, or Tribal

As a best practice, some 

jurisdictions develop pre-disaster 

infrastructure inventories or use 

planning and zoning maps to 

expedite analysis following a 

disaster.
Concept of Operations 

FEMA Damage Assessment Operations Manual 5

emergency management, as appropriate, to discuss the type of assessment that is needed, 

timelines, and coordinate damage reporting. 

Field assessments conducted by local or county damage assessment teams should be focused on 

capturing damage information discussed in this document. State or Tribal emergency 

management should work with local emergency managers to ensure the IA assessment criteria 

and/or that the information and documentation used during PA assessments is understood. Some 

State or Tribal Governments are able to offer further support to local or county assessment 

efforts through the deployment of programmatic and/or technical subject matter experts (SME) 

that can answer questions and improve coordination.

Once local or county assessment teams have completed their assessments, the information 

collected should be provided to the State or Tribal Government. This information can then be 

aggregated with similar information provided from other affected jurisdictions, State or Tribal

agencies, utility cooperatives, and non-governmental organizations (NGO). 

State or Tribal Government Verification

State or Tribal emergency management should, in some manner, verify the information 

submitted by local or county emergency management is complete and consistent with 

programmatic assessment criteria prior to 

requesting a Joint Federal, State or Tribal

Government Preliminary Damage 

Assessment (hereinafter referred to as 

Joint PDA). This verification process can 

have a dramatic impact on accuracy and 

efficiency, and is essential to ensure that 

impacted jurisdictions are organized and 

prepared to participate in a Joint PDA. 

Ideally information submitted by local and 

county emergency managers can be verified remotely; however this phase often requires followup and/or in-person site visits. Many States and Tribal Governments use staff assigned to district 

offices to support verification efforts. 

Technical assistance may be requested from FEMA, prior to a request for a Joint PDA, to 

support State or Tribal Government efforts to evaluate the information submitted by local 

jurisdictions and analyze the need for a Joint PDA. This technical assistance support may include 

GIS Analysts, Program Specialists, or other SMEs necessary to advise State or Tribal emergency 

management and answer programmatic questions.

Once information has been verified and impacted jurisdictions are prepared, State or Tribal 

emergency managers should coordinate with their leadership for action, and notify the FEMA

Regional office for awareness.

It is not anticipated that all 

occurrences will result in a 

requirement for assistance; therefore 

the State or Tribal Government will 

be expected to verify their initial 

information, in some manner, before 

requesting a Joint PDA.
Concept of Operations

FEMA Damage Assessment Operations Manual 6

Joint Preliminary Damage Assessment

If the incident is of a severity and magnitude that resources needed to recover are expected to 

exceed local and State or Tribal Government capability, the Director of the State or Tribal 

emergency management agency may request a Joint PDA from the appropriate FEMA Regional 

Administrator (RA) to validate damage and evaluate impact. This request should include any

counties or Tribal lands to be assessed, and will begin discussion on the general timeline for the 

Joint PDA.

Once a request for a Joint PDA is made, a 

summary of the information verified by the 

State or Tribal emergency management

should be provided to the FEMA Regional 

Recovery Division. FEMA programmatic 

representatives should coordinate with State 

or Tribal emergency management to discuss 

the information submitted, determine team requirements, establish a PDA briefing time and 

location and develop an overall PDA coordination plan.

Once a Joint PDA start date is agreed upon, State or Tribal emergency management should 

coordinate with counties or Tribal jurisdictions included in the Joint PDA request to schedule 

field assessments. This will give local or county emergency managers the time needed to 

coordinate with impacted jurisdictions so that personnel necessary to answer questions can be 

made available and efficient routes for field assessments can be planned.

The FEMA Regional office will identify FEMA Joint PDA leadership, deploy staff, and

coordinate with Other Federal Agencies (OFAs) (e.g. U.S. Small Business Administration) 

needed to successfully complete the PDA. State or Tribal emergency management should

identify Joint PDA leadership as well as staff that can serve on Joint PDA field teams. In large or 

catastrophic disasters or when OFAs may be deployed for a follow on NDRF Recovery 

Coordination assessment, the RA or FCO may request that the regional Federal Disaster 

Recovery Coordinator (FDRC) be part of the coordination and information sharing process.

Damage assessment field teams should be composed of at least one representative of the Federal 

Government and one representative of the State or Tribal Government. A local government 

representative, familiar with the extent and location of damage in his/her community, should also 

be included, if possible. Other State or Tribal agencies, OFAs and NGOs may also be asked to 

participate, as needed.

Joint PDA field teams are intended to validate – not find – damage and impact information.

State or Tribal emergency management is responsible for coordinating with local or county 

emergency management to ensure that they are prepared to discuss damage and guide field teams 

to residences, businesses, and/or damaged infrastructure, to conduct site visits. Generally, Joint 

PDA teams ask to start with the most heavily damaged homes (IA) and infrastructure (PA), and 

Joint FEMA State or Tribal 

Government Preliminary Damage 

Assessments are intended to 

validate information - not to find 

damage.
Concept of Operations

FEMA Damage Assessment Operations Manual 7

work their way down; taking into account geography and travel time. When Joint PDAs are 

required to validate damage for the PA program, local or county emergency managers will need 

to schedule time with potential applicants to discuss damage, review supporting documentation, 

and conduct site visits.

FEMA and State or Tribal Government staff should coordinate regularly during the Joint PDA to 

discuss findings and reconcile any differences. While disagreements may exist, it is important 

that the rationale for decision making be transparent. At the close of the Joint PDA, FEMA will 

provide State or Tribal emergency management with a final summary of its findings.

Request for Federal Assistance

Once the Joint PDA has been completed, the State or Tribal emergency managers generally will 

review the validated information and make a recommendation to the Governor or Chief 

Executive on the need to request a Stafford Act declaration. Stafford Act declaration requests 

may be developed for one or both of the FEMA Recovery programs (PA and IA), as well as 

Hazard Mitigation.

All requests to the President for Stafford Act declarations must be made by the Governor of the 

affected state1 or the Chief Executive of a federally recognized Tribal Government. The 

Governor or Tribal Chief Executive should submit the request to the President through the 

appropriate FEMA RA to ensure prompt acknowledgement and processing.

If a State or Tribal Government decides that it does not want to request Stafford Act assistance 

from the President, information developed during the Joint PDA may be used to request 

assistance from OFA’s (e.g. U.S. Small Business Administration), or to determine the need for 

State or Tribal Government recovery programs.

 

1 A State also includes the District of Columbia, Puerto Rico, the Virgin Islands, Guam, American Samoa, and the 

Commonwealth of the Northern Mariana Islands. The Marshall Islands and the Federated States of Micronesia are 

also eligible to request a declaration and receive assistance. Federally recognized Tribal Governments are also 

eligible.
Concept of Operations

FEMA Damage Assessment Operations Manual 8
Roles and Responsibilities 

FEMA Damage Assessment Operations Manual 9

Roles and Responsibilities

This section provides information on roles, relationships, and responsibilities damage assessment 

team members have in the damage assessment process. Roles and responsibility descriptions in 

this section are intended to give local, county, State or Tribal Government, and Federal 

practitioners the flexibility necessary to tailor the damage assessment process to resources, 

threats, populations, and stakeholders while maintaining standardization across the nation. 

While it is understood that not every jurisdiction will have the current capabilities or personnel 

necessary to perform all of the tasks outlined in this section, practitioners can use this 

information to develop a common understanding of damage assessment roles at each level. This 

uniformity will allow the development of common skills and understanding that underpin mutual 

aid networks and national uniformity. 

Many local jurisdictions have limited emergency management staff. As a best practice some 

local jurisdictions have trained staff from non-emergency management offices to fill important 

positions. Examples include: facilities personnel from public schools, local housing inspectors or 

code enforcers, local community planning and economic development officials, and offices 

responsible for maintaining publicly owned buildings or infrastructure. A checklist to support 

staff filling various roles can be found in the Appendix A of this manual. 

Note: all of the organizational charts included below represent best practices and not staffing 

requirements. Position titles used in this document are intended to generically describe roles, and 

may not reflect official position titles. 

Local or County Roles and Responsibilities†

Expedient accurate damage assessments are built on a foundation of information gathered at the 

local level. A common mistake made in the damage assessment process is the rushing of local 

assessments - an error that can prolong verification and validation phases and slow the delivery 

assistance.

 

† The example organizational chart above is a scalable best practice. Larger disasters may require additional staff 

and additional positions. Smaller jurisdictions may have one or two persons serving all the functions.
Roles and Responsibilities 

FEMA Damage Assessment Operations Manual 10

The following section has been developed based on some of the best practices already 

implemented at the local and county level. Jurisdictions may have different position names; 

however these roles and responsibilities should be taken into account as local or county damage 

assessment teams are defined.

Local or County Damage Assessment Coordinator 

The Local or County Damage Assessment Coordinator is among the most critical positions in the 

damage assessment process. Generally performed by an emergency manager or designee, the 

person assigned to this role is responsible for identifying and training local assessment team 

members, coordinating assessment activity in the jurisdiction, and submitting information to the 

county or State or Tribal Government as appropriate.

Local or County PA Damage Assessment Team Member

The Local or County PA Damage Assessment Team Members are generally representatives of 

potential applicants from government offices or Private Nonprofits (PNP) that perform one of the 

services defined in Appendix C. PA damage assessment team members should be familiar with 

the type of work being evaluated and be able to collect information and supporting 

documentation discussed in later sections.

Local or County IA Damage Assessment Team Member

The Local or County IA Damage Assessment Team Members may be representatives of

emergency management, government offices, NGOs, Community Emergency Response Team 

(CERT) programs, or local residents. IA damage assessment team members should be trained in 

gathering information related to location, ownership, occupancy, and insurance coverage of 

impacted residences and categorizing damage according to criteria established by FEMA

discussed in later sections. 

State or Tribal Government Roles and Responsibilities

State or Tribal Governments can lessen the time required to verify damage by working with local 

emergency managers to assess whether the information submitted is complete and aligned with 

established FEMA damage assessment standards, and by providing technical expertise to local 

damage and impact assessment efforts. State or Tribal Government damage assessment 

personnel also play a pivotal role during the Joint PDA, serving as State or Tribal Government 

representatives on both Joint PDA leadership and field teams.
Roles and Responsibilities 

FEMA Damage Assessment Operations Manual 11

State or Tribal Government Damage Assessment Coordinator

The State or Tribal Government Damage Assessment Coordinator reports to the State or Tribal

Emergency Management Director. This Coordinator serves as the principal State or Tribal

representative overseeing damage assessment, verification, and validation activities. In addition 

they are responsible for ensuring that local damage assessments are appropriately supported; 

local, State or Tribal Government personnel are prepared to verify local assessment findings;

coordinating with Federal representatives during the Joint PDA; and ensuring appropriate 

support is provided as requests for Federal assistance are drafted. Some of the responsibilities 

given to the Coordinator may be delegated to a State or Tribal Government PA or IA Damage 

Assessment Team Lead.

State or Tribal Government Public Assessment Team

State or Tribal Government PA Damage Assessment Team Lead

The State or Tribal Damage assessment Team Lead reports to the State or Tribal Government

Damage Assessment Coordinator. This Team Lead serves as the representative responsible for

overseeing damage assessment activity related to the PA program. This includes overseeing 

technical programmatic support provided during local or county assessment efforts, verifying PA 

related information submitted by local or county emergency managers, and serving as the 
Roles and Responsibilities 

FEMA Damage Assessment Operations Manual 12

primary State or Tribal programmatic representative during the Joint PDA. During the Joint 

PDA, the Team Lead serves as the State or Tribal counterpart to the FEMA PA PDA Team Lead. 

State or Tribal Government PA Damage Assessment Team Member

The State or Tribal Government PA Damage Assessment Team Member reports to the State or 

Tribal Government PA Damage Assessment Team Lead. This Team Member is responsible for 

representing the State or Tribal Government as part of Joint PDA field assessment team. This 

team member may also be deployed to provide SME or other technical support to impacted 

jurisdictions during local damage assessment and State or Tribal government verification phases.

State or Tribal Government Individual Assessment Team

State or Tribal Government IA Damage Assessment Team Lead 

The State or Tribal Government IA Damage Assessment Team Leader reports to the State or 

Tribal Government Damage Assessment Coordinator. This Team Leader serves as the State or 

Tribal Government representative responsible for overseeing damage assessment activity related 

to the IA program. This includes overseeing technical programmatic support provided during 

local or county assessment efforts, verifying IA related information submitted by local or county 

emergency managers, and serving as the primary State or Tribal Government programmatic 

representative during the Joint PDA. During the Joint PDA this Team Lead serves as the State or 

Tribal Government counterpart to the FEMA IA PDA Team Lead. 

State or Tribal Government IA Damage Assessment Team Member

The State or Tribal Government IA Damage Assessment Team Member reports to the State or 

Tribal Government IA PDA Team Lead. This Team Member is responsible for representing the 

State or Tribal Government as part of the Joint PDA. The Team Member may also be deployed 

to provide SME subject matter expertise or other technical support to impacted jurisdictions 

during the local damage assessment and State or Tribal Government verification phases.

State or Tribal Government Voluntary Agency Liaison 

The State or Tribal Government Voluntary Agency Liaison (VAL) assigned to support damage 

assessments reports to the State or Tribal Government IA Damage Assessment Team Lead. The 

VAL is responsible for coordinating with NGOs including State and National Voluntary 

Organizations Active in Disaster (VOAD) and/or Community Organizations Active in Disaster 

(COAD) members in order to document activity and evaluate capacity of those organizations. 

Close coordination with the State or Tribal Government Mass Care and Emergency Assistance 

Crew Lead is recommended. This VAL may also work closely with the FEMA VAL and Mass 

Care Crew Lead. 

State or Tribal Government Mass Care and Emergency Assistance Specialist

The State or Tribal Government Mass Care and Emergency Assistance Specialist assigned to 

support damage assessments reports to the State or Tribal Government IA Damage Assessment
Roles and Responsibilities 

FEMA Damage Assessment Operations Manual 13

Team Lead. This Specialist is responsible for documenting activity and evaluating the capacity of 

OFAs and NGOs providing mass care and emergency assistance support. Close coordination 

with the State or Tribal VAL is recommended. The Specialist may also work closely FEMA 

VAL and the FEMA Mass Care Crew Lead, which is also recommended.

FEMA Regional Office Roles and Responsibilities

FEMA Regional Administrator (RA)

The FEMA RA is the senior executive of the Regional Office, and has direction, authority, and 

control over all Regional functions and assets including area offices authorized as a component 

of the Regional Office. The RA is also responsible for receiving requests from the State or 

Tribal Government for Stafford Act declarations, overseeing the development of analysis, and 

making a recommendation based on information provided in the RA's Validation and 

Recommendation (RVAR).

FEMA Regional Recovery Division Director

The FEMA Regional Recovery Division Director reports to the FEMA RA and is responsible for 

providing direction and oversight for components of the Recovery Division to include 

programmatic and technical assistance provided within the Region in all phases of the damage 

assessment process. This includes overseeing the deployment of Regional Division staff required 

to support State or Tribal Government requests for Joint PDAs, and ensuring necessary 

programmatic information is available during the development of the RVAR.

FEMA Regional PA and IA Branch Chiefs 

The Regional PA and IA Branch Chiefs report to the Regional Recovery Division Director and 

are responsible for providing direction and oversight of the IA or PA program. In this capacity 

the Regional IA and PA Branch Chiefs are responsible for overseeing the coordination of all 

actions required of their branch throughout the damage assessment process, including 

coordination with the State or Tribal Government program leads, mobilization of personnel and 

assets, coordination with OFAs and providing programmatic input for the RVAR.
Roles and Responsibilities 

FEMA Damage Assessment Operations Manual 14

FEMA Damage Assessment Team Roles and Responsibilities

When Joint PDAs are requested by the State or Tribal Government for both the PA and IA 

programs, an overall FEMA PDA Coordinator may be identified by the FEMA Regional 

Recovery Division Director to coordinate activity and maintain communication with the Region. 

The FEMA PDA Coordinator is typically the Regional IA or PA Branch Chief or Deputy 

Recovery Division Director. For the purpose of this description, the Coordinator will report to 

the FEMA Recovery Division Director. Programmatic Team Leaders assigned to oversee IA and 

PA program assessments will report to the FEMA PDA Coordinator and maintain appropriate 

coordination with the Regional IA and PA Branch Chiefs to ensure programmatic considerations 

are taken into account throughout the Joint PDA.

When a Joint PDA is requested for a single program (IA or PA), a programmatic PDA Team

Lead will be identified by the FEMA Regional Recovery Division Director or programmatic 

Branch Chief. Programmatic PDA Team Leads are typically a senior program specialist or 

specialist with considerable experience in conducting PDAs. In this scenario the programmatic 

PDA Team Lead will report to the Regional IA or PA PDA Branch Chief to ensure 

programmatic considerations are taken into account throughout the Joint PDA. When a Joint 

PDA is requested by a Federally Recognized Tribal Government, close coordination with the 

Regional Tribal Liaison will also be required.

The roles and responsibilities outlined in the remainder of this section will clarify the reporting 

relationships and job responsibilities for FEMA staff as they relate to the damage assessment

process.

FEMA PDA Coordinator

The FEMA PDA Coordinator reports to the FEMA Regional Recovery Division Director and,

when assigned, serves as the principal FEMA PDA representative assigned to the Joint PDA. 

The Coordinator serves as a single point of contact for FEMA Recovery Programs (IA and PA) 

and ensures programmatic damage assessment leads are coordinated and supported with and by 

the Regional Office. This position is typically staffed by a FEMA Regional IA or PA Branch 

Chief and generally is only used when there is a request for simultaneous IA and PA PDAs.

FEMA Public Assistance Damage Assessment Team

FEMA PA PDA Team Lead

The FEMA PA PDA Team Lead reports to the FEMA PDA Coordinator or Regional PA Branch 

Chief, and serves as the programmatic representative responsible for overseeing all FEMA PA 

Joint PDA actions in coordination with their State or Tribal counterpart (State or Tribal PA PDA 

Team Leader), and ultimately for the efficient and accurate assessment of program related 

damage throughout the affected areas. The Team Lead is responsible for collecting, aggregating, 

and archiving Joint PDA data from PA Field Team Members as well as formulating narratives 

and tables used to document validated damage. The Team Lead must be a PA SME possessing 
Roles and Responsibilities 

FEMA Damage Assessment Operations Manual 15

the requisite knowledge, skills, abilities, and field experience in all areas of the FEMA PA 

program as they relate to damage assessment. 

FEMA PA PDA Team Member

The FEMA PA PDA Team Member reports to the FEMA PA PDA Team Lead and is 

responsible for validating damage assessments, cost estimates, and ensuring programmatic 

requirements are met in the field. The Team Member and the State or Tribal Government PA 

Team Member facilitate the exchange of information with local officials to ensure an accurate

and efficient collection of damage, work, cost, and program requirement information to validate 

estimated program costs. The individual must have a detailed understanding of PA program 

requirements as they relate to damage assessments, good understanding of construction trades, 

and the ability to estimate costs for multiple types of work. 

FEMA Individual Assistance Damage Assessment Team

FEMA IA PDA Team Lead

The FEMA IA PDA Team Lead reports to the FEMA PDA Coordinator or Regional IA Branch 

Chief. The Team Lead serves as the programmatic representative responsible for overseeing all 

FEMA IA Joint PDA actions in coordination with their State or Tribal counterpart (State or 

Tribal IA PDA Team Leader), and ultimately for the efficient and accurate assessment of home 

damage throughout the affected areas. The Team Lead is responsible for collecting, aggregating, 

and archiving Joint PDA data from IA Field Team Members as well as formulating narratives 

and tables used to document validated damage. They may also function as an IA PDA Team 

Member, if the PDA is localized and roles can be combined. The Team Lead must be an IA 

SME, possessing the requisite knowledge, skills, abilities, and field experience in all areas of the 

FEMA IA program as they relate to damage assessment.

FEMA IA PDA Team Member

The FEMA IA PDA Team Member reports to the FEMA IA PDA Team Lead and is responsible 

for validating damage to homes in the field. This Team Member and the State or Tribal 

Government IA Team Member facilitate the exchange of information with local officials to

ensure an accurate and efficient collection of IA damage and impact information. The Team 

Member must have a well-developed understanding of IA damage assessment criteria used to 

evaluate damage to homes and the ability to identify and document disaster impacts. 

FEMA Voluntary Agency Liaison Crew Leader 

The FEMA VAL is assigned to support Joint PDAs report to the FEMA PDA IA Team Lead. 

The FEMA VAL is responsible for coordinating with the State or Tribal Government VAL to

document activity and evaluate capacity of active NGO including State and National Voluntary 

Organizations Active in Disaster (VOAD) and/or Community Organizations Active in Disaster 

(COAD) members. The Mass Care Crew Lead is assigned to support Joint PDA activity, the 

VAL should coordinate with them closely to ensure efficiency and effectiveness.
Roles and Responsibilities 

FEMA Damage Assessment Operations Manual 16

FEMA Mass Care Crew Lead

The FEMA Mass Care Crew Lead is assigned to support Joint PDAs report to the FEMA IA 

PDA Team. The Crew Leads are responsible for coordinating with the State or Tribal 

government. Mass Care Crew Leads document activity and evaluate capacity of government 

agencies and NGOs providing MC/EM care and emergency assistance support. If a VAL is 

assigned to support damage assessment activity, the MC/EM Crew Leads should coordinate with 

them closely to avoid overlap and leverage the ability of the Mass Care Crew Lead to focus on 

larger or traditional MC/EM service providers.

FEMA Support Personnel and Technical Experts

FEMA Mitigation Specialist

The FEMA Mitigation Specialists assigned to the PDA reports to the FEMA PDA Coordinator or 

programmatic Team Lead. This Specialist provides information related to the National Flood 

Insurance Program (NFIP) including information related to flood insurance policies and 

communities that are not currently participating in the program. Additionally, they are 

responsible for identifying mitigation opportunities on a site-specific, community, State or 

Tribal-wide basis. In some cases Mitigation staff may conduct their own assessments. The 

findings from the Mitigation Specialists will be included in the Mitigation portion of the RVAR.

FEMA Environmental and Historic Preservation Specialist

The Environmental and Historic Preservation (EHP) Specialists or a Regional Environmental 

Officer (REO) assigned to the Joint PDA reports to the FEMA PDA Coordinator or 

programmatic Team Lead. This Specialist ensures that environmental and historic preservation 

concerns identified during the Joint PDA are understood and can be addressed at the appropriate

level of government. While this assignment is not always necessary, ready access to

environmental-related expertise is useful for a comprehensive and effective damage assessment.

The REO or representative may accompany a Joint PDA team to obtain information for the PDA 

as well as for immediate and future strategic planning purposes. The REO or representative may 

help facilitate potential applicant communications with Federal and State resource and regulatory 

agencies as needed to address real-time emergency recovery work in sensitive habitat areas 

and/or involving historic properties.

FEMA External Affairs Specialist

The FEMA External Affairs (EA) Specialists assigned to the Joint PDA report to the FEMA 

PDA Coordinator, or PDA Team Lead. The EA Specialists serve as the agency’s representative 

to the media for matters related to the Joint PDA. External Affairs Specialists assigned to support 

Joint PDAs must maintain close communication with FEMA Regional EA to ensure they are 

aware of activity and potential challenges encountered in the field.
Roles and Responsibilities 

FEMA Damage Assessment Operations Manual 17

Small Business Administration Damage Assessment Team

U.S. Small Business Administration PDA Coordinator

The U.S. Small Business Administration (SBA) PDA Coordinator coordinates with the FEMA 

PDA IA Team Lead. The Coordinator serves as the agency’s representative responsible for

overseeing the coordination of all SBA PDA related activity, and ultimately for the efficient and 

accurate assessment of program related damage as defined by SBA standards and policies. The 

Coordinator is responsible for collecting, aggregating, and archiving PDA data from SBA PDA 

Team Members and formulating narratives and tables used to document validated damage. The 

Coordinator may also function as a SBA PDA Team Member, if the PDA is localized and roles 

can be combined.

SBA PDA Team Member

The SBA Team Member reports to the SBA PDA Coordinator and is responsible for accurately

reporting the results of damage and impact validation surveys conducted in the field in 

accordance with SBA damage assessment guidelines. The Team Member should have a good 

understanding of damage caused by various types of disasters and the methods and approximate

cost required to make repairs as they apply to SBA damage assessment policy.

Other

Other Federal Agencies (OFAs)

Information provided by OFAs and NGOs is helpful in the development of efficient and 

effective damage and impact information. If agency representatives are physically deployed to 

support PDA activity, they will coordinate with the FEMA PDA Coordinator, or programmatic 

Team Lead.

Federal Coordinating Officer

Federal Coordinating Officers (FCO) are appointed following a Stafford Act declaration to 

manage the Federal response, recovery, and mitigation operations for each presidentially 

declared major disaster or emergency. Understanding this responsibility, potential FCOs should 

coordinate with the Regional Recovery Division Director to maintain awareness of potential 

challenges that will complicate the delivery of assistance should a disaster be declared.

Federal Disaster Recovery Coordinator

In large or catastrophic disasters or when OFAs may be deployed for a follow on NDRF 

Recovery Coordination assessment, the RA or FCO may request that the regional Federal 

Disaster Recovery Coordinator (FDRC) be part of the coordination and information sharing 

process.
Roles and Responsibilities 

FEMA Damage Assessment Operations Manual 18

Regional Watch Office

FEMA Regional Watch Offices are critical to the agency’s ability to monitor and report threats 

in the Region and capture essential information in the immediate wake of a disaster. In this 

capacity, the Regional Watch Center is well positioned to capture information. By capturing 

specific information required by FEMA Regional and headquarters leadership to determine the 

need for expedited Federal assistance, the Watch office can help to ensure that Federal assistance 

is available to meet the needs of impacted citizens and jurisdictions. The Regional Watch unit 

works directly with the Regional Recovery Division to maintain awareness of completion status 

during Joint PDAs. The Regional Watch Center reports PDA activity to the National Watch 

twice daily.
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FEMA Damage Assessment Operations Manual 19

Evaluating Damage and Impact for FEMA 

Public Assistance Program

This section is intended to create a common understanding of the information and documentation 

collected during damage assessments to evaluate the need for the FEMA PA program. By 

incorporating the information described in this section, emergency managers and potential 

applicants will be able to confidently and consistently document damage, work, and the cost of 

restoring damaged infrastructure.

The six primary factors considered when evaluating a request for the FEMA PA program 

outlined in 44 CFR § 206.48 are:

1. Estimated cost of assistance

2. Insurance coverage in force

3. Programs of other Federal assistance

4. Localized impacts

5. Hazard mitigation

6. Recent multiple disasters

This set of factors represents the cornerstone of the PA damage assessment process. By outlining 

the information that is collected and analyzed for each factor, this section will support its 

development at the most local level possible and ready potential applicants for the verification 

and validation process undertaken by State or Tribal and Federal emergency management 

agencies.

Estimated Cost of Assistance

In order to determine that a disaster is of a size and magnitude that it might warrant Federal 

Assistance, a total estimated program cost is developed and compared to established county, 

State, and Tribal Government per-capita indicators. A minimum indicator of $1 million in PA

damage per disaster has been established, as FEMA expects that even the smallest States can 

recover from this level of damage to infrastructure without Stafford Act assistance.

The following four program eligibility factors are considered 

when developing PA program cost estimates: potential 

applicant, facility, work, and cost. These are commonly 

referred to as the building blocks of PA program eligibility.

Generally FEMA must determine that program eligibility 

requirements have been met for each building block, starting at 

the foundation (potential applicant) and working up to cost at 

the top of the pyramid.

Estimating the total cost of assistance for the FEMA PA program requires an understanding of 

regulations documented in Title 44 of the Code of Federal Regulations (44 CFR) and policies 
Evaluating Damage and Impact for FEMA Public Assistance Program

FEMA Damage Assessment Operations Manual 20

found in the FEMA PA Program and Policy Guide (PAPPG). Information contained in these 

documents may be needed to gain specific understanding of FEMA’s PA program requirements; 

therefore, references have been provided throughout this section. While it is not intended that 

every potential applicant or emergency manager have a complete understanding of these 

regulations and policies, a general understanding may be helpful. 

There is no one-sized-fits-all approach to documenting damage, work, and costs, or to collecting 

supporting documentation. Damage assessment teams must weigh the benefit of increased 

accuracy against the timeline for delivering necessary assistance. Potential applicants should 

generally be prepared to provide enough information and supporting documentation to allow 

verification of submitted claims.

FEMA will require additional information or more substantial supporting documentation for (1) 

projects greater than the large project threshold or (2) projects that, given the circumstances, 

raise serious questions regarding eligibility. Such information and documentation may include, 

but are not limited to:

 Ownership, rental, or lease documents

 Maintenance records

 Insurance policies 

 PNP supporting documentation, such as a tax exemption letter 

 Contracts and procurement documentation

 Invoices

 Safety and inspection reports 

 Other documentation necessary to establish that program requirements have been met.

Identifying Potential Applicants and Damaged Facilities

Identifying Potential Applicants

Identifying potential applicants and damaged facilities are the first steps that jurisdictions must 

take to conduct damage assessments for the FEMA PA program. There are four types of 

applicants eligible for PA funding. 

1. State and Territorial Government Agencies

The fifty States as well as the District of Columbia, American Samoa, the Commonwealth of 

the Northern Mariana Islands, Guam, Puerto Rico, and the U.S. Virgin Islands. 

2. Tribal Governments 

Federally recognized Indian Tribal Governments, including Alaska Native villages and 

organizations (hereafter referred to as “Tribal Governments”). Alaska Native Corporations 

are not eligible, as they are private for-profit entities. 

3. Local Governments 

Counties and parishes; municipalities, cities, towns, boroughs, and townships; local public 

authorities; school districts; intrastate districts; councils of government (regardless of 
Evaluating Damage and Impact for FEMA Public Assistance Program

FEMA Damage Assessment Operations Manual 21

whether incorporated as nonprofit corporations under State law); regional and interstate 

government entities; agencies or instrumentalities of local governments; State-recognized 

Tribal Governments; special districts established under State law; and Community 

Development Districts that are legally responsible for ownership, maintenance, and operation 

of an eligible facility that is accessible to the general public.

4. Certain Private Non-Profit Organizations

Private Nonprofit (PNP) organizations as defined in 44 CFR §206.221 (e).

For the purpose of damage assessments, potential applicants may be asked to verbally confirm 

that they meet general program requirements. 

Potential PNP applicants are typically further asked to confirm that they are nonprofit 

organizations that perform a critical service or non-critical but essential government service as 

defined by FEMA (see Appendix C). Defining the type of service provided (critical or noncritical) is important during damage assessments, as FEMA will generally only consider costs 

that do not need to be first considered by the U.S. SBA in its estimated cost of assistance (see 

Programs of other Federal assistance). Certain potential PNP applicants may be asked to verbally 

confirm that they are open to the general public. In cases where nonprofit status is unclear, the 

organization may be asked to provide a current ruling tax exemption letter from the Internal 

Revenue Service (IRS), or documentation from the State substantiating it is a non-revenue 

production nonprofit entity.

Departments, offices, and other entities formed 

under potential applicants (public works, 

police, fire, sanitation, water, parks, roads, etc.) 

often assess damage to facilities they are 

responsible for as a typical course of action 

following a disaster. These departments are 

also often the most capable of estimating the 

cost of restoration. Emergency managers can 

support these efforts by ensuring that these 

offices are aware of the information and 

documentation discussed in this section and 

ensuring coordination. For simplicity, the term “potential applicant” used throughout this section 

is intended to be inclusive of any entities formed under the four types of applicant’s eligible to 

receive PA funding described above. 

Identifying Damaged Facilities 

When a disaster occurs, damage should be identified as quickly as possible. FEMA will consider 

disaster related damage to any building, works, system, or equipment, built or manufactured, or 

improved and maintained natural feature that a potential applicant has legal responsibility to 

restore. 

Departments, offices, and other 

entities formed under potential 

applicants often assess damage to 

facilities they are responsible for 

as a typical course of action 

following a disaster, and are often 

the most capable of estimating the 

cost of restoration. 
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FEMA Damage Assessment Operations Manual 22

The location of all damage sites should be documented as specifically as possible using street 

addresses and/or GPS coordinates. FEMA damage assessment personnel should capture damage 

locations by documenting the USNG location. (Reference-“Use of the USNG FEMA Directive 

092-5). When possible, potential applicants should provide annotated maps showing damage 

locations to the State or Tribal Government and FEMA at the time of the Joint PDA. These maps 

are especially helpful when damage is spread across a system or jurisdiction. 

For less costly damage, program facility eligibility requirements are generally confirmed 

verbally with the potential applicant. For large projects or when facility’s program eligibility is 

unclear, potential applicants will be asked to provide documentation to show that a facility meets 

program eligibility requirements. These documents may include but are not limited to:

 documents showing ownership;

 lease, rental agreement, or other documents showing legal responsibility for restoration;

 maintenance records or other documents showing that the facility was in use at the time 

of the disaster; and/or

 plans that show that improvements to natural features were made and maintained.

Additional information related to facilities can be found in Chapter 2, Section III of the PAPPG.

Documenting Damage, Work, and Cost

Once damage has been identified, potential applicants should document the work, and estimated 

or actual cost required to perform Emergency Work or restore damaged infrastructure. To be 

considered, work must be: (1) required as a result of the disaster; (2) be within a jurisdiction 

being assessed (with the exception of sheltering and evacuation activities); and (3) be the legal 

responsibility of a potential applicant.

Documenting damage

Potential applicants are encouraged to photograph 

damage. This may expedite damage assessment 

verification and help potential applicants to document 

pre-restoration damage should a disaster be declared. 

For the purpose of damage assessments, photographs 

only need to be submitted for a representative site 

when multiple similar damage sites exist. It is not 

necessary to include photographs of all emergency 

protective measure work; however, photographs 

should be included to verify damage at sites where 

emergency construction is necessary (e.g. construction of an emergency roadway). Incorporating 

these photographs into diagrams or maps can further illustrate the location and extent of damage 

and expedite decision-making.

Potential applicants should document damage dimensions, materials, and the size or capacity of 

Potential applicants are 

encouraged to photograph 

damage in order to expedite 

damage assessment 

verification and document 

pre-restoration damage 

should a disaster be 

declared.
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FEMA Damage Assessment Operations Manual 23

damaged facility elements. This is particularly important for work to be completed, as the 

information gathered is often critical to estimating and verifying work and cost required for 

restoration. 

Documenting Work and Cost 

In order to organize work-related information, FEMA divides each applicant’s work into logical 

groupings. These groupings first separate activities into two primary work types, Emergency 

Work and Permanent Work. These work types are further divided into Categories of Work (A-G) 

defined by FEMA. This grouping structure is illustrated in the chart below:

Type Category of Work

Emergency Work: A Debris Removal

B Emergency Protective Measures

Permanent Work: C Roads and Bridges

D Water Control Facilities

E Buildings and Equipment

F Utilities

G Parks, Recreation and Other

Information describing work and cost should be broken down by Category of Work (Category). 

If a potential applicant is unsure of the Category, work and cost required to restore the facility 

should still be documented so that a Category can be assigned at the time of the Joint PDA.

Work and cost associated with completed work can be summarized and supported, when 

necessary, with the documentation described in this section. Estimates will need to be developed 

for work yet to be completed. Note, for accuracy, a member of a potential applicant’s staff that is 

familiar with the damaged facility and regularly develops estimates for similar work, or a 

qualified professional should develop estimates. Work and cost estimate calculations should be 

provided for all work to be completed to allow validation of estimates and ensure that it meets 

program eligibility requirements. When damage to a facility is complex or beyond the ability of a 

potential applicant to estimate, FEMA technical experts may be requested by a State or Tribal 

Government to estimate work and cost. 

The following are common general methods used to accomplish disaster related work and 

estimate cost. The information and documentation discussed are intended to assist potential 

applicants and emergency managers to prepare work and cost estimations and are applicable 

across all Categories of Work.
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FEMA Damage Assessment Operations Manual 24

Labor (Force Account) 

FEMA refers to potential applicant’s personnel as “force account.” Force account labor 

claimed should be based on hourly rates plus the cost of fringe benefits. Overtime, 

premium pay, and compensatory time claimed by potential applicants should be 

consistent with pre-disaster written policies. Costs related to stand-by time will be 

considered when incurred in preparation for and directly related to actions necessary to 

save lives and protect public health and safety. Hours claimed for force account 

employees need to be reasonable and necessary.

FEMA’s criteria for considering straight-time and overtime labor costs differ depending 

on the type of employee and whether that employee is performing Emergency Work or 

Permanent Work.

Emergency Work – only overtime is considered for budgeted employees. For 

unbudgeted employees performing Emergency Work, both straight-time and 

overtime are considered.‡

Permanent Work – both straight-time and overtime labor costs are considered for 

budgeted and unbudgeted employees.

For the purpose of damage assessments, potential applicants may choose to use average 

pay rates for groups of force account employees performing similar work, if calculating 

the actual cost for individual employees is time-prohibitive. In either case, the rate 

claimed needs to be reasonable for the type of work performed.

Potential applicants claiming force account labor costs during damage assessments 

should document the number of employees performing a given task, type of employee 

(budgeted or unbudgeted), type of work being performed, regular time and overtime 

hours worked, and the hourly rate claimed in a summary. Timesheets, labor policies, and 

documentation to support wage rates are not typically necessary during damage 

assessments when the time and rates claimed are reasonable for the work.

Additional information related to potential applicant’s force account labor can be found 

in Chapter 2, Section V (A) of the PAPPG.

Equipment (Force Account)

FEMA refers to equipment owned by a potential applicant as force account equipment. 

FEMA considers the cost of using force account equipment, including permanently 

mounted generators, based on hourly rates. Only time that the equipment was in use will 

be considered unless it was used intermittently for more than half of the day.

 

‡ Note: Due to program allowances available through the alternate procedures debris removal pilot, authorized by 

the Sandy Recovery Improvement Act, both straight-time and overtime labor costs will be considered for both 

budgeted and unbudgeted employees engaged in debris removal work.
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FEMA Damage Assessment Operations Manual 25

Potential applicants may estimate the cost of force account equipment using FEMA 

equipment rates or Tribal, State, or local equipment rates that meet criteria defined by 

FEMA. FEMA may also consider cost based on mileage rates for vehicles, if less costly 

than hourly rates.

Potential applicants submitting force account equipment costs during damage 

assessments should specifically document the type of equipment being used, type of work 

being performed, hours used / miles driven, and the equipment rate used in a summary. 

Activity logs and equipment rate documents are not typically necessary during damage 

assessments as long as the time and rates claimed are reasonable for the work.

Information related to a potential applicant’s force account equipment, including

FEMA’s policies on purchased equipment, can be found in Chapter 2, Section V (B) of 

the PAPPG.

Leased Equipment

When a potential applicant leases equipment, FEMA will generally consider costs 

submitted based on the terms of the lease.

Potential applicants that wish to claim leased equipment costs should specifically 

document the type of equipment that was leased, type of work being performed, and the 

cost of the leased equipment in a summary. Lease documents are not typically necessary 

during damage assessments as long as the cost claimed is reasonable for the equipment.

Additional information related to leased equipment can be found in Chapter 2, Section V 

(C) of the PAPPG.

Supplies

FEMA will consider the cost of supplies, including materials, if:

 The supplies or materials are or will be purchased and are justifiably needed to 

effectively respond to and/or recover from the incident; or 

 The supplies are or will be taken from the potential applicant’s stock and used for 

the incident.

For the purpose of damage assessments, potential applicants should document any 

materials or supplies required for Emergency Work or Permanent Work in a summary. 

Minor supplies and materials may be listed as miscellaneous; however, significant 

expenditures should be specifically noted and include unit costs.

The cost of supplies and materials should be based on invoices, a potential applicant’s 

established methods for pricing supplies and materials, historic prices for materials, or 

prices from area vendors. Unless it is a large project, it is not typically necessary for 

potential applicants to provide invoices or other supporting documentation to support 

supply cost estimations during damage assessments.
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FEMA Damage Assessment Operations Manual 26

Additional information related to supplies and materials can be found in Chapter 2, 

Section V (D) of the PAPPG. FEMA’s policy on the disposition of purchased equipment 

and supplies can be found in Chapter 2, Section V (E) of the PAPPG.

Contract Services

FEMA will consider the cost of contract services based on the terms of the contract. 

While procurement methods and contract requirements are generally not reviewed during 

damage assessments, potential applicants should note that complying with procurement 

standards and contract requirements are a conditions for receiving PA funding. Failure to 

adhere to these standards and requirements could jeopardize PA funding if a disaster is 

declared.

For the purpose of damage assessments, potential applicants should document all contract 

work and cost in a summary. The estimate, bid, or contract should also be made available 

as supporting documentation when the cost is above the large project threshold.

Additional information related to Federal procurement and contracting requirements can 

be found in Chapter 2, Section V (G) of the PAPPG and 2 CFR § 200.

Mutual Aid Agreements

When a potential applicant requests resources from another jurisdiction through a mutual 

aid agreement, FEMA will consider costs incurred by the potential applicant. When a 

State has a statewide mutual aid agreement that designates the State as being responsible 

for reimbursing mutual aid costs, FEMA will consider costs incurred by the State. In 

either case, agreements and cost should be consistent with past practices for mutual aid.

Additional information related to mutual aid, including post incident agreements and 

eligibility, can be found in Chapter 2, Section V (H) of the PAPPG.

For the purpose of damage assessments, potential applicants or States submitting mutual 

aid costs should provide labor, equipment, supply, and/or material costs in a summary as 

described previously.
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FEMA Damage Assessment Operations Manual 27

Other PA program considerations can have a substantial impact on work and cost estimates. The 

information and documentation discussed below are intended to assist potential applicants and 

emergency managers to prepare work and cost estimates, and are applicable across multiple 

Permanent Work Categories (C-G).

Codes and Standards

Generally, damage assessment work and cost estimations should be focused on that 

required to restore the facility to its pre-disaster design and condition. Improvements 

required by current applicable codes, specifications, and standards (hereinafter referred to 

as “standards”) may be considered when facility restoration triggers the upgrade 

requirement, and when the standard:

1. Applies to the type of restoration required;

2. Is appropriate to the pre-disaster use of the facility;

3. Is reasonable, in writing, formally adopted by the State, Tribal, or local 

government, and implemented by the potential applicant at the time of the 

disaster, or is a legal Federal requirement;

4. Applies uniformly; and

5. Was enforced during the time it was in effect.

If a potential applicant would like to include upgrades required by standards, the upgrade 

will be evaluated according to the five criteria above. When a code or standard will 

dramatically increase the cost of restoration, potential applicants should provide the 

specific code or standard to be considered, in writing, as early as possible to State or 

Tribal and FEMA damage assessors for consideration. Additional information related to 

codes and standards can be found in the PAPPG Chapter 2 Section VII (C).

Repair vs. Replacement

If the cost of repairing a facility is estimated to exceed 50% of the replacement cost, an 

estimate based on the replacement of the facility may be considered. If a potential 

applicant would like a facility to be considered for replacement, they should provide

information and documentation used to develop their estimate to State, Tribal, and FEMA 

technical experts for review and validation. This practice does not apply to individual

structural or mechanical components of a facility. Additional information on the repair 

vs. replacement calculation, including the specific factors considered, can be found in the 

PAPPG Chapter 2 Section VII (E), and 44 CFR § 206.226 (f).

Landslides and Slope Stabilization

If a facility is located on a slope and is damaged as a result of a landslide or slope 

instability triggered by the incident, FEMA determines the stability of the slope that 

supports the facility before it considers costs required to restore the facility. Site 

inspections and limited geotechnical assessments to determine site stability and to obtain 
Evaluating Damage and Impact for FEMA Public Assistance Program

FEMA Damage Assessment Operations Manual 28

a technical opinion of the cause of the slope failure may be considered. The cost of 

restoring integral ground (ground necessary to physically support a facility) may be 

considered. Permanent Work to stabilize natural ground that is not integral to an eligible 

facility’s function is not considered. Additional information regarding landslide and slope 

stabilization work can be found in the PAPPG Chapter 2 Section VII (H)(6). 

Cost Not Considered 

Costs that are not eligible for PA funding will not be considered in the calculation of the 

estimated cost of assistance. Examples include, but are not limited to: 

 Capital improvements not required by codes and standards 

 Loss of revenue 

 Loss of useful service life of facilities

 Tax assessments

 Increased operating expenses (with limited exceptions for specific emergency health and 

safety tasks)

 General surveys to assess damage

 Cost of restoring facilities that were not in active use at the time of the disaster

Unique Considerations for each Category of Work 

As discussed previously, FEMA divides work into seven categories (A-G). Each category of 

work has specific considerations and policies that should be taken into account when conducting 

a damage assessment. To assist emergency managers and potential applicants in addressing these 

and collecting appropriate information and documentation during damage assessments, the 

following sections will examine each of the FEMA PA Categories of Work. Where additional 

policy related information may be required, references are provided. 

Category A – Debris Removal 

Debris removal activities, such as clearance, removal, and disposal, will be considered during 

damage assessments if they do not fall under the authority of OFA’s (see OFA section below) 

and the removal is in the public interest. Public interest is based on whether the work: 

 Eliminates immediate threats to lives, public health, and safety;

 Eliminates immediate threats of significant damage to improved public or private property; 

or 

 Ensures economic recovery of the affected community to the benefit of the community at 

large.
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FEMA Damage Assessment Operations Manual 29

The types of debris considered include, but are not limited 

to, vegetative debris, construction and demolition debris, 

sand, mud, silt, gravel, rocks, boulders, vehicle/vessel 

wreckage, and contaminated debris. 

Removal of debris from improved public property and 

public right-of-ways (ROWs), including Federal-aid 

roads, will be considered. If State, Tribal, or local 

governments authorize residents to place incident-related 

debris on public ROWs, FEMA will consider the cost of 

removing the debris from the ROWs for a limited period 

of time. Removal of debris placed on the public ROW 

from commercial properties will not be considered. 

Removal of materials related to the construction, repair, or 

renovation of either residential or commercial structures 

will not be considered. 

FEMA has defined specific eligibility criteria and documentation requirements for hazardous 

limbs, trees, and stumps. While costs associated with the removal of these hazards will be 

considered, potential applicants are encouraged to review FEMA’s policy located in Chapter 2, 

Section VI (A)(2) of the PAPPG to avoid jeopardizing PA funding should a disaster be declared. 

Debris removal from the following locations/areas will not be considered: 

 Federally maintained navigable channels and waterways

 Flood control works under the authority of the Natural Resources Conservation Service 

(NRCS) 

 Agricultural land

 Natural, unimproved land, such as heavily wooded areas and unused areas 

Debris removal from waterways that is necessary to eliminate the immediate threat to life, public 

health and safety, or improved property will be considered when not under the authority of an 

OFA. For navigable waterways this may include the removal and disposal of debris that 

obstructs the passage of vessels, to specific depths defined by FEMA. For non-navigable 

waterways and flood control works this may include debris that obstructs or could obstruct intake 

structures, debris that could damage bridges, culverts, or other structures, and debris that is 

causing or could cause flooding to improved public or private property during the occurrence of 

a five-year flood. Removal of debris in a waterway that does not meet these immediate threat 

criterion will not be considered, even if the debris is deposited by the incident. All work in 

waterways should be noted to assist in the early identification of potential environmental 

requirements.

When debris removal is required to restore the pre-disaster carrying or storage capacity of 

engineered channels, debris and sediment basins, storm water detention and retention basins, and 

Debris removal work may be 

considered during damage 

assessments if it is necessary 

to eliminate an immediate 

threat to lives, public health 

and safety, and improved 

property, or to ensure the 

economic recovery of the 

affected community to 

benefit the community at 

large. 
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FEMA Damage Assessment Operations Manual 30

reservoirs it may be considered as permanent work under Category D, if information and 

documentation is provided to show that it meets program eligibility requirements. Additional 

information can be found in Chapter 2, Section VII (H)(2) of the PAPPG. 

Work requirements developed for damage assessments should include the type and estimated 

amount of debris that will need to be removed in units (cubic yards or tons). Potential applicants 

should survey damage and estimate the total amount of debris that will need to be removed. For 

damage assessments, a rough estimate can be developed by first estimating the amount of debris 

that needs to be removed for an area or length of road that represents a typical or average

amount of debris. This estimated quantity can then be divided by the area, or length of road to 

yield an average unit estimate. This unit estimate can then be used to estimate the total amount of 

debris in the jurisdiction. These calculations should be provided to support estimates developed. 

Locations where these estimates were developed should be documented and photographs should 

be taken to aid in verifying estimates. 

Once a debris estimate has been developed, the cost of removal must be calculated. Costs for the 

pick-up, staging/transferring, separating, reducing, and disposing of debris should be taken into 

account. (Note alternative procedures allowance for straight time. See p.25)

Potential applicants may also use cubic yard rates supplied by contracts or historic costs to 

estimate costs. Unit costs for debris removal can also be calculated by dividing the amount of 

debris removed by the cost of removal. Calculations used to estimate the cost of debris removal 

should be provided to support estimates.

If a potential applicant still has work to be completed, a total estimated cost of removal can be 

calculated by multiplying the unit cost developed for completed work by the cubic yards of 

debris still requiring removal. If work is partially complete at the time of the Joint PDA, 

locations where typical amounts of debris can be measured should be provided to validate 

estimates for the remaining work.

Potential applicants should document the location of all temporary and permanent debris sites, 

including temporary debris staging and reduction sites (TDSR). These locations are important to 

validate quantity estimates and the early identification of potential environmental requirements. 

Potential applicants should be aware of environmental requirements for the disposal of debris 

and take appropriate measures to ensure that disposal sites and methods comply with applicable 

laws and regulations. This is particularly important when debris removal operations may impact: 

 Waterways,

 Floodplains, 

 Wetlands,

 Federally listed threatened and endangered species, 

 Critical habitats,

 Historic properties, 

 And when the amount of debris will challenge existing certified TDSRs. 
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FEMA Damage Assessment Operations Manual 31

While these requirements do not typically impact damage assessment cost estimates, failure to 

adhere to local, State, and Federal environmental and historic preservation laws could jeopardize 

Federal funding if a disaster is declared.

Additional information related to debris removal can be found in Chapter 2, Section VI (A) of 

the PAPPG.

Category B – Emergency Protective Measures

Emergency Protective Measures are actions taken before, during, and after a disaster to eliminate 

or lessen immediate threats to life, public health, or safety, or to eliminate or lessen immediate 

threats of significant additional damage to improved public and private property in a cost 

effective manner.

Saving lives or Protecting Public Health and Safety 

The following is a list of emergency protective measures often taken to save lives or protect 

public health or safety that may be considered. This list is not all-inclusive. 

 Transporting and pre-positioning 

equipment and other resources for 

response 

 Flood fighting 

 Emergency Operations Center 

(EOC)-related costs

 Emergency Access

 Supplies and commodities 

 Medical care and transport

 Evacuation and sheltering costs

 Childcare

 Safety inspections

 Search and Rescue 

 Fire fighting

 Security, such as barricades, fencing, 

or law enforcement

 Use or lease of temporary generators 

for facilities that provide essential 

community services 

 Dissemination of information to the 

public to provide warnings and 

guidance about health and safety 

hazards

Example - Category A:

Vegetative debris on roadways: 

 Total miles of road impacted = 65 miles (map) 

 Average amount of debris per mile = 230 cy/mile (photographs and locations provided)

 Cost for removal and disposal = $12/cy (contract provided)

 75% work complete – locations of work to be completed provided (map)

 Cost calculation = (65 mi x 230 cy/mile = 14950 cy) x $12/cy = $179,400

 Locations for reduction and disposal sites (map)

Total estimated cost = $179,400.
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FEMA Damage Assessment Operations Manual 32

Protecting Improved Property 

The following are emergency protective measures to protect improved property that may be 

considered when specific requirements are met. This list is not all-inclusive.

 Constructing emergency berms or 

temporary levees to provide 

protection from floodwaters or 

landslides 

 Emergency repairs necessary to 

prevent further damage, such as 

covering a damaged roof to prevent 

infiltration of rainwater

 Buttressing, shoring, or bracing 

facilities to stabilize them or prevent 

collapse

 Temporary slope stabilization

 Mold remediation

 Removal and storage of contents 

from facilities that meet program 

requirements for the purpose of 

minimizing additional damage

 Extracting water and clearing mud, 

silt, or other accumulated debris 

from facilities that meet program 

requirements 

For potential PNP applicants, emergency protective measures considered are generally limited to 

activities associated with preventing damage to facilities that meet program requirements. 

Information and documentation collected by potential applicants during damage assessments to 

describe required emergency protective measures are generally focused on documenting the type 

of actions taken, force account mutual aid or contract resources employed, and cost. Note that 

only overtime will be considered for permanent employees engaged in emergency protective 

measures. Stand-by force account labor costs will be considered when it is directly related to 

actions necessary to save lives and protect public health and safety. Stand-by time for equipment 

is not considered. Photographs should be included to verify damage and work required at sites 

where emergency construction is necessary. Because actions taken for emergency protective 

measures can be widespread, annotated maps can be particularly helpful in capturing and 

describing actions taken.

Additional information related to emergency protective measures can be found in Chapter 2, 

Section III of the PAPPG.

Example - Category B

Sandbagging of City Buildings

 FA labor - 60 overtime hrs @ $35/hr avg. = $2,100

 FA equipment - (1) 15 cy dump truck for 60 hrs @ $65/hr = $3,900

 Materials – sand and sandbags = 3,100

Total estimated cost = $9,100
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FEMA Damage Assessment Operations Manual 33

Category C – Roads and Bridges

Permanent Work required to restore roads (paved, gravel, and dirt), bridges, and their 

components to their pre-disaster design and function is considered unless the restoration falls 

under the authority of an OFA. Permanent restoration of private roads, including homeowners’ 

association roads, are not eligible for FEMA PA funding, and thus are not considered.

Road components include but may not be limited to:

 Surfaces

 Bases

 Shoulders

 Ditches

 Drainage structures, such as culverts

 Low water crossings 

 Associated facilities, such as 

lighting, sidewalks, guardrails, and 

signs

Bridge components include but may not be limited to:

 Decking

 Guardrails

 Girders

 Pavement

 Abutments

 Pier

 Slope protection

 Approaches

 Associated facilities, such as

lighting, sidewalks, and signs

Damage must be the result of the disaster to be considered. Work to repair potholes or fatigue 

cracking is generally not considered as this type of damage is rarely caused directly by a single

incident.

When a system is damaged (e.g. road system), work and cost should be documented by site but 

may be combined into a single summary for evaluation. However, to simplify review by 

technical specialists, bridge restoration work should be separated from other roadwork. For large 

projects in which the pre-disaster condition may impact estimates, potential applicants will be 

asked to provide bridge inspection/safety reports to verify pre-disaster condition. If deficiencies 

identified in these reports were addressed, documentation supporting work performed should 

also be provided.

Work to repair scour or erosion damage to a channel or stream bank will be considered if the 

repair is necessary to restore the structural integrity of a road, culvert, or bridge. Any work 

required in a waterway should be noted to promote the early identification of environmental 

requirements.

Additional information related to road and bridge work can be found in Chapter 2, Section VII 

(H)(1) of the PAPPG.
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FEMA Damage Assessment Operations Manual 34

Category D – Water Control Facilities

Work done to restore publicly-owned water control facilities that do not fall under the authority 

of an OFA may be considered. Water control facilities are those facilities built for the following 

purposes: 

 Channel alignment 

 Recreation

 Navigation 

 Land reclamation

 Irrigation

 Maintenance of fish and wildlife 

habitat

 Interior drainage 

 Erosion prevention 

 Flood control 

 Storm water management

They include: 

 Dams and reservoirs

 Levees and floodwalls

 Lined and unlined engineered 

drainage channels

 Canals

 Aqueducts 

 Sediment and debris basins 

 Storm water retention and detention 

basins 

 Coastal shoreline protective devices

 Irrigation facilities

 Pumping facilities

 Navigational waterways and 

shipping channels

Example - Category C

Lake Arnold Bridge Washout – CR 233 (map)

 Two span, 80 ft long x 24 ft wide, concrete beam and deck structure 

 Restoration cost est = $240/sq ft. (historic costs provided by county engineer)

 Cost calculation = 80 ft x 24 ft x $240/sq ft = $460,800; engineering (15%) = $69,120; geotechnical 

(1.5%) = 6,912 

 Safety inspection and basis for historic cost estimate are available 

Total estimated cost = $536,832
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FEMA Damage Assessment Operations Manual 35

Restoring the pre-disaster carrying or storage capacity of engineered channels, debris and 

sediment basins, storm water detention and retention basins, and reservoirs may be considered, 

but only if the potential applicant can establish:

 The pre-disaster capacity of the facility; and

 The facility was maintained on a regular schedule.

Flood control works, such as levees, floodwalls, flood control channels, and water control 

structures generally fall under the under the authority of USACE or NRCS. For work to restore 

these facilities to be considered, it must first be confirmed that it does not fall under the authority 

of these OFA’s. Secondary levees riverward of a primary levee are not considered, unless they 

protect human life. 

Additional information related to the eligible repair or replacement of damaged water control 

facilities can be found in Chapter 2, Section VII (H)(2) of the PAPPG. 

Category E – Buildings and Equipment

Buildings 

Work required to restore damaged buildings will be considered along with upgrades 

required by codes and standards. This includes all structural and non-structural 

components, including mechanical, electrical, and plumbing systems, as well as contents, 

furnishing and equipment within the building. Specific policy guidance related to the 

restoration of files, research-related contents, animals, irreplaceable collections and 

individual objects, and library books and publications can be found in Chapter 2, Section 

VII (H)(2) of the PAPPG.

Mold remediation and removal of mud, silt, or other accumulated debris will be 

considered as Permanent Work when conducted for the purpose of restoring the facility. 

When this work is required to eliminate or lessen an immediate threat, it will be 

considered but captured under Category B. 

Example - Category D

Fish Creek Debris Basin Restoration

 Basin dimensions: 300 ft x 200 ft x 10 ft 

 Estimated depth of debris = 1.5 ft 

 Amount of debris attributable to flood = 80% (basin last cleaned 3 mo earlier @ $20.00/cy)

 FA labor and equipment

 Cost calculation = 0.8 x (300ft x 200ft x 1.5 ft) x (1cy/27 cu ft) x $20.00/cy = $53,333 

Total estimated cost = $53,333
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FEMA Damage Assessment Operations Manual 36

Environmental and historic preservation requirements are common to the restoration of 

public buildings. Potential applicants are encouraged to identify damaged facilities over 

45 years old, and any work that may be environmentally or culturally sensitive to avoid 

jeopardizing Federal funding should a disaster be declared. 

Equipment 

Work required to restore damaged equipment will be considered. This includes any 

vehicles and construction equipment. When equipment is not repairable, potential 

applicants may use “blue book” values or similar price guides to estimate the cost of 

replacing the damaged equipment with equivalent items – similar age, condition, and 

capacity. If the cost to replace damaged equipment is less than the cost to repair it, the 

estimate should be based on the replacement cost as it represents the lowest cost option.

Equipment that is damaged performing Emergency Work, will be considered under the 

appropriate Emergency Work Category (A or B). 

Additional information related to the restoration of damaged public buildings and equipment can 

be found in Section VII (H)(3) of the PAPPG. 

Example - Category E

Building #212 – 123 City Center (map)

 4 stories ea. = 120 ft. x 100 ft 

 Built 1998

 Basement and first floor flooding – flood debris removal, building mechanical systems, damaged 

furniture removal and replacement, interior wall repair and painting

 Repairs to be performed by contract services 

 Estimated cost to repair = $840,000 (contract provided)

 Insurance = $700,000 (policy provided)

Total estimated cost = $140,000
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FEMA Damage Assessment Operations Manual 37

Category F – Utilities

Work required to restore damaged utility facilities to pre-disaster design and function will be 

considered under Category F. This includes:

 Water storage facilities, treatment plants, and delivery systems

 Power generation, transmission, and distribution facilities, including, but not limited to, 

wind turbines, generators, substations, and power lines

 Natural gas transmission and distribution facilities

 Sewage collection systems and treatment plants

 Communication systems

Restoration work that will be considered includes but is not limited to:

 Permanent restoration of any component of the system, including buildings, structures, or 

systems, even if not contiguous.

 Electrical conductor replacement (subject to specific criteria)

 Inspection or assessment of damaged components of a system (note general surveys to 

identify damage are not considered)

 Inspection or assessment of an inaccessible structure or component of a system (e.g. 

underground systems), but only when there is evidence of damage

FEMA will consider the cost of limited clearance of disaster-related debris from a right of way 

(ROW) to enable access to the facility. Additionally, if trees in the vicinity of the facility were 

damaged by the incident and an arborist confirms that the trees cause an immediate threat of 

further damage to the facility (e.g. overhead power lines), FEMA will consider the cost of 

removing those trees. Any further clearance of debris from the ROW will not be considered.

Work and cost estimates should be based on specific disaster related damage. As an example, if 

there is evidence of a broken sewer line between A and B Streets, potential applicants should not 

estimate complete replacement between A and B Streets, but use an appropriate length of repair 

given the above ground indicators. Likewise, potential applicants should not include sites where 

damage is suspected, but not confirmed.

If an electric utility cannot effectively repair damaged conductors and would like to have 

conductor replacement work considered, information supporting the need should be provided for 

review, in writing, as early as possible to State or Tribal and FEMA damage assessors for 

consideration. Specific information can be found in Chapter 2 Section VII (H)(4).

The cost of obtaining an alternative source of power because of the shutdown of a power 

generation plant will not be considered as it is an increased operating expense. Similarly, FEMA 

cannot provide funds for revenue lost if a utility is shut down.

Additional information related to the restoration of damaged public utilities can be found in 

Section VII (H)(4) of the PAPPG.
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FEMA Damage Assessment Operations Manual 38

Category G – Parks, Recreation Facilities, and Other

Eligible publicly owned facilities in this category include:

 Mass Transit facilities such as railways

 Beaches

 Parks

 Playground equipment 

 Swimming pools

 Bath houses 

 Tennis courts 

 Boat docks 

 Piers

 Picnic tables

 Golf courses

 Ball fields

 Fish hatcheries

 Ports and harbors 

 Other facilities that do not fit in 

Categories C–F

Unimproved natural features are not eligible. The cost of replanting trees, shrubs, and other 

vegetation will be considered when they are part of the restoration of an eligible facility and are 

needed for erosion control, to minimize sediment runoff, or to stabilize slopes, including dunes 

on eligible improved beaches. Grass and sod replacement will be considered if it is an integral to 

the facility. Vegetation replacement necessary to restore the function of the facility (e.g. if 

vegetation is a component of a sewage filtration system) will also be considered. Long-term 

monitoring to ensure vegetative growth is not considered. Plantings ineligible for replacement 

include, but are not limited to: 

 Replacement of trees, shrubs, and other vegetation not required for erosion control 

 Replacement of destroyed crops

 Cosmetic or aesthetic vegetation, such as landscaping around public facilities or in 

median strips along roadways. This restriction applies even when the vegetation is 

damaged during performance of eligible work, such as when repairing underground 

utilities within landscaped areas.

Replacement of sand on beaches is only considered under certain conditions outlined in Section 

VII (H)(5) of the PAPPG. 

Example – Category F

Common Electric 

 14 utility poles destroyed – conductor will be re-hung (photos) 

 FA labor, equipment, and materials 

 Estimated cost of repair = $4,750/pole. (historic cost)

 Work has begun on 5 of 14 poles

 Cost calculation = 14 poles x $4,750/pole = $66,500

Total estimated cost = $66,500
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FEMA Damage Assessment Operations Manual 39

Environmental and historic requirements are common to parks and recreation facilities. Potential 

applicants are encouraged to identify damaged facilities over 45 years old, any work in 

waterways, and other potential restoration work that may have environmental or historic 

preservation requirements early to avoid jeopardizing Federal funding should a disaster be 

declared.

Additional information related to the restoration of damaged parks, recreation facilities, and 

other items can be found in Section VII (H)(5) of the PAPPG. 

Insurance Coverage in Force

When estimating the amount of anticipated assistance during damage assessments, FEMA must 

reduce PA program costs for restoring a facility by actual or anticipated insurance proceeds. The 

reduction is based on the amount of insurance that is in place or was required following a 

previous disaster. If the facility is located in a Special Flood Hazard Area, estimated costs are 

reduced in accordance FEMA’s insurance regulations including when the facility is uninsured or 

under insured. This is discussed in 44 CFR § 206.48 (a)(3) 

Costs not addressed by insurance, including a 

potential applicant’s deductible, damage not 

covered under an existing policy or required 

by regulation, and in circumstances where 

restoration costs exceed policy limits, will be 

considered. For less costly damage, insurance 

coverage and deductibles are generally 

confirmed verbally with the potential 

applicant. For a large project, or if a potential applicant would like costs other than a deductible 

considered for an insured facility, a copy of their insurance policy and other related 

documentation should be provided to the State or Tribal Government and FEMA as soon as 

possible for evaluation. 

Example - Category G

Springfield Park 

 Clean/ repair: 10 wood picnic tables, playground apparatus, 4 benches, 16 trash receptacles, 2 sets of 

bleachers. (photos)

 Replace: 400 playground safety play surface tiles @ $24.50/tile - verbal quote (photos) 

 FA labor = 20 regular hr @ $25/hr avg. (with benefits) = $500

 Playground safety tiles = 400 tiles at $24.50/tile = $9,800

Total estimated cost = $10,300

Assembling available insurance 

policy and settlement information 

after the disaster can dramatically 

reduce the time required to

complete damage assessments.
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FEMA Damage Assessment Operations Manual 40

For a NFIP-insurable facility located in a Special Flood Hazard Area (SFHA), FEMA will 

reduce estimated program costs when the facility is:

 Located in an area that FEMA has identified as a SFHA for more than 1 year;

 Damaged by flooding; and

 Uninsured for flood loss.

If a potential applicant does not have flood insurance for the facility or carries inadequate flood 

insurance for the insurable facility, FEMA will reduce program costs by the lesser of: 

 The maximum amount of insurance proceeds that could have been obtained from an 

NFIP standard flood insurance policy for the building and its contents; or

 The value of the building and its contents at the time of the incident.

Assembling available insurance policy and settlement information after the disaster can 

dramatically reduce the time required to complete the damage assessment process. Emergency 

managers are encouraged to work with potential applicants to ensure that they are aware of the 

importance of providing this information as part of the damage assessment process.

If an applicant’s facility has a requirement to obtain and maintain insurance as a result of 

previously receiving Public Assistance in a previous disaster, and the applicant has failed to 

obtain and maintain the required insurance, that facility is ineligible for assistance and FEMA 

will not consider the damage to that facility in the damage assessments.

Programs of Other Federal Agencies (OFA’s)

FEMA considers programs of OFA’s during damage assessments. This is discussed in 44 CFR § 

206.48 (a)(6).

Additionally, 44 CFR § 206.226 (a) states that disaster assistance generally will not be made 

available under the Stafford Act when an OFA has specific authority to restore facilities 

damaged or destroyed by a Major Disaster event.

When it appears that a damaged facility may be within the authority of an OFA, FEMA will ask 

the specific Federal agency with responsibility to review the damage and advise FEMA whether 

the work would be eligible under that agency's authority. In most cases, decisions made for the 

purpose of damage assessments can be made quickly over e-mail or the telephone. If the work 

falls outside the statutory authority of an OFA, FEMA will include the work in its program cost 

estimate.

Potential Private Nonprofit Applicants

Following a Major Disaster Declaration, the SBA can provide disaster loans to individuals and 

businesses for facility restoration. PNPs that provide non-critical services (see Appendix C) must 

first apply for a disaster loan from the SBA for Permanent Work. Therefore, FEMA will only

consider Permanent Work costs that a SBA loan will not cover for those PNPs. Emergency Work 

costs submitted by PNPs providing non-critical services, and both Emergency Work and 
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FEMA Damage Assessment Operations Manual 41

Permanent Work costs submitted by PNPs providing critical services will be considered.

Road Restoration

The Federal Highway Administration (FHWA) has authority to restore public roads under the 

Emergency Relief (ER) Program. Roads that are eligible for ER assistance are identified as 

Federal-aid routes, which include highways on the Federal-aid highway system and all other 

public roads not classified as local roads or rural minor collectors.

Debris removal from Federal-aid routes is considered; however emergency repairs and 

permanent restoration of Federal-aid routes is not considered during FEMA PA damage 

assessments regardless of whether the ER Program is activated. When a potential applicant is 

unsure if a damaged road is a Federal-aid route, the location of damage should be documented 

and coordinated with the State, FHWA, and/or FEMA to evaluate authorities for restoration.

The restoration of roads on U.S. Government “trust lands” falls under the authority of the Bureau 

of Indian Affairs (BIA) absent any other agreement. For this reason Permanent Work on these 

roads is not considered by FEMA. BIA, however, does not have authority for restoration of 

disaster related damage to roads on tribally owned lands, regardless of whether they are owned 

or maintained by BIA. Therefore, work and costs associated with the restoration of public roads 

on tribally owned lands are considered by FEMA during damage assessments.

Flood Control Works and Streams

Debris removal from streams, that meet FEMA’s program eligibility requirements, is considered 

even where debris removal would also be eligible under the authority of the NRCS unless NRCS 

has provided assistance for the debris removal. FEMA and NRCS should coordinate during 

damage assessments to evaluate damage and maximize the effectiveness of their independent 

programs.

Debris removal and flood fighting activities for flood control works are considered even if they 

are associated with a facility that is eligible for the U.S. Army Corps of Engineers (USACE) 

Rehabilitation and Inspection Program (RIP), as USACE cannot reimburse applicants for flood 

fighting. Debris removal and flood fighting activities are not eligible if associated with flood 

control works under the specific authority of NRCS.

Emergency repairs or permanent restoration of flood control works that are under the authority of 

NRCS or USACE are not considered by FEMA during damage assessments, even if these OFAs 

do not have sufficient funding or do not provide assistance.

Federally Maintained Navigable Waterways

Debris removal from federally maintained navigable waterways is not considered by FEMA 

during damage assessments as it falls under the authority of the U.S. Coast Guard (USCG) and 

the USACE.
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FEMA Damage Assessment Operations Manual 42

Hazardous Material Removal 

EPA and USCG have the specific authority to remove hazardous materials. EPA is responsible 

for removing such material from inland zones and USCG is responsible for coastal zones. 

Capturing Localized Impact

Capturing the impact that lost or damaged infrastructure had on the jurisdiction is an essential 

damage assessment task. Narrative statements that illustrate the impact of the disaster can help 

show whether or not the disaster is beyond the capacity of the impacted jurisdiction or State or 

Tribal Government, and whether supplemental Federal assistance is required to recover. 

Generally delivered in a series of short narratives, Impact Statements should include numbers or 

statistics that lend context to the disaster. These statements, included in the Governor’s or Chief 

Executive’s request, are important as the impact of a disaster will be taken into account 

regardless of whether or not a State or Tribal Government meets the per capita cost indicators.

At times there are extraordinary 

concentrations of damage that might 

warrant Federal assistance even if the 

statewide per capita indicator is not met. 

This may be particularly true where 

critical facilities are involved or where 

the cost of restoring damaged 

infrastructure in a localized area is 

extremely high. This is discussed in 44 

CFR § 206.48 (a)(2). On the other hand, 

Federal assistance may not be warranted 

following disasters where the statewide 

indicator is met, but the damage is still 

within the State’s or Tribal 

Government’s ability to address without 

supplemental Federal assistance.

To capture impact local, State or Tribal, and Federal damage assessment teams should document 

the direct and indirect consequences that damaged and destroyed infrastructure has on the 

community. The loss or degradation of facilities built to support normal community functions 

like roads, bridges, and critical infrastructure can have an immediate impact on the population 

and slow recovery. While this reality exists following most disasters, the question that needs to 

be considered when writing impact statements needs to be ‘how will the unique resources of the 

Federal Government reduce the impact of the disaster and/or expedite recovery?’

At times there are extraordinary 

concentrations of damage that might 

warrant Federal assistance even if 

the statewide per capita indicator is 

not met. This is particularly true 

where critical facilities are involved 

or where the cost of restoring 

damaged infrastructure in a 

localized area is extremely high. 
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FEMA Damage Assessment Operations Manual 43

Hazard Mitigation

In order to recognize and encourage mitigation, FEMA considers the extent to which in-place 

hazard mitigation projects undertaken by State or Tribal Government and/or local governments 

contributed to the reduction of disaster damage for the disaster under consideration. This is 

discussed in 44 CFR § 206.48 (a)(4).

For example, if a State or Tribal Government can demonstrate in its disaster request that a 

statewide building code or other mitigation measure is likely to have reduced the cost of 

repairing damage from a particular disaster, this will be considered in the evaluation of the 

request. Impact statements developed to illustrate the positive impact that in-place mitigations 

measures have had may be significant in those disasters where, because of mitigation, the 

estimated cost of assistance falls below per capita indicators.

To help quickly capture this information as part of the damage assessment process, States or 

Tribal Governments and local jurisdictions are encouraged to maintain awareness of mitigation 

measures taken. This information should be provided to the FEMA damage assessment lead at 

the time of the Joint PDA and included in the Governor’s or Chief Executive’s request for 

Federal assistance.

Recent Multiple Disasters

Recent disasters can have a dramatic impact on a State or Tribal Government or jurisdiction’s 

ability to recover. For this reason, FEMA considers any disasters that have occurred in the 

jurisdiction within the last 12 months. This is discussed in 44 CFR § 206.48 (a)(5).

FEMA considers Stafford Act declarations as well as declarations made by the Governor or the 

Chief Executive of a Tribal Government and the extent to which the State or Tribal Government

has spent its own funds to support recovery.

States or Tribal Governments are encouraged to include information related to the prior disasters, 

including the counties or tribal jurisdictions designated in the declaration and specific expenses 

incurred by the State or Tribal Government, in their request for Federal assistance. While not 

required, additional information related to the ability of the State or Tribal Government to 

provide support following the disaster being assessed (e.g. the status of State or Tribal 

Government assistance programs) can provide further support for narrative statements made in 

requests for assistance. 
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FEMA Damage Assessment Operations Manual 44

Evaluating Damage and Impact for FEMA

Individual Assistance Programs

This section is intended to promote efficient coordinated damage assessments by outlining the 

specific information that is used to evaluate the need for the FEMA IA programs. By 

incorporating the standards described in this section, emergency managers can obtain better 

information faster, expedite aggregation and analysis, and increase the confidence of senior 

leadership at every level.

Evaluating and Documenting Damage to Homes

To evaluate damage to homes, FEMA has identified several elements of information that should 

be collected during damage assessment including: 

 Cause of damage

 Jurisdictions impacted and concentration of damage

 Types of homes

 Homeownership rate of impacted homes

 Percentage of affected households with insurance coverage appropriate to the peril

 Number of homes impacted and degree of damage

 Inaccessible communities

 Special Flood Hazard Areas, sanctioned communities, Coastal Barrier Resource 

System zones and other protected areas

 Primary or secondary residence

 Other relevant PDA data, such as income levels, poverty, trauma, and special needs

Understanding these factors and obtaining accurate and timely standardized information to 

inform decision-makers is critical to delivering appropriate assistance to impacted individuals 

and households. As the majority of the information required to assess impacted residents is 

available only at the local level, it is paramount that local emergency management practitioners 

understand the information required by decision-makers and work to develop systems and 

assessment teams capable of collecting standardized information quickly following a disaster. To 

support this activity, this section will provide an overview of the key factors used by FEMA to 

evaluate damage to residences.

Cause of Damage

The cause of damage is a foundational element of information that is used throughout the 

assessment process. Specific causes of damage may also be useful in determining if impacted 

residences are insured for the peril.
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FEMA Damage Assessment Operations Manual 45

Causes of damage include:

 Earthquake

 Fire

 Flooding (include mudslide)

 Hurricane or Typhoon

 Landslide

 Severe storms

 Sewer back-up

 Utility outages and impacts

 Straight-line winds/Derecho 

 Tornado

 Tsunami

 Terrorism

 Volcanic Eruption

Jurisdictions Impacted and Concentration of Damage

Capturing and mapping location information generally (e.g. jurisdictions impacted) and 

specifically (e.g. physical address of a damaged dwelling) can show the magnitude of the event 

and identify areas of concentrated damage. (Reference-“Use of the USNG” FEMA Directive 

092-5). Collecting physical addresses of damaged homes according to the standardized degrees 

of damage (affected, minor, major, and destroyed) described below, along with the category for 

inaccessible homes, allows practitioners and senior officials to better understand the severity and 

magnitude of the event. Collecting this information prior to the Joint PDA will reduce the time 

required to verify and validate damage.

General location information can be used to show the severity and magnitude of the disaster. 

Widespread or statewide disasters can have an impact on the ability of the State or Tribal 

Government to provide assistance given the number of homes potentially impacted, while 

concentrated areas of damage may have a greater impact on a community’s ability to recover 

without assistance.

More specific location information is helpful in organizing efforts to verify and validate 

information, and analyze the impact of the disaster. To support standard reporting information, 

locals should collect this information on the Street Sheet (Appendix H), or similar form used by 

local, State and Tribal Government for the same purpose.

Types of Homes

When identifying damaged structures, assessment teams should note whether the structure is a 

single family residence, a multi-family residence or a manufactured home.

 Single family residence: Any residence designed to accommodate a single family that is 

built using conventional building methods. This includes modular homes factory-built to 

uniform construction code standards and assembled on site.

 Multi-Family residence: Any residence designed to accommodate more than one family 

that is built using conventional building methods. Each unit should have a separate entrance, 

bathroom, kitchen, and living area. This may include duplexes, condominiums, and 

apartment buildings.

 Manufactured homes: a structure, transportable in one or more sections, which in the 

traveling mode is 8 body feet or more in width or 40 body feet or more in length or which when 
Evaluating Damage and Impact for FEMA Individual Assistance Program

FEMA Damage Assessment Operations Manual 46

erected on-site is 320 or more square feet, and which is built on a permanent chassis and 

designed to be used as a dwelling with or without a permanent foundation when connected to 

the required utilities, and includes the plumbing, heating, air-conditioning, and electrical systems 

contained in the structure. (24 CFR 3280.2 and 24 CFR 3285.5)

Information should be provided on the common types of construction in the impacted area, such 

as slab on grade, basements, and the number of manufactured home parks impacted. This 

information can be helpful in illustrating the length of time that may be necessary for repairs and 

potential impacts on the community.

Homeownership Rates of Impacted Homes

The ownership and occupancy status for impacted residences are important as factors in 

estimating the cost of potential FEMA assistance to the community. Under the Individuals and 

Households Program (IHP), only a homeowner’s primary residence is eligible for home repair 

and personal property assistance, while renters may be eligible for temporary rental assistance 

and Other Needs Assistance (ONA). FEMA does not provide assistance for damage to 

secondary residences and outbuildings. The information collected to inform decision-making

includes:

Ownership Status

 Owner

 Renter

Occupancy Status

 Primary residence: A permanent residence that is occupied more than six months out of 

the year.

 Secondary residence: A vacation home, home under construction, or home occupied less 

than six months out of the year. Not considered/assessed during damage assessments.

 Vacant property: Not considered/assessed during damage assessments.

FEMA uses U.S. Census Bureau information to estimate demographic, income, homeownership, 

occupancy, and insurance trends and identify areas of potential greater need. If local, State, or 

Tribal Governments would like FEMA to consider more localized or more recently updated 

information, that information should be provided to FEMA before the conclusion of the Joint 

PDA. If current data does not exist or does not appear to be correct, Joint PDA assessment teams 

may be used to collect or verify critical elements of information from residents or other 

knowledgeable local sources.
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Percentage of Impacted Households with Insurance Coverage Appropriate to the 

Peril

FEMA assistance cannot duplicate assistance available through insurance. In order to estimate 

the level of applicable insurance coverage, the State should provide, and FEMA will utilize the 

best available information.

State Insurance Commissions, recent U.S. Census data, local officials, and impacted residents 

themselves can be useful in determining whether an impacted area or group of homes are 

insured. When damage may be covered under the NFIP FEMA will coordinate with program 

administrators within the Flood Insurance and Mitigation Administration when evaluating the 

number of insured homes. FEMA may be able to provide information on the number of 

households located in a special flood hazard area (SFHA) that have a flood insurance 

requirement from a previous disaster.

Disaster survivors in a SFHA that have previously received assistance and have not maintained

their required flood insurance are ineligible for flood insurable real and personal property 

assistance from FEMA in future flooding disasters, except for non-insurable losses such as 

private bridges, wells, septic, etc. Additionally, if flooding has impacted homes in a community 

that does not participate in the NFIP, FEMA is prohibited from providing assistance to residents 

in the identified floodplain for damage that would have otherwise been available through the 

program. FEMA will coordinate with States or Tribal Governments to identify and communicate 

the status of non-participating communities at the outset of the damage assessment process.

Generally, insurance that may cover disaster related perils include:

 Homeowners insurance

 Condominium insurance

 Insurance for manufactured homes

 Flood insurance

 Renters insurance

 Sewer back-up rider

 Earthquake rider

 Landside rider

 Subsidence rider

 Tornado rider

 Structural only insurance 

 Fire only insurance
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FEMA Damage Assessment Operations Manual 48

It is important to note that FEMA may assist with some items not covered under many of these 

policies and riders, such as damaged septic systems. A discussion of the disaster type and the 

types of damage covered by various insurance policies should occur with assessment teams prior 

to conducting field assessments. This will help assessment team members to more confidently 

and consistently identify residences that are insured for the peril and increase the quality of 

information provided to decision-makers. The IA Insurance Matrix in the Appendix F may be 

useful in explaining assistance available through various insurance policies and riders. 

When insurance data is available, it generally will only be available on whether a residence is 

insured. If a potential underinsured population is present, then information on that population 

may be included in narrative Impact Statements. An example of an underinsured population may 

be homeowners impacted by an earthquake who have high deductibles. Additionally, in areas 

where property values have increased over time, longtime residents may not have purchased 

additional coverage and are more likely to be underinsured. Depending on the level of damage 

and amount of the insurance award, some of these disaster survivors may be eligible for FEMA’s 

IHP assistance.

Example Impact Statement - Homeownership:

While statistical information provided by the United States Census Bureau indicates that 

homeownership for Washington County is less than 40 percent, the homeownership rate 

in the area along the Washington River impacted by recent flooding is much higher. 

Local emergency management has stated that many of these residents have lived in the 

homes for multiple generations, and may be uninsured or underinsured since they do not 

have a mortgage requirement for maintaining insurance on the property. Based upon 

this input, it is estimated that insurance coverage for the affected homes is 

approximately 25%. As homeowners without insurance, there is likely to be high 

eligibility rate for FEMA’s IHP in this county. Additionally, the local emergency 

manager stated that up to 10% of the impacted homes along the Washington River in 

this county are not primary residences and are used by residents that spend more than 

half their year in other parts of the county. These residents are unlikely to be eligible for 

FEMA assistance. 
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FEMA Damage Assessment Operations Manual 49

Number of Homes Impacted and Degree of Damage

In order to standardize damage assessment vocabulary, FEMA has established four categories to 

describe damage to homes; Destroyed, Major, Minor, and Affected with an Inaccessible category 

for the homes that cannot be reached for assessment. When assigning damage levels, it is 

important to recognize that FEMA assistance is not intended to restore damaged property to its 

pre-disaster condition but rather to provide survivors with a safe, sanitary and functional 

dwelling from which they can continue their recovery. The damage categories defined below 

closely correlate to assistance available through FEMA’s IHP. They are not intended to align 

with other types of local assessments such 

as red or yellow tagging of damaged 

homes. FEMA’s damage levels and 

criteria should be used for all damage 

assessment information reported to FEMA 

and should be assigned to residences 

independently of other assessments that 

may be necessary at the local or State or 

Tribal level.

All determinations should be based on viewed damage and focus only on disaster-related 

damage. Damage not caused by the disaster event should not be included when determining the 

level of damage, as it is not eligible for assistance through the FEMA’s IHP. For multi-family 

buildings such as apartment buildings, only report visible damage. For example, do not assume 

all units in a building are damaged if the roof is missing over only a few units.

Unlike an insurance company, the purpose of the PDA is not to document all damage. Surveys 

conducted to assess damage to individual homes should be conducted quickly and focus on 

collecting the observable information necessary to assign a damage level Teams should not 

become preoccupied with property value, individual items of personal property, or with assessing 

damage to outbuildings, fences, unattached garages, recreation rooms, or other non-essential 

areas of the home. These items will not influence the damage level. However, narrative 

statements submitted in the declaration request may include examples of these types of damage 

to illustrate the severity and magnitude of the disaster. Narrative statements should include other 

variables that may further impact the homeowner’s recovery, such as how long the water stayed 

in the home, the materials used to build the home, and the presence of contaminants in flood 

water (fuel oil, sewage, debris, etc.) if they present a health or safety hazard that renders the 

home uninhabitable. However, these variables should not influence the assigned damage levels.

Photographs taken by damage assessment teams can be very useful to FEMA in verifying 

damage determinations. Assessment teams are encouraged to photograph damage that was used 

to assign damage levels (e.g. close ups of waterlines on residences as opposed to landscapes 

taken from the street). Local, State and Tribal Government damage assessment teams are 

encouraged to photograph homes evaluated as major or destroyed, as in most circumstances 

Surveys conducted to assess damage 

to individual homes should be 

conducted quickly and focus on 

collecting the observable 

information necessary to assign a 

final damage level
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FEMA Damage Assessment Operations Manual 50

FEMA staff will be required to take photographs of damaged or destroyed dwellings.

Inaccessible: Conventionally built structures and manufactured homes 

This group includes homes that are inaccessible by reasonable means, due to disaster-related loss 

of access (e.g. bridge out, road flooded or blocked by landslide, mudslide, severe erosion, 

washed out, etc.). If the homes can safely be reached by another route, they should not be 

considered inaccessible. Typically, inaccessible is used to denote homes that cannot be accessed 

or viewed at the time of the assessment. If the damage is viewable, it is preferable to assign the 

appropriate damage category. Individual apartment units that are not habitable due to damage to 

lower floors should also be included in the assessment. 

Basement Damage Assessment Methods- For the purpose of recording flood or sewer back up 

damage, a finished basement is defined as one which contains any of the following essential 

rooms: Occupied bedrooms, bathrooms, kitchen and/or living room. During the assessment 

process, the level of damage will be recorded using the same depth of water level measurements 

shown for flood assessment contained within Major and Minor. Recreational and other common 

areas of the basement are non-essential living space, and assessments and damage should be 

evaluated as though the basement is unfinished.

Homes located on the flooded road are 

generally counted as inaccessible. For 

those residences that have damage that 

can be clearly viewed from a safe 

vantage point, a damage level should 

also be assigned.
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FEMA Damage Assessment Operations Manual 51

Destroyed: Conventionally built structures

NOTE: One photo per dwelling is requested in this category.

The residence is a total loss, or damaged to such an extent that repair is not feasible.

Any of the following factors may constitute a status of destroyed:

 Complete failure of two or more major structural components - e.g. collapse of basement 

walls, foundation, load-bearing walls, or roof 

 Only foundation remains 

 A residence that is in imminent threat of collapse because of disaster-related damage or 

confirmed imminent danger - e.g. impending landslides, mudslides, or sinkholes. 

The foundation and two or more walls 

of this residence have failed.

This residence has collapsed.

The roof and walls of this home have been 

compromised and it is off its foundation. 
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FEMA Damage Assessment Operations Manual 52

Major: Conventionally built structures

NOTE: One photo per dwelling is requested in this category.

A residence may be categorized as having major damage when it has sustained significant 

structural damage and requires extensive repairs. Some examples of major damage include:

 Failure or partial failure to structural elements of the roof to include rafters, ceiling joists, 

ridge boards, etc.

 Failure or partial failure to structural elements of the walls to include framing, sheathing, 

etc.

 Failure or partial failure to foundation to include crumbling, bulging, collapsing, 

horizontal cracks of more than two inches, and shifting of the residence on the foundation 

of more than six inches 

 Residences with a water line 18 inches above the floor in an essential living space, a 

water line above the electrical outlets, or a water line on the first floor when basement is 

completely full

The visible water line on the 

residence is higher than 18 

inches on the first floor. 

Based on this view, at least 12 

units should be classified as 

having major damage. All 

units in an apartment building 

will not necessarily have the 

same damage level.
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FEMA Damage Assessment Operations Manual 53

Minor: Conventionally built structures

Minor damage encompasses a wide range of damage that does not affect the structural integrity 

of the residence. Some examples of minor damage include: 

 Nonstructural damage to roof components over essential living space to include large 

areas of shingles e.g. roof covering, fascia board, soffit, flashing, and skylight 

 Non structural damage to the interior wall components to include drywall, insulation; 

exterior components to include house wrap, missing doors, broken window framings; or 

substantial loss of exterior covering, such as missing siding, vinyl, stucco, etc. 

 Multiple small vertical cracks in the foundation

 Damage to chimney to include, tilting, fallen, cracks, or separated from the residence 

 Damage to or submersion of mechanical components, e.g. furnace, boiler, water heater, 

HVAC, electrical panel, pressure tanks or well pressure switch, etc.

 Water line less than 18 inches in an essential living space

 Damage or disaster related contamination to a private well or septic system

This residence has 

nonstructural damage to the 

roof and broken windows. 

The roof on this residence has 

been tarp covered after it lost 

some shingles.
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FEMA Damage Assessment Operations Manual 54

Affected: Conventionally built structures

This category includes residences with minimal damage to the exterior of the home and nonessential basements. Residents can remain in the structure. Some examples of affected damage 

include: 

 Partial missing shingles or siding (non-continuous/sporadic), home kept roof structure 

intact

 Cosmetic damage such as paint discoloration or loose siding 

 Broken screens 

 Gutter damage and debris

 Damage to an attached structure such as a porch, carport, garage, or outbuilding not for 

commercial use

 Damage to landscaping, retaining walls, or downed trees that do not affect access to the 

residence or has not collapse into residence 

 Any water line in the crawl space or basement when essential living space or mechanical 

components are not damaged or submerged

Damage to this soffit 

represents nonstructural 

damage to the roof. 

Only an outbuilding has 

sustained damage.

The residence has gutter and 

roof damage. The tree does not 

impact the damage level of the 

home. 
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FEMA Damage Assessment Operations Manual 55

Destroyed: Manufactured home 

NOTE: One photo per dwelling is requested in this category. 

The residence is a total loss. Any one of the following factors may constitute a status of 

destroyed regardless of the cause of damage due by disaster: 

 The residence's frame is bent, twisted, or otherwise compromised 

 The residence is missing the roof covering and the structural ribbing has collapsed for the 

majority of the roof system

This manufactured home is 

missing the roof covering, and 

at least one wall has been 

compromised. 

The frame of the manufactured

home has been bent. 

The manufactured home is 

missing the roof and at least 

two walls.
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FEMA Damage Assessment Operations Manual 56

Major: Manufactured home 

NOTE: One photo per dwelling is requested in this category

The residence has sustained structural or significant damage that requires extensive repairs. 

Any one of the following may constitute major damage: 

 The residence has been displaced from the foundation, block or piers, and other structural 

components have been damaged

 Water has come into contact with the floor system to include belly board insulation, 

ductwork, and subflooring 

Visible water line above the 

floor system.

Although much of the roof is 

missing, the structural ribbing 

of the roof system is still 

intact.
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FEMA Damage Assessment Operations Manual 57

Minor: Manufactured home 

The residence is damaged and requires minimal repairs. Some of the items that determine minor 

damage are listed below:

 There is no structural damage to the residence and it has not been displaced from the 

foundation 

 Nonstructural components have sustained damage - e.g. windows, doors, wall coverings, 

roof, bottom board insulation, ductwork, and/or utility hook up 

 Water line is below the floor system 

 HVAC interior mechanical unit is impacted

A portion of the roof has been 

damaged.

Nonstructural components of 

one wall have sustained 

damage.

The visible water line is below 

the floor system. 
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FEMA Damage Assessment Operations Manual 58

Affected: Manufactured home 

This category includes residences with cosmetic damage only. It also applies to residences with 

damage to a porch, carport, garage, and/or an outbuilding. 

The only damage missing the 

skirting. 

There is no visible water line 

and only skirting is missing or 

bent. 
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FEMA Damage Assessment Operations Manual 59

Estimated Cost of Assistance

In order to estimate the cost of the disaster and the State or Tribal Government cost share for 

FEMA Other Needs Assistance (ONA), if the incident were to be declared, FEMA will calculate 

a probable assistance cost estimate at the conclusion of the Joint IA PDA. This estimated cost of 

the disaster is based on the uninsured damage to homes collected during the PDA and includes 

the following:

 Historic program costs for repair or replacement assistance for uninsured owner occupied 

primary residences for each of the four dwellings assessment levels -affected, minor, 

major, destroyed

 Cost of providing temporary housing assistance based on the U.S. Department of 

Housing and Urban Development (HUD) fair market rent for the area of impacted owners 

and renters for each of the four dwelling assessment levels - affected, minor, major, 

destroyed and for inaccessible areas

 Historic program costs for ONA awards

Red Cross Damage or Disaster Assessment (DA) Information

The American Red Cross (ARC) conducts Damage Assessments to proactively assess what is 

required to deliver the organization’s assistance program and estimated cost. While the criteria 

and methods used by the ARC in conducting these Damage Assessments are tailored to their 

programs, they generally align to the criteria used by FEMA (described in this manual), the 

information collected by the ARC can help emergency managers to develop an early 

understanding of the damage impact.

Emergency managers should coordinate with ARC Government or Tribal Liaisons to gather 

information similar to chart below to develop awareness and potentially identify areas where 

local damage assessments are needed.

Red Cross Disaster Assessment information by county:

Jurisdiction Destroyed Major Minor Affected County Total

TBD TBD TBD TBD TBD TBD

Note: Financial information related to assistance provided by nongovernmental organizations 

including the estimated cost of the operation may be sensitive and is not required for damage 

assessments.
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FEMA Damage Assessment Operations Manual 60

Information Collected to Document Impact

The impact of disasters and the ability of the State or Tribal Government and affected 

jurisdictions to support recovery can vary greatly and cannot often be illustrated solely by the 

number of destroyed homes. For this reason, a variety of disaster related information should be 

collected to lend substance context to requests for Stafford Act assistance. This information, 

provided by emergency managers and nongovernmental organizations or through the use of 

existing databases, should illustrate the 

overall impact the disaster has had, and 

underscore how the unique resources of the 

Federal Government are required to support 

disaster survivors. This information will 

develop over time, but emergency managers

are encouraged to begin collecting it early on 

in the process to ensure it is available to be 

included in the request for assistance. To 

support the identification of information that may be used to develop these impact statements, 

and to illustrate how it can be used to lend context to other information included in the 

declaration request, examples have been provided throughout this section. 

There is no established threshold or indicator associated with FEMA IA; however, factors 

considered when evaluating the need for the IA program are discussed in the 44 CFR. Among 

these factors are five areas that should be taken into account as local, States or Tribal 

Governments are describing the impact of a disaster:

1. Concentration of damage 

2. Trauma (deaths and injuries, disruption of normal community functions, emergency 

needs, etc.)

3. Impact on populations with greater need 

4. Ability of local, State or Tribal Government, and voluntary organization programs to 

address needs 

5. Uninsured/underinsured home and personal property losses

This section will examine each factor and discuss the kind of information that can be used to 

illustrate damage and impact. As information used to illustrate impact may come from a variety 

of sources, emergency managers are encouraged to coordinate with governmental and 

nongovernmental service providers prior to a disaster to discuss how they can support damage 

assessment efforts with reports or specific information. 

Concentration of Damage

The concentration of damage to individuals is considered when evaluating requests for the 

FEMA IA program. High concentrations of damage may indicate a greater need for Federal 

Narrative Impact Statements should 

illustrate the overall impact that the 

disaster has had and underscore how 

the unique resources of the Federal 

Government are required to support 

disaster survivors.
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FEMA Damage Assessment Operations Manual 61

assistance in some areas. However, FEMA also recognizes that widespread damage throughout 

much of a State may be more difficult for the State to respond to. 

Trauma

Generally, trauma considered when evaluating requests for the FEMA IA program includes 

deaths and injuries, disruptions to normal community functions, and extended power or utility 

outages. As trauma is discussed, preparers are encouraged to consider the ability of IA program 

components to address the need. Incorporate these findings in your impact statement. 

Disaster Related Deaths and Injuries

The number of individuals who are missing, injured, or deceased due to a disaster may indicate 

higher levels of trauma and underscore the need for supplemental Federal disaster assistance 

such as crisis counseling. States or Tribal Governments are encouraged to capture and report 

disaster-related fatalities and injuries and include them in impact statements developed for the 

declaration request.

Disruption of Normal Community Functions

Disasters can have dramatic impact on infrastructure that supports normal community functions. 

State or Tribal Governments and local jurisdictions are encouraged to outline how damaged or 

destroyed infrastructure has impacted commerce, disrupted normal life in the community, and/or 

will complicate the recovery of individuals that depended on access. The following types of 

impacts to a community’s infrastructure may adversely affect a population’s ability to reside 

within the community and should be considered when preparing narrative impact statements 

included in the declaration request for Federal assistance.

 Loss of roads or bridges that serve as the sole/primary transportation route in a 

community 

 Impact to water or sanitary treatment facilities

 Impact to schools, government offices, and other important public infrastructure 

Example statement on concentration:

The concentration of damage in Adams county (100 destroyed, 75 major, 200 minor, and 

300 affected) will have a dramatic impact on recovery, as the number of people requiring 

assistance will easily overwhelm the existing support network in the area. Federal 

assistance provided through FEMA’s IA program would reduce the local burden and 

concerns related to the future stability of the community. 
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FEMA Damage Assessment Operations Manual 62

 Impact to public transportation, including busses, rail, and accessible transportation 

services

 Impact to supply of power and water to residential homes 

Transportation infrastructure or utility disruptions may render housing uninhabitable or 

inaccessible. Such conditions may affect the delivery of life sustaining commodities, provision of 

emergency services, ability to shelter in place, and efforts to rebuild. The local, State or Tribal 

Government may provide information regarding the impact on transportation infrastructure and 

utilities of a period greater than 72 hours. Examples include closed roads and bridges, impacts to 

public transportation such as a bus system, and extended utility outages. To the extent known, 

information should be provided on the length of time for critical infrastructure and utilities to be 

restored.

Impact to populations with greater need

The demographics of the disaster impacted population may be helpful in identifying areas of 

increased need that require a more robust response from the State or Tribal and Federal 

Government. This is important as disasters can disproportionately affect existing vulnerable 

populations and impact recovery. As part of the damage assessment process, FEMA and the 

State or Tribal Government should collect information related to and consider demographics of 

impacted communities. The following data points available from the U.S. and Tribal 

Government Census Bureau can be used by States or Tribal Governments to help illustrate 

impact: 

 The percentage of the population living under poverty thresholds 

 The percentage of the population already receiving government assistance such as 

Supplemental Security Income and Supplemental Nutrition Assistance Program Benefits

 The pre-disaster unemployment rate

 The percentage of the population that is 65 years and older 

 The percentage of the population 18 years and younger 

Example impact statement on disruption of community functions:

Damage to the State Rt. 5 Bridge in Polk County has impacted the daily commute of more 

than 2,500 residents and may have an aggravating effect on the local tourist economy as 

the community recovers. The County Engineer estimates that the bridge will take more 

than a year to repair. Assistance available through the FEMA IA program and the SBA 

disaster loan program can help to alleviate anticipated economic injury and its impact on 

rebuilding damaged homes. 
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FEMA Damage Assessment Operations Manual 63

 The percentage of the population with a disability 

 The percentage of the population who speak a language other than English and speak 

English less than “very well”

 Any unique considerations regarding American Indian and Alaskan Native tribal 

populations that may not be reflected in the U.S. Census Bureau data 

Local, State or Tribal Government

A variety of factors can affect the ability of even the most well-resourced local, State or Tribal 

Government to provide assistance following a disaster. Understanding this, State or Tribal 

Governments are encouraged to discuss available governmental and nongovernmental resources 

available to support recovery, and specifically discuss limiting factors that may impact the 

recovery of disaster survivors. This section will outline information that local, States or Tribal 

Governments generally use to show that current capabilities are not adequate to address disaster 

related needs without the support of the Federal Government. 

State or Tribal Government Disaster Assistance Programs

State and Tribal Governments have a responsibility to take care of their citizens. In furtherance 

of that responsibility, some States and Tribal Governments have developed assistance programs. 

These programs vary in the amount and type of assistance available, requirements, and funding 

sources. When a State or Tribal disaster assistance program may be available to support disaster 

related unmet needs, narrative statements should be included in the declaration request to outline 

the assistance that will be provided and how/if the program may be applied to address needs 

unmet by the FEMA IA programs. As an example, a State or Tribal Government program may 

have in place a self-funded assistance program, specifically related to disaster assistance or 

generally available for housing repair or other needs that could be utilized. 

Example impact statement regarding demographics:

US Census information shows that the population over 65 in northwestern Washington 

County is more than twice that of state and national averages. Given the high percentage of 

these residents living on fixed incomes, there is concern that the cost of recovery will have 

a serious and potentially life-long impact on homeowners if Federal assistance is not made 

available. 
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FEMA Damage Assessment Operations Manual 64

Assistance from Voluntary Organizations 

Voluntary, faith and community-based organizations will often provide support to disaster 

survivors following a disaster. Needs identified by voluntary organizations may be helpful in 

illustrating the scale and magnitude of the event, and limitations that impact their ability to 

address survivor needs may highlight the need for Stafford Act assistance. It is important to note 

that financial information related to assistance provided by NGOs including the overall cost of 

the operation may be sensitive and is not required for damage assessments. 

Emergency Sheltering Information – Information related to congregate and non-congregate 

(i.e. shelter with family, dorms, ships, tents) care sheltering operations can help to estimate the 

number of people displaced from their homes and serve as a key gauge that can be used to 

illustrate the scale and magnitude of the disaster. Activity related to emergency sheltering should 

be included in the declaration request for assistance, especially in cases when shelters are 

required for more than 72 hours and when displaced residents are unable to return to their homes 

due to damage sustained in the disaster. Information that can be helpful in developing these 

statements includes:

 Location of each shelter 

 Daily overnight population for each shelter

 Number of schools closed because facility is being used as a shelter

 Number of residents provided with hotel rooms as part of a sheltering program 

 Support provided by government and partners to assist with emergency sheltering 

 Assistance and services required to support people with access and functional needs in 

emergency shelters

 Location and population of shelters established to support household pets 

Information related to individual shelters described in the table below: 

Jurisdiction Shelter Name Shelter Location Date 

Opened

Date Closed Peak 

Population

Current 

population

TBD TBD TBD TBD TBD TBD TBD

Example impact statement regarding voluntary organization support:

The response of voluntary organizations to the feeding and sheltering needs of McHenry 

County has been robust, but there is concern that high profile disasters on the Gulf coast 

will have a negative impact on philanthropic giving and the availability of trained 

volunteers to support recovery. This will dramatically affect the ability of impacted lowincome homeowners to rebuild damaged homes without Federal disaster assistance. 
Evaluating Damage and Impact for FEMA Individual Assistance Program

FEMA Damage Assessment Operations Manual 65

Mass Care/Emergency Assistance-Feeding Operations Information – Can be helpful in 

illustrating the scale and scope of the disaster especially when government assistance is required 

or feeding operations are maintained for more than 72 hours. Information that can be used to 

describe activity and impact may include:

 Number and location of fixed feeding sites (by county)

 Number of vehicles providing mobile feeding 

 Jurisdictions being supported by mobile feeding

 Number of meals served

 Partners involved in feeding operations

Individual Client Assistance (Client Casework) Information – State social service agencies 

and disaster service organizations, like the ARC, will routinely open cases following a disaster to 

support the immediate needs of survivors. This information can be helpful in illustrating the 

disaster impact to survivors in a community, and can be used to illustrate the overall scale and 

magnitude of the disaster. Information that can be used to describe activity and impact may 

include:

 Agency or organization providing assistance

 Number of cases opened

 Number of clients served in cases

 Number of cases closed

 Number of health services contacts

 Number of mental health contacts

 Types of assistance requested

 Presence of resources to meet the needs of clients

 Number of cases expected to be referred for substantive repair or rebuild assistance

 Number of cases with unmet needs

Information Related to Distribution – (Distribution of Emergency Supplies) – The quantity 

and type of assistance provided through distribution can be helpful in illustrating the scale and 

magnitude of the disaster. This is especially true following disasters like urban basement 

flooding where damage assessment may be difficult, when distribution is used to address critical 

life-saving/sustaining needs (e.g. distribution of shelf-stable meals and water, or health related 

distribution), or when government assistance is necessary to support distribution of emergency 

supplies. Information that can be used to describe activity and impact may include:

 Distribution used to address a critical life-saving or sustaining need

 Durable medical equipment

 General categories of items (e.g. cleanup kits, shelf-stable meals, medicine, etc.)

 Government assistance required

 Jurisdictions served by distribution

 Trend line of the volumes of distributed items by type
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FEMA Damage Assessment Operations Manual 66

Information Referral Services – Information referral services like 2-1-1 and 3-1-1 are 

frequently used by people dependent on the social service network and may serve as a key source 

of information related to the needs of vulnerable populations. Increased call volume and the 

general type of services requested may also help to illustrate the scale and magnitude of the 

disaster and assist with identifying areas of unmet need. Information that can be used to describe 

activity and impact may include:

 Number of calls received following the disaster as compared to average steady-state call 

volume 

 Zip codes where calls were received from

 General types of assistance requested

 The presence or absence of a service provider to refer callers to for their categories of 

need
 Evaluating Damage and Impact for FEMA Individual Assistance Program 

FEMA Damage Assessment Operations Manual 67

Uninsured/Underinsured Home and Personal Property Losses

Discussed in much more detail in pages 45-60 above, capturing an accurate picture of the 

number of uninsured homes is critical to the damage assessment process. Large numbers of 

damaged uninsured homes or damaged homes without insurance applicable to the peril, may 

suggest a greater need for supplemental Federal assistance. Generally this information is 

developed in conjunction with State insurance commissions or through their avenues such as GIS 

or CENSUS information. 

To protect the personally identifiable information of impacted individuals and the proprietary 

information held by the insurance industry, insurance information is typically aggregated at the 

county, census block, or zip code level.

Other Relevant Impact Data

When the factors addressed in the 44 CFR do not fully capture the impact of a disaster, the State 

or Tribal Government requesting Stafford Act assistance may use other impact information that 

better describes the situation and the need for Federal assistance. Information regularly used by 

States and Tribal Government includes: 

 Evacuations - estimated duration

 Lack of building materials

 Contractor shortages

 Extreme weather conditions and seasonal shifts that may impact recovery

 The loss of low-cost or subsidized housing 

 Economic Impact created by displaced employees or damaged businesses 

 Disaster-Related Unemployment

 Cumulative Effect of Recent Disasters

Example impact statement regarding other relevant information:

Based on field assessments and self-reporting in Franklin County, it is estimated that 

nearly 25,000 furnaces have been damaged or destroyed. Given the short window of time 

available before the onset of winter (average low temperatures in October will dip below 

freezing), there is concern that residents will be able to make necessary repairs without 

Federal assistance. 
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FEMA Damage Assessment Operations Manual 68

Damage Assessment Methods

Efficient damage assessments require an understanding of the different methods that can be used 

to collect damage and impact information. While the information that is gathered to assess 

damage and evaluate the impact of a disaster is relatively simple and does not change, a one 

dimensional approach to collection may increase the time required to assess damage or limit the 

quality of information developed.

The assessment methods used will directly affect staffing and timeline requirements, so care 

should be taken to select methods that can most efficiently deliver information needed to make 

disaster declaration decisions. This requires emergency managers to employ methods that 

balance speed with quality, and to constantly consider information that can be used to verify or 

validate the ground-level information being obtained.

When evaluating what methods will be used to assess damage and impact, emergency managers

should consider the information and timeline requirements and options available. Often, a phased 

approach that leverages the utility of various methodologies will be used in order to quickly 

assess and then refine damage and impact information. For instance, an emergency manager may 

choose to use a phone bank or internet-based self-reporting system to collect initial IA damage 

information from residents before sending field assessment teams into the field to verify the 

information provided.

By outlining the different methods that can be used to assess damage and impact after a disaster 

and the factors that influence how and when these methods may be employed, this section will 

assist emergency managers in developing and implementing damage assessment strategies 

capable of efficiently delivering accurate damage and impact information to decision makers.

Factors That Influence Assessment Methods Used

Damage assessment methodology should adapt to information collection verification and 

validation requirements. Major factors that influence the methodology employed include incident 

type, program being evaluated, and assessment phase. 

Incident Types

Different types of incidents may require different approaches and timelines. While disasters like 

fires, tornadoes, and hurricanes often produce readily visible damage that can quickly be 

assessed using windshield assessments, fly-overs, or geospatial analysis, other disasters like 

basement flooding may require more time and resource intensive door-to-door assessments. 

Programmatic Requirements

PA and IA programmatic damage assessment requirements also influence how disaster damage 

is assessed. While information required to make damage determinations for the FEMA IA 

programs may be able to be gathered quickly with minimal contact with survivors, information 

and supporting documents needed to accurately assess damage and estimate cost for the FEMA 
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FEMA Damage Assessment Operations Manual 69

PA program will often require more in-depth site assessments and direct contact with potential 

applicants. This may limit the effectiveness of certain damage assessment methods or require 

that they be used in conjunction with others capable of gathering more granular information. 

Assessment Phase and Timeline Requirements

The assessment phase may influence the methods used to collect damage and impact 

information. This is easily understood when one considers that methods employed and the 

timeline required to identify and assess damage during the local assessment phase will differ 

from those used to validate the same during the Joint PDA. While the methods used may differ, 

emergency managers and assessment teams at every level should take into account the actions 

and information requirements of each phase when developing plans, training staff, and 

conducting damage assessments.

Typical Damage and Impact Assessment Methods 

Self-Reporting 

Self-reporting is primarily conducted at the local or county level to develop initial damage 

information and may use one or more intake systems including phone banks, web-based forms 

linked to existing local webpages, paper forms, and mobile applications. This method can be an 

extremely efficient way to gather initial damage information from survivors and potential 

applicants when damage is not easily seen, when a large number of impacted homes will 

challenge assessments, or when damage is extremely widespread. Initial damage information 

gathered through self-reporting methods will need to be verified by local assessment teams 

before final numbers are delivered to the State or Tribal Government. This assessment method 

requires forethought, effective communication, and the development of systems necessary to 

intake information, but may dramatically decrease the amount of time required to conduct initial 

damage assessments.

Benefit: Leverages community and potential applicants to rapidly conduct initial 

damage assessments and can be tailored to deliver more granular 

information

Drawback: Information will need to be confirmed and intake systems must be in place 

at the time of the disaster to be effective

PA damage reported by potential applicants to local or county emergency management officials 

will need to be confirmed before delivery to the State or Tribal Government. This will give 

emergency managers an opportunity to ensure that damage and cost are adequately captured and 

that supporting documents needed during State or Tribal Government and Federal verification 

and validation efforts are prepared.

Self-reporting IA methods are often employed by local or county emergency managers to 

quickly develop initial damage information. When aggregated, this information may be helpful 

in identifying areas of concentrated or heavy damage. Self-reporting systems should be designed 
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FEMA Damage Assessment Operations Manual 70

carefully so that the information is collected in a way that recognizes that users are not familiar 

with the standardized FEMA assessment criteria. Residents reporting damage are largely 

accurate about the information they provide, however, they will often state that they have “major 

damage” if given only the option of the four standard damage categories (Affected, Minor, 

Major, Destroyed). Therefore initial damage reports will need to be confirmed in some manner 

before being delivered to the State or Tribal Government. While it may not be feasible to 

confirm all reported damage information, local assessment teams should confirm damage to 

homes categorized as Major or Destroyed and sample homes categorized as Minor and Affected 

to ensure accuracy. Assessment teams confirming damage should take photographs of damage 

used to assess a home as Major or Destroyed to reduce the time required to verify and/or validate 

information.

Fly-Over

Fly-over surveys are an efficient way to assess damage and are used to collect information when 

damage is visible from the air, when rapid assessments are required, and/or when damage is

remote or not easily accessed. Because this assessment method may reduce the quality of 

information collected, it is generally associated with disasters where damage is obvious and for 

initial assessments where information will be confirmed with ground-level assessments.

Benefit: Allows rapid assessment of damage

Drawback: Damage must be easily observable from the air and the quality of 

information may not be adequate to make IA damage assessments or

estimate the cost of PA projects without follow-up 

Because PA damage assessments require a considerable amount of site-level information, flyover surveys may only be appropriate for specific categories of work where damage information 

and cost estimates can be developed from the air. More commonly, information developed from 

the air is combined with site-level information. Assessment teams conducting fly-overs should 

take photographs of infrastructure damage to leverage verification and validation efforts. 

Fly-over surveys may be used to collect IA damage information when damage is visible from the 

air. Typically, damaged homes are counted in clusters (e.g. a cluster may equal 5 to 100 homes 

depending on the magnitude of the disaster, speed of the flight, and the density of the dwellings). 

It is strongly suggested that some “on the ground verification” be done to confirm damage

reported during the fly-over and to collect anecdotal information related to insurance coverage, 

occupancy type (owner or renter), and other significant information to support census 

information collected to develop impact statements. Assessment teams conducting fly-over 

surveys should take photographs of damage clusters containing homes assessed as Major or 

Destroyed to reduce the time required to verify and/or validate information.

Windshield Surveys

Windshield surveys are an efficient way to assess damage from a vehicle and are used to collect 
Damage Assessment Methods

FEMA Damage Assessment Operations Manual 71

field-level information when damage is visible from the road. This assessment method can be 

used to quickly assess, and validate damage but may reduce the quality of information collected 

for certain types of incidents and PA categories of work. 

Benefit: Efficient field-level assessment method

Drawback: Damage must be easily observable 

Because PA damage assessments require a considerable amount of site-level information, 

windshield surveys may only be appropriate for specific categories of work where damage 

information and cost estimates can be developed from a vehicle. Local PA assessment teams 

conducting windshield surveys should take photographs of damage to reduce the time required to 

verify and validate information. In this case, windshield assessments can leverage other 

assessment methods (e.g. site assessments) to more efficiently develop required information. 

Windshield surveys are often used during IA damage assessment to assess, verify, and validate 

damage. Assessment teams will record observed damage while driving through impacted areas, 

periodically stopping to conduct interviews to provide anecdotal evidence related to insurance 

coverage, occupancy type (owner or renter), and other significant information to support census 

information collected to develop impact statements. Assessment teams conducting windshield 

surveys should take photographs of damage used to document a home as Major or Destroyed to 

reduce the time required to verify and/or validate information. This process is repeated street-bystreet for the team’s assigned area.

Door-To-Door and Site Assessments

Door-to-door and site assessments are regularly used to collect field-level information needed to 

assess damage for the IA and PA programs. This assessment method is labor intensive but highly 

accurate and is generally used when damage is less visible or when a higher degree of confidence 

in the information is required. 

Benefit: highly accurate

Drawback: time and labor intensive 

Because PA damage assessments require a considerable amount of site-level information, Local 

PA damage assessment teams will almost always need to conduct site assessments. The teams 

conducting site assessments should take photographs of damage to support restoration work and 

cost estimates and reduce the time required to verify and validate information. If the information, 

photographs, and supporting documentation developed during these local assessments is 

adequate to remotely verify and validate damage, program requirements, and cost, local, State or 

Tribal Government and Federal teams may only be required to conduct site assessments for large 

projects (adjusted annually) and/or projects that have environmental or historic significance.

IA damage assessment teams will often use door-to-door assessments during appeal PDAs or 

when damage cannot otherwise be assessed, verified, or validated due to the type of damage. 

Assessment teams conducting door-to-door assessments should take photographs of damage used 
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FEMA Damage Assessment Operations Manual 72

to assess a home as Major or Destroyed to reduce the time required to verify and/or validate 

information. It is important to note that assessment teams are not required to enter the home 

during door-to-door assessments – typically information needed to make a damage determination 

can be gained from the occupant or viewed from outside the home. Teams should only enter 

damaged dwellings as a last resort, and should do so only with the permission of the occupant 

and after safety-considerations are evaluated by the team.

Geospatial Analysis and Geographic Information Systems 

Geospatial analysis and Geographic Information Systems (GIS) play important roles throughout 

the damage assessment process. Geospatial analysis uses existing and post event satellite or flyover imagery and data to assess damage and is typically used to expedite damage assessments 

when more traditional methods will unnecessarily protract the time required to assess damage. 

GIS can be used throughout the process to describe damage, perform analysis, and illustrate 

impact. These tools can greatly improve the efficiency and effectiveness of damage assessments; 

however, the capacity must be developed prior to a disaster. 

Benefit: Allows rapid assessment of damage and enhances analysis

Drawback: GIS capabilities vary by State or Tribal Government and jurisdiction and 

Federal resources are often required for geospatial analysis. It can be 

difficult to discern specific damage details from GIS imagery.

GIS datasets can be a great asset during both IA and PA damage assessments, giving emergency 

managers the ability to analyze damage against information available from other sources (e.g. 

critical infrastructure networks, hazards, demographic information, and historic damage). 

Geospatial analysis provides a tremendous asset that can be used to quickly identify and assess 

damaged homes and infrastructure in the wake of a disaster. These resources will be discussed 

further in the Integration of Geospatial Analysis and Technology section. Additional information 

is available in FEMA publication 9321.1-PR Remote Sensing in Federal Disaster Operations for 

procedures. 

Modeling 

Predictive modeling can be used in a variety of ways to estimate probable damage. These 

products are produced by a number of universities, private sector firms, and Federal agencies 

including US Geological Survey, National Oceanic and Atmospheric Administration, National 

Hurricane Center, National Weather Service, USACE, and FEMA. Predictive modeling can be 

used to get an approximation of the extent and location of damage in large events. While damage 

will need to be confirmed in most cases, modeling may be helpful in identifying areas of 

probable damage.

Benefit: Allows rapid identification of probable damage areas 

Drawback: Federal resources are often required to develop models and damage will 

need to be confirmed through ground-level assessments in most cases
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FEMA Damage Assessment Operations Manual 73

Predictive modeling can be used to rapidly predict damage that is likely to be or likely to have

been caused by a disaster and can be used to leverage resources during both IA and PA damage 

assessments. Common modeling products used include hurricane prediction maps (wind speed, 

rainfall, and storm surge), earthquake shake maps, tornado track maps, and Hazards United 

States (HAZUS).
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FEMA Damage Assessment Operations Manual 74

Integration of Geospatial Analysis and 

Technology

Geospatial analysis and technology supports all phases of the damage assessment process and 

program implementation. Such analysis and other technical methods of gathering data related to 

disaster impacts can be used to augment damage assessment teams at all levels. Remote sensing 

data collection and analysis can be focused on areas with the most impact and visibly discernable 

damage, while ground teams could be directed to areas with lesser impacts that would require inperson assessments to make a damage determination. By using a combination of geospatial 

analysis and ground teams, more of the impacted area can be assessed at a faster rate than 

traditional ground team methods. In some instances the geospatial damage assessment may be 

capable of replacing ground assessment teams, especially in circumstances when damage 

assessments need to be conducted on a timeline that would not allow the use of traditional 

ground methods.

Geospatial analysis is an emerging tool within FEMA and the emergency management 

community and it is important for program decision-makers to have an understanding of the 

opportunities and limitations to the analysis. The information provided in this section has been 

developed to illustrate opportunities and best practices in the use of geospatial technology and 

how it can be used to support damage assessments.

Geospatial Analysis and Technology Overview

Geospatial analysis may be used to identify damage and quickly determine the type of assistance 

needed to support the recovery of individuals and communities. The analysis process involves 

the evaluation of multiple sources of imagery, using geospatial models, and other remote sensing 

data to assess damage.

In order to accurately and consistently evaluate damage, FEMA has developed peril specific 

definitions for the geospatial analysis of damaged homes and infrastructure. These damage 

definitions have been developed and refined over time in collaboration with FEMA program 

experts, experienced geospatial analysts, and structural engineering specialists from multiple 

organizations.

FEMA relies on multiple internal and external sources to provide data and/or analysis to support 

the geospatial damage assessments. Representing agencies and organizations from across 

government and the private sector geospatial damage assessment partners include:

 State or Tribal Governments

 FEMA Geospatial Information Officer (GIO)/Regional Geospatial Staff

 FEMA Modeling Task Force (MOTF)

 National Geospatial-Intelligence Agency (NGA)

 U.S. Geological Survey (USGS)
Integration of Geospatial Analysis and Technology

FEMA Damage Assessment Operations Manual 75

 National Oceanic and Atmospheric Administration (NOAA)

 Private contractors.

Geospatial Damage Assessment Process

Before, during, or after an event, an Area of Interest (AOI) is determined by analyzing forecast 

models or event data such as a storm track, tornado track, USGS Shake maps and other products 

that can be compared to population density and demographic data. After coordination to ensure 

the AOI meets FEMA/Federal, State or Tribal Government, and local requirements, the AOI is 

defined by using the U.S. National Grid and submitted to a FEMA remote sensing collection 

entity. If there is more than one AOI, they are prioritized before being provided to the remote 

sensing collection entity. There are a variety of remote sensing options available for use during 

an event, descriptions of which can be found in the data discussion below.

Once the imagery has been collected, it needs to be evaluated by analysts with proven 

understanding of the geospatial damage assessment process. Analysts can include internal FEMA 

geospatial analysts, a private contractor/organization, or a Federal agency such as NGA. This 

data is then merged with impact data produced by such groups as the FEMA MOTF and OFA’s

(NOAA, USGS, etc.) resulting in a detailed, house-by-house assessment that can be used to

assess the need for the IA programs. This methodology can be equally applied to support 

geospatial damage assessments of roads, bridges, schools, hospitals and other public 

infrastructure used to assess the need for the PA) program. 

Partnerships between FEMA and local, State or Tribal Government counterparts are important 

for data and analysis sharing and the accurate efficient assessment of damage. Quality parcel and 

imagery information maintained by States, Tribal Governments, and local jurisdictions can 

dramatically shorten assessment timelines and improve the quality of analysis. Similarly, 

information maintained by FEMA may be helpful to States or Tribal Governments as they 

analyze the damage and impact of an event. When needed, FEMA can often provide geospatial 

specialists to State or Tribal Government following a disaster to assist with the aggregation and 

analysis of damage information provided by municipal and county emergency managers. 

Using Static and Event Data and Imagery

Data is the most significant variable in the geospatial damage assessment process. A highly 

accurate damage assessment begins with access to quality data from many different sources. 

Pre-event static data such as population density, demographic data, and property parcel 

information should be compared to post event information and imagery – damage to locations 

developed during ground-based damage assessments, hurricane path, tornado track, fire-lines, 

lava-flows, and other disaster related geospatial information. Static data must be analyzed along 

with event-specific data to determine the actual extent and severity of the disaster.
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FEMA Damage Assessment Operations Manual 76

Parcel data is incredibly valuable because it provides owner specific property information such 

as, commercial versus residential, primary versus secondary residential use, number of structures 

on the parcel and valuation.

Static Data

• Pre-event imagery (see below)

• Parcel/Structure Data

• LandScan/Census Population data

• Elevation (Digital Elevation Model)

• Zip codes (+ 4)

• Floodplain Data

• Environmental/Historical Event Data

• Critical Infrastructure/Key Resources

• National Flood Insurance Program 

(NFIP) Data

• Census/Demographic Data

Event Data

• Damage infrastructure or home 

locations

• Post event imagery (see below)

• High Water Lines or Flood Depth

• Property damage from aerial analysis

• Storm Track

• Shake Map (USGS)

• Sea, Lake, and Overland Surges 

from Hurricanes (SLOSH) Models

• HAZUS Data (economic loss 

impacts)

• Stream/River Gauge Data

• Depth Grids for flooding

• Precipitation Forecasts/Observations

• Road Closure/Infrastructure Status 

Data

• Utility/Power Outage Data
Integration of Geospatial Analysis and Technology 

FEMA Damage Assessment Operations Manual 77

Geospatial Imagery 

Remote sensing imagery helps analysts determine the extent of damage to homes and 

infrastructure. Imagery can fall into both the static and event category based on when it is 

captured. The following is a list of imagery data sources used to support analysis in which 

geospatial analysts will determine and request the most appropriate source based on the event 

and availability of the data:

 High Resolution Orthorectified Satellite Imagery (20 inch or 0.41 meter pixel resolution 

if possible) 

 High Resolution Orthorectified Airborne Imagery (10 inch pixel resolution or better). 

This imagery should be acquired at an overhead/nadir angle. For best results, 6 inch 

oblique imagery should be acquired. 

 Synthetic Aperture Radar (SAR) or Light Detection and Ranging (LiDAR) sensors: Used 

for mapping flooding extents and change detection on land. 

 Civil Air Patrol (CAP) Photos: Geo-tagged photos collected through mission assignment 

that are most often simple airborne collected images that are not Orthorectified, and can 

also include ground collected photos. 

 Traditional Media: Photos or news footage can be geo-located in order to determine 

locations of damaged houses.

 Social Media: Geo-tagged photos or videos posted to social media sites such as 

Facebook, Twitter, Instagram, etc. 

Figure 1: The below graphic shows house-by-house damage assessments of flooding in Minot, 

ND. The analysts used multiple sources of imagery to provide the assessments
Integration of Geospatial Analysis and Technology 

FEMA Damage Assessment Operations Manual 78

Geospatial Considerations for All Disasters

There are limitations for geospatial damage assessments that may greatly impact its use in 

analysis. When the following limitations exist, the timeliness of geospatial analysis can be 

affected.

 Weather: Cloud cover can often obstruct views for collection of damage in both satellite 

and airborne imagery. In addition, dangerous weather conditions can prevent planes from 

flying to collect airborne imagery.

 Flight Prohibition: Airborne imagery collection may be temporarily prohibited in areas 

with ongoing Search and Rescue Operations.

 Poor Data Environments: In some areas of the United States, detailed parcel and 

population data are not available. This creates a challenge during analysis and may affect 

the ability to provide the information required to support processing by the National 

Processing Service Center (NPSC).

 Contract Acquisition Timeline: The FEMA acquisition process to obtain needed 

airborne imagery and/or analytic support can be delayed; impacting the timely attainment 

of data.

 Impacted Area: In urban areas with more apartment buildings, geospatial analysis may 

not be able to further refine the damage level by apartment unit. In rural areas steep 

terrain, heavy tree canopies or a lack of parcel data can be a limitation. These kinds of 

instances require additional analytical time and can prevent the analysis for certain 

properties.
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 79

Integration of Mobile Technology

Mobile damage assessment applications allow field assessment teams to disseminate intime actionable damage and impact information via cellular networks or the Internet. 

Damage Assessment applications may eliminate the time required to deliver paper-based 

assessment reports previously delivered at the end of the day. Additionally, the ability to 

instantly distribute damage information to central databases removes the communication 

lag between local, State or Tribal Government, and Federal emergency managers. 

The standardized information used to assess damage described in previous sections may 

appear daunting to a field assessment team member. Mobile damage assessment 

applications can increase the accuracy of information collected by serving as job-aids that 

walks the assessor through the information required to evaluate damage. This 

standardized information intake approach combined with the ability to attach photographs 

to each assessment conducted, also allows for immediate verification and feed-back. 

Together, these simple elements increase the quality of information developed in the field 

and enable emergency managers to further leverage the use of non-emergency 

management staff to conduct assessments and increases capability.

Collecting assessment data electronically 

and storing it in one central location 

makes it much easier to develop standard 

reports that allow local, State or Tribal 

Government, and Federal emergency 

management agencies to more quickly 

analyze information developed in the 

field. Rooted in the concept of 

interoperable communications, this 

requirement is fundamental to our ability 

to develop a common operating picture. 

This approach also makes it easier to take assessment data and combine it with other data 

sources such as demographic data from the U.S. Census Bureau or historical data from 

FEMA and emergency management organizations and leverages our ability to understand 

how an event has impacted a community. 
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 80

Appendix A: Roles and Responsibilities

Note: The checklists provided in this Appendix are intended to serve as guiding principles that may assist

the user with applicable tasks in their roles. They are not intended to represent a one-size fit all approach

or to require staffing for any specific role.

Local or County Damage Assessment Coordinator

Identify and train personnel to assess damage to homes according to criteria 

defined by FEMA

Identify potential PA applicants and train them to collect necessary information 

and supporting documentation defined by FEMA 

Aggregate and submit local damage assessment information and supporting 

documentation to the County, State or Tribal Government as appropriate 

Coordinate with the County, State or Tribal Government as appropriate to 

schedule joint PDA field assessments

Coordinate with potential PA applicants so they are prepared to schedule and 

attend the PA PDA briefing and interview

Provide an overview of the incident for Joint PDA team

Provide map(s) illustrating damage in the jurisdiction

Serve as an expert on local disaster history, unique cultural considerations, and 

other challenges that complicate recovery

Provide impact statement information to State or Tribal Government as requested

Guide Joint PDA team members to damaged sites

Confirm that all damaged areas are surveyed during the Joint PDA
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 81

Local or County PA Damage Assessment Team Member 

(Representative of Potential Applicant)

Identify and document damage to infrastructure and estimate restoration cost

Document emergency protective measure and debris removal activity and 

estimate cost

Confirm insurance deductibles and limits for damaged facilities

Collect documentation necessary to support estimates (important for large 

projects or when PA program eligibility may be in question) 

Summarize damage on annotated map(s)

Summarize the impact damage will have on normal community functions (e.g.

number of people impacted and estimated duration) 

Submit damage assessment information to the Local or County Damage 

Assessment Coordinator according to established protocol 

Answer questions related to submitted damage, activities, and impacts posed by 

Joint PDA team members

Guide and accompany Joint PDA team to damaged sites as necessary

Collect and submit additional information or supporting documentation requested 

by Joint PDA team members
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 82

 Local or County IA Damage Assessment Team Member

Document the location of and level of damage to homes and businesses

according to criteria defined by FEMA

Document trauma, disruption of normal community functions, areas of 

concentrated damage, and areas where there is a high numbers of residents from 

defined special populations observed in the field. 

Accompany Joint PDA field teams when necessary
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 83

State or Tribal Government Damage Assessment Coordinator

Establish and maintain communication with local or county emergency managers

conducting damage assessments

Provide technical or subject matter expertise to local or county damage 

assessments as necessary

Support IA and PA programmatic lead efforts to ensure that information 

provided by Local or County Damage Assessment Coordinators is verified in 

some manner and that impacted jurisdictions are ready to receive Joint PDA 

teams

Coordinate the development of a State or Tribal damage assessment summary 

prior to the Joint PDA 

Coordinate transportation for Joint PDA teams, including the need for specialized 

transportation when necessary, e.g. aircraft, boats, etc.

Sufficiently equip staff for successful task completion

Identify and secure the facilities necessary to support Joint PDA operations

Establish operational strategy, schedules and reporting requirements in 

conjunction with the FEMA PDA Coordinator 

Provide an overview of the disaster during the Joint PDA briefing for Joint PDA 

team members

Participate in conversations related to PA programmatic eligibility questions and 

IA damage determinations that are unable to be resolved in the field (as 

necessary)

Identify an External Affairs representative to serve as the primary point of 

contact for media inquiries 

Identify a primary State or Tribal Government point of contact for 

environmental, historic, mitigation, and other special considerations 

Participate in the exit briefing at the conclusion of the Joint PDA

Participate in the development of the request for Federal assistance as necessary
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 84

State or Tribal Government PA Damage Assessment Team Lead

Serve as a principal State or Tribal Government PA programmatic point of 

contact throughout the damage assessment process

Provide PA programmatic guidance to Local or County Damage Assessment 

Coordinators as necessary

Ensure that information provided by Local or County Damage Assessment 

Coordinators is verified in some manner and that impacted jurisdictions are 

ready to receive Joint PDA teams

Provide PA input for the State or Tribal damage assessment summary that will be 

delivered to the FEMA Regional Office with the PDA request

Work with the FEMA PA PDA Team Lead to develop PA Joint PDA team 

assignments 

Provide State or Tribal Government PA input during the Joint PDA briefing

Coordinate with Local or County Damage Assessment Coordinators to schedule 

interviews with potential applicants and field assessments 

Maintain contact with Local or County Damage Assessment Coordinators and 

keep them apprised of changes to the Joint PDA schedule 

Provide programmatic guidance to assigned staff as needed

Participate in conversations related to PA pragmatic eligibility questions that are 

unable to be resolved in the field, and coordinate with potential applicants as 

necessary to address challenges

Confirm that Joint PDA teams have met with all impacted jurisdictions and 

validated all reported damage 

Participate in the exit briefing at the conclusion of the Joint PDA

Participate in the development of the request for Federal assistance as necessary
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 85

State or Tribal Government PA Damage Assessment Team Member

Serve as the State or Tribal representative on Joint PDA PA field team

Record and maintain contacts, operational strategy, schedule, reporting 

requirements, and other information provided in the initial briefing

Coordinate with Local or County Damage Assessment Coordinators to confirm 

schedule and meeting location for interviews with potential applicants and site 

assessments

In coordination with FEMA counterpart, provide local officials and potential 

applicants with an overview of PA program and the information and 

documentation that the Joint PDA team will use to validate estimates

Conduct interviews with potential applicants and field assessments to validate

information provided 

In coordination with FEMA counterpart, review information and documentation 

provided or observed to validate estimates

Provide guidance to potential applicants necessary to address missing 

information or documentation 

Maintain copies any documents provided by potential applicants

Provide guidance to potential applicants on special considerations that must be 

taken into account as infrastructure is restored (e.g. contract requirements, 

environmental or historic considerations, etc.) 

Work with the FEMA counterpart to reconcile differences in assessments, and

elevate challenges to State or Tribal PA Damage Assessment Lead when they 

cannot be resolved in the field

Confirm with each potential applicant that no additional damage or impact 

information is available at the conclusion of the interview or site assessments 

Prepare and submit findings to the State or Tribal Government PA PDA Team 

Lead according to established requirements and timelines
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 86

State or Tribal IA Damage Assessment Team Lead

Serve as a principal State or Tribal Government IA programmatic point of 

contact throughout the damage assessment process 

Provide IA programmatic guidance to Local or County Damage Assessment 

Coordinators as necessary 

Ensure that information provided by Local or County Damage Assessment 

Coordinators is verified in some manner and that impacted jurisdictions are ready 

to receive Joint PDA teams

Provide IA input for the State or Tribal damage assessment summary that will be 

delivered to the FEMA Regional Office with the PDA request

Work with the FEMA PDA IA Team Lead to develop IA PDA team 

assignments, reporting requirements, and schedule of operations 

o While FEMA will coordinate with SBA for the Joint PDA, the State or Tribal 

Government will work directly with SBA when a SBA only damage assessment 

is requested

Coordinate with Local or County Damage Assessment Coordinators to schedule 

IA Joint PDA field assessments

Provide State or Tribal Government IA input during the Joint PDA briefing

Maintain contact with Local or County Damage Assessment Coordinators and 

keep them apprised of changes to the Joint PDA schedule 

Provide updated or localized demographic, income, homeownership, occupancy, 

and/or insurance to FEMA when the State or Tribe would like information other 

than that available from the U.S. Census to be used. 

Provide programmatic guidance to assigned staff as needed

Participate in conversations related to damage determinations that are unable to 

be resolved in the field 

Confirm that Joint PDA teams have met with all impacted jurisdictions and 

validated all reported damage 

Conduct post field assessment briefings with assigned team members to gain any

missing/additional information

Collect and refine data and draft county impact narratives submitted by State or 

Tribal Government IA PDA Team Members

Coordinate with other State or Tribal Government agencies to gather impact data.

Participate in the exit briefing at the conclusion of the Joint PDA

Participate in the development of the request for Federal assistance as necessary
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 87

State or Tribal Government IA Damage Assessment Team Member

Serve as the State or Tribal representative on Joint PDA IA field team 

Record and maintain contacts, operational strategy, schedule, reporting 

requirements, and other information provided in the initial briefing 

Coordinate with Local or County Damage Assessment Coordinators to confirm 

schedule and meeting location 

In coordination with FEMA counterpart, provide local officials with an overview 

of IA program and the criteria that the Joint PDA team will use to validate 

damage

Discuss impacts that the disaster has had with the Local Damage Assessment 

Coordinator 

Conduct field assessments as part of the Joint PDA team to validate damage 

according to criteria defined by FEMA 

Work with the FEMA counterpart to reconcile differences in assessments, and

elevate challenges to State or Tribal IA Damage Assessment Lead when they 

cannot be resolved in the field

Confirm with Local or County Damage Assessment Coordinator that no 

additional damage or impact information is available at the conclusion of the 

field assessments

Prepare and submit findings to the State or Tribal Government IA PDA Team 

Lead according to established requirements and timelines
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 88

State or Tribal Government Voluntary Agency Liaison 

Contact the leadership of active voluntary organizations, VOADs, and COADs to 

gather information related to activity and capacity

Document any challenges that may limit assistance available from voluntary 

organizations in the short and long term 

Discuss any trauma reported by survivors

Discuss observed demographic trends that may impact recovery (i.e., high 

numbers of clients who are elderly, low income, non-English speaking) 

Document volunteer and donations management activity/capacity/challenges

Document existing VOADs, COADs, or long term recovery groups in the area, 

ability to provide disaster case management, and other information that can be 

used to anticipate capacity to address needs through recovery 

Provide information gathered in narrative form to the State or Tribal Government 

IA damage assessment Team Lead
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 89

State or Tribal Government Mass Care and Emergency Assistance

Crew Lead

Contact active government and nongovernment agencies and organizations

involved in mass care activities to gather information related to activity and 

capacity

Document shelter locations and the number of overnight stays

If shelters have closed or were not opened, document where impacted residents 

are currently living

Document areas served by mass feeding operations and the number of meals and 

snacks distributed 

Document distribution activity, including the type and number items distributed 

Document evaluations and mass care activity related to evacuation support 

Document the number of health and safety contacts

Document the number of mental health contacts

Document the number of client cases opened and closed

Document operation or activation levels established by active national 

organizations 

Document any challenges that will challenge the continued provision of required 

mass care and emergency assistance support

Provide information gathered in narrative form to the State or Tribal Government 

IA damage assessment Team Lead
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 90

FEMA PDA Coordinator

Establish an operational strategy, schedules, and reporting requirements in 

conjunction with the Local, State or Tribal Government PDA Coordinator 

Ensure that appropriate staff are deployed to support State or Tribal Government 

PDA requests

Ensure that FEMA staff are appropriately equipped to accomplish assigned tasks

in conjunction with the FEMA PA and IA Leads

Coordinate with IA and PA Team Leads and the State or Tribal Government to 

provide an overview of programmatic validation requirements at the Joint PDA 

briefing 

Participate in conversations related to programmatic challenges that are unable to 

be resolved in the field 

Ensure that questions posed by the State or Tribal Government are responded to 

or appropriately routed to the FEMA Region 

Maintain awareness of PDA progress and inform the FEMA Region as 

appropriate 

Coordinate with FEMA External Affairs representative to respond to political 

and media inquiries 

Participate in PA and IA PDA exit briefings to confirm that questions and 

concerns are efficiently addressed

*Refer to the Use of the United States National Grid (USNG), FEMA Directive 092-5, when applicable.
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 91

FEMA PA PDA Team Lead

Serve as a principal FEMA PA programmatic point of contact during the Joint 

PDA

Work with the State or Tribal Government PA PDA Team Lead to develop team 

assignments 

Ensure that assigned staff are appropriately briefed and prepared to validate 

estimates according to defined standards

Ensure coordination with USACE, NRCS and OFAs

Provide FEMA PA input during the Joint PDA briefing

Provide programmatic guidance to assigned staff as needed

Participate in conversations related to PA pragmatic eligibility questions that are 

unable to be resolved in the field, and coordinate with potential applicants as 

necessary to address challenges

Provide guidance on additional information and supporting documentation that 

can be used to determine project eligibility and/or estimate cost

Adjust estimates as needed to align with program eligibility requirements

Ensure awareness of the State or Tribal Government of changes or adjustments 

made to estimates provided by Joint PDA Field teams

Maintain awareness of PDA progress and inform the FEMA Region as 

appropriate 

Confirm the Joint PDA teams have met with all impacted jurisdictions and 

validated all reported damage 

Facilitate PA Joint PDA exit briefing with the State or Tribal Government and 

FEMA Regional office 

Compile final PDA data into required tables and summary reports for submission 

to the FEMA Regional PA Branch Chief for review – Note: final FEMA Table A 

will be provided by the FEMA Regional Recovery Division Director at the 

conclusion of the Joint PDA

Develop draft text and tables for the Regional Verification Analysis and 

Recommendation

*Refer to the Use of the United States National Grid (USNG), FEMA Directive 092-5, when applicable.
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 92

FEMA PA PDA Team Member

Serve as the FEMA representative on Joint PDA PA field team

Record and maintain contacts, operational strategy, schedule, reporting 

requirements, and other information provided in the initial briefing

In coordination with State or Tribal Government counterpart, provide local 

officials and potential applicants with an overview of PA program and the 

information and documentation that the Joint PDA team will use to validate 

estimates

Conduct interviews with potential applicants and field assessments to validate 

information provided 

In coordination with State or Tribal Government counterpart, review information 

and documentation provided or observed to validate estimates

Provide guidance to potential applicants necessary to address missing 

information or documentation 

Maintain copies any documents provided by potential applicants

Provide guidance to potential applicants on special considerations that must be 

taken into account as infrastructure is restored (e.g. contract requirements, 

environmental or historic considerations, etc.) 

Work with the State or Tribal Government counterpart to reconcile differences in 

assessments, and elevate challenges to the FEMA PA Damage Assessment Lead 

when they cannot be resolved in the field 

Confirm with each potential applicant that no additional damage or impact 

information is available at the conclusion of the interview or site assessments 

Prepare and submit findings to the FEMA PA PDA Team Lead according to 

established requirements and timelines
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 93

FEMA IA PDA Team Lead

Serve as a principal FEMA IA programmatic point of contact during the Joint 

PDA

Work with the State or Tribal Government IA damage assessment Team Lead to 

develop IA Joint PDA team assignments, reporting requirements, and schedule of 

operations 

Ensure coordination with assigned US SBA staff

Provide FEMA IA input during the Joint PDA briefing

Provide U.S. Census information that will be referenced to the State or Tribal IA 

damage assessment Team Lead

Provide programmatic guidance to assigned staff as needed

Participate in conversations related to damage determinations that are unable to 

be resolved in the field 

Confirm that Joint PDA teams have met with all impacted jurisdictions and 

validated all reported damage 

Conduct post field assessment briefings with assigned team members to gain any 

missing/additional information

Collect and refine data and draft county impact narratives submitted by FEMA

IA PDA Team Members

Facilitate IA Joint PDA exit briefing with the State or Tribal Government and 

FEMA Regional office 

Compile final PDA data into required tables and summary reports for submission 

to the FEMA Regional IA Branch Chief for review – Note: final FEMA Joint 

PDA report will be provided by the FEMA Regional Recovery Division Director 

at the conclusion of the Joint PDA

Develop draft text and tables for the Regional Verification Analysis and 

Recommendation

*Refer to the Use of the United States National Grid (USNG), FEMA Directive 092-5, when applicable.
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 94

FEMA IA PDA Team Member

Serve as the FEMA representative on Joint PDA IA field team

Record and maintain contacts, operational strategy, schedule, reporting 

requirements, and other information provided in the initial briefing

In coordination with State or Tribal counterpart, provide local officials with an 

overview of IA program and the criteria that the Joint PDA team will use to 

validate damage

Discuss and document impacts that the disaster has had with the Local Damage 

Assessment Coordinator 

Conduct field assessments as part of the Joint PDA team to validate damage 

according to criteria defined by FEMA

Work with the State or Tribal government counterpart to reconcile differences in 

assessments, and elevate challenges to the FEMA IA PDA Team Lead when 

they cannot be resolved in the field 

Confirm with Local or County Damage Assessment Coordinator that no 

additional damage or impact information is available at the conclusion of the 

field assessments

Prepare and submit findings to the FEMA IA PDA Team Lead according to 

established requirements and timelines
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 95

FEMA Voluntary Agency Liaison

In coordination with State or Tribal Government counterpart... 

Contact the leadership of active voluntary organizations, VOADs, and COADs to 

gather information related to activity and capacity

Document any challenges that may limit assistance available from voluntary 

organizations in the short and long term 

Discuss any trauma reported by survivors

Discuss observed demographic trends that may impact recovery (i.e., high 

numbers of clients who are elderly, low income, non-English speaking) 

Document volunteer and donations management activity/capacity/challenges

Document existing VOADs, COADs, or long term recovery groups in the area, 

ability to provide disaster case management, and other information that can be 

used to anticipate capacity to address needs through recovery 

Provide information gathered in narrative form to the FEMA IA PDA Team Lead
Appendix A: Roles and Responsibilities Checklists 

FEMA Damage Assessment Operations Manual 96

FEMA Mass Care and Emergency Assistance Crew Lead

In coordination with State or Tribal Government counterpart... 

Contact active government and nongovernment agencies and organizations 

involved in mass care activities to gather information related to activity and 

capacity

Document shelter locations and the number of overnight stays

If shelters have closed or were not opened, document where impacted residents 

are currently living

Document areas served by mass feeding operations and the number of meals and 

snacks distributed 

Document distribution activity, including the type and number items distributed

Document evaluations and mass care activity related to evacuation support

Document the number of health and safety contacts

Document the number of mental health contacts

Document the number of client cases opened and closed

Document operation or activation levels established by active national 

organizations 

Document any challenges that will challenge the continued provision of required 

mass care and emergency assistance support

Provide information gathered in narrative form to the FEMA IA PDA Team Lead
 

 

Appendix B: PA Damage Assessment Category of Work Checklists 

Appendix B: PA Damage Assessment 

Category of Work Checklists 

Category A: Debris Removal 

Important Information 

Classification of debris by type: 

 Vegetative debris including hazardous limbs, trees, and stumps 

 White goods (Appliances such as refrigerators and other household appliances) 

 Construction and demolition (C&D) debris 

 Hazardous, infectious, putrescent, and/or CBRN waste White goods (appliances) 

 Buildings and contents/construction and demolition 

 Soil, Mud, and Sand 

 Wet debris 

 Vehicles and Vessels 

 Contaminated 

Location of Debris* (roads, ROW, private property, waterways, parks, etc.) 

Quantity of each type of debris being removed 

How work was/will be accomplished 

 Force account 

 Contract 

 Combination 

Force Account cost 

 Labor (include regular time and overtime hours and rates used) 

 Equipment (include time and rates used) 

 Supplies (list supplies used and cost) 

Contract costs 

Unit costs ($/ton or CY)– with explanation of calculation 

Percent of debris removal completed at the time of assessment 

Location of debris operations facilities (reduction sites, disposal sites, etc.) 

Unique removal requirements (special equipment, long hauls, staging, reduction, 

hazardous materials, local ordinances etc.) 

Recycling or reusing any of the debris (yes/no) 

Impact on normal community functions 

Environmental and historic preservation considerations 

FEMA Damage Assessment Operations Manual 97 
Appendix B: PA Damage Assessment Category of Work Checklists 

Supporting Documentation
	

Photographs 

 Work completed 

 Work to be completed 

 Locations where estimates were developed 

Debris quantity calculation sheets 

Contracts (provide for large projects) 

 Contractor Bids or invoices 

 Disposal invoices 

Force Account 

 Labor cost summary (separate regular time from overtime) 

 Equipment cost summary 

 Supply cost summary 

Notated maps 

 Debris locations 

 Debris operations facilities 

*When applicable refer to the Use of the United States National Grid (USNG), FEMA Directive 092-5 

FEMA Damage Assessment Operations Manual 98 
Appendix B: PA Damage Assessment Category of Work Checklists 

Category B: Emergency Protective Measures 

Important Information 

Location (specific location address and GPS/USNG location or jurisdiction wide) 

Emergency protective measures required 

How work was/will be accomplished 

 Force account 

 Contract 

 Mutual Aid 

 Combination 

Force Account cost 

 Labor (include overtime hours and rates used) 

 Equipment (include time and rates used) 

 Supplies (substantial expenditures should be noted specifically with unit cost) 

Mutual aid cost 

Contract cost 

Percent of emergency protective measures completed at the time of assessment 

Unique requirements that impact cost 

Impact on normal community functions 

Supporting Documentation
	

Photographs of unique requirements 

Force Account 

 Labor cost summary (overtime) 

 Equipment cost summary 

 Supply cost summary 

Mutual aid agreements used (provide for large projects) 

Contracts, bids, or invoices (provide for large projects) 

Notated maps 

FEMA Damage Assessment Operations Manual 99 
 

Appendix B: PA Damage Assessment Category of Work Checklists 

Category C: Roads and Bridges 

Important Information 

Location(s) (address and/or GPS/USNG location) 

Federal Aid Road or BIA road (yes/no/unsure) 

Road or bridge type (specific structure and material) 

Repair/replacement required (in-kind) 

 Damaged elements 

 Damage dimensions 

How work was/will be accomplished 

x Force account 

x Contract 

x Combination 

Force account cost (actual or estimate) 

 Labor (include regular time and overtime hours and rates used) 

 Equipment (include time and rates used) 

 Supplies (list supplies used and cost) 

Material cost (actual or estimate) 

Contract cost (actual or estimate) 

Unique requirements that impact cost 

Impact on normal community functions 

Environmental and historic preservation considerations 

Supporting Documentation
	

Photographs (sample if multiple similar damage has occurred) 

 Force Account (work completed) 

 Labor cost summary (separate regular time from overtime) 

 Equipment cost summary 

 Supply cost summary 

Contracts, bids, or invoices (provide for large projects) 

Basis for estimations (for work to be completed) 

 Historic costs for similar work (provide example for large projects) 

 Estimate by professional familiar with the facility (provide breakdown) 

FEMA Damage Assessment Operations Manual 100 
Appendix B: PA Damage Assessment Category of Work Checklists 

 Commercial estimating source (RS Means, Cost Works, etc.) report 

Recent safety inspection reports or maintenance records that show pre-disaster condition 

(provide for large projects) 

Codes and standards to be considered (provide when the code or standard will 

dramatically increase the cost of restoration) 

Notated maps 

FEMA Damage Assessment Operations Manual 101 
Appendix B: PA Damage Assessment Category of Work Checklists 

FEMA Damage Assessment Operations Manual 102

Category D: Water Control Facilities

Important Information 

Location(s) (address and/or GPS/USNG location) 

Facility type

Are repairs to these facilities the responsibility of USACE or NRCS? (yes/no/unsure)

Repair/replacement required (in-kind) 

 Damaged elements

 Damage dimensions 

How work was/will be accomplished 

 Force account

 Contract 

 Combination 

Force Account cost (actual or estimate)

 Labor (include regular time and overtime hours and rates used)

 Equipment (include time and rates used) 

 Supplies (list supplies used and cost)

Material cost (actual or estimate)

Contract cost (actual or estimate)

Unique requirements that impact cost

Impact on normal community functions 

Environmental and historic preservation considerations

Supporting Documentation

Photographs (sample if multiple similar damage has occurred)

Force Account (work completed)

 Labor cost summary (separate regular time from overtime)

 Equipment cost summary

 Supply cost summary 

Contracts, bids, or invoices (provide for large projects)

Basis for estimations (for work to be completed)

 Historic costs for similar work (provide example for large projects)
Appendix B: PA Damage Assessment Category of Work Checklists 

FEMA Damage Assessment Operations Manual 103

 Estimate by professional familiar with the facility (provide breakdown –

especially when replacement is requested)

 Commercial estimating source (RS Means, Cost Works, etc.) report

Recent inspection reports or maintenance records that show pre-disaster condition (when 

pre-disaster condition may impact estimate of large project ) 

Specifications or as-built drawings of the damage facility (may be helpful – only for 

large projects) 

Codes and standards to be considered (provide when the code or standard will 

dramatically increase the cost of restoration) 

Notated maps 
Appendix B: PA Damage Assessment Category of Work Checklists 

FEMA Damage Assessment Operations Manual 104

Category E: Buildings and Equipment

Important Information 

Location(s) (address and/or GPS/USNG location) 

Facility type

Repair/replacement required (in-kind) 

 Damaged elements

 Damage dimensions 

 Damaged equipment type 

 Damaged building contents 

How work was/will be accomplished 

 Force account

 Contract 

 Combination 

Force account cost (actual or estimate)

 Labor (include regular time and overtime hours and rates used) 

 Equipment (include time and rates used) 

 Supplies (list supplies used and cost)

Material cost (actual or estimate)

Contract cost (actual or estimate)

Value of equipment (blue book value) if replacement is required 

Insurance deductibles and limits

Unique requirements that impact cost

Impact on normal community functions 

Environmental and historic preservation considerations

Supporting Documentation

Photographs (sample if multiple similar damage has occurred)

Force Account (work completed)

 Labor cost summary (separate regular time from overtime)

 Equipment cost summary

 Supply cost summary 
Appendix B: PA Damage Assessment Category of Work Checklists 

FEMA Damage Assessment Operations Manual 105

Contracts, bids, or invoices (provide for large projects) 

Insurance documentation needed to establish deductible and limits (provide for large 

projects) 

Basis for estimations (for work to be completed)

 Historic costs for similar work (provide example for large projects) 

 Estimate by professional familiar with the facility (provide breakdown – 

especially when replacement is requested)

 Commercial estimating source (RS Means, Cost Works, etc.) report

Codes and standards to be considered (provide when the code or standard will 

dramatically increase the cost of restoration) 

Notated maps 
Appendix B: PA Damage Assessment Category of Work Checklists 

FEMA Damage Assessment Operations Manual 106

Category F: Utilities

Important Information 

Location(s) (address and/or GPS/USNG location) 

Facility type 

Repair/replacement required (in-kind) 

 Damaged elements

 Damage dimensions (size, length, capacity, etc.)

Will reconductoring be required (yes/no/unsure) 

How work was/will be accomplished

 Force account

 Contract 

 Combination 

Force account cost (actual or estimate)

 Labor (include regular time and overtime hours and rates used)

 Equipment (include time and rates used) 

 Supplies (list supplies used and cost)

Material cost (actual or estimate)

Contract cost (actual or estimate)

Unique requirements that impact cost

Impact on normal community functions 

Environmental and historic preservation considerations

Supporting Documentation

Photographs (sample if multiple similar damage has occurred) 

Force Account (work completed)

 Labor cost summary (separate regular time from overtime)

 Equipment cost summary

 Supply cost summary 

Contracts, bids, or invoices (provide for large projects) 
Appendix B: PA Damage Assessment Category of Work Checklists 

FEMA Damage Assessment Operations Manual 107

Basis for estimations (for work to be completed)

 Historic costs for similar work (provide example for large projects) 

 Estimate by professional familiar with the facility (provide breakdown – 

especially when replacement is requested)

 Commercial estimating source (RS Means, Cost Works, etc.) report

Information used to evaluate the need for reconductoring (if reconductoring is requested) 

Codes and standards to be considered (provide when the code or standard will 

dramatically increase the cost of restoration) 

Notated maps 
Appendix B: PA Damage Assessment Category of Work Checklists 

FEMA Damage Assessment Operations Manual 108

Category G: Parks, Recreational, and Other

Important information 

Location(s) (address and/or GPS/USNG location) 

Facility type 

Repair/replacement required (in-kind) 

 Damaged elements

 Damage dimensions 

How work was/will be accomplished 

 Force account

 Contract 

 Combination 

Force account cost (actual or estimate)

 Labor (include regular time and overtime hours and rates used)

 Equipment (include time and rates used) 

 Supplies (list supplies used and cost)

Material cost (actual or estimate)

Contract cost (actual or estimate)

Insurance deductibles and limits

Unique requirements that impact cost

Impact on normal community functions 

Environmental and historic preservation considerations

Supporting Documentation

Photographs (sample if multiple similar damage has occurred)

Force Account (work completed)

 Labor cost calculation sheet (separate regular time from overtime)

 Equipment cost calculation sheet

 Supply cost calculation sheet 

Contracts, bids, or invoices (provide for large projects)

Insurance documentation needed to establish deductible and limits (provide for large 

projects) 
Appendix B: PA Damage Assessment Category of Work Checklists 

FEMA Damage Assessment Operations Manual 109

Basis for estimations (for work to be completed)

 Historic costs for similar work (provide example for large projects) 

 Estimate by professional familiar with the facility (provide breakdown – 

especially when replacement is requested)

 Commercial estimating source (RS Means, Cost Works, etc.) report

Codes and standards to be considered (provide when the code or standard will 

dramatically increase the cost of restoration) 

Notated maps 
Appendix C: PA PNP Program Requirements 

FEMA Damage Assessment Operations Manual 110

Appendix C: PA PNP Program Requirements

PNP Eligible Critical Services

Education

• Primary or secondary education as 

determined under State law and provided 

in a day or residential school, including 

parochial schools, OR

• Higher education institutions that meet all 

of the following criteria:

o Admit students or persons having a 

high school diploma or equivalent; 

o Are legally authorized to provide 

education beyond a secondary level;

o Award a bachelor’s degree or a 2-

year degree that is acceptable as full 

credit toward a bachelor’s degree or 

provides at least a 1-year training 

program to prepare students for 

gainful employment in a recognized 

occupation; and 

o Are accredited by a nationally 

recognized agency or association (as 

determined by the Secretary of 

Education)

Medical

• Emergency medical care (diagnosis or 

treatment of mental or physical injury or 

disease) provided in:

o Clinics

o Facilities that provide in-patient 

care for convalescent or chronic 

disease patients

o Hospices and nursing homes

o Hospitals and related facilities, 

including:

 Central service facilities 

operated in connection 

with hospitals

 Extended-care facilities

 Facilities related to 

programs of home-health 

services

 Laboratories

 Self-care units

 Storage, administration, 

and record areas

o Long-term care facilities 

o Outpatient facilities

o Rehabilitation centers that provide 

medical care

Utility

• Communications transmission and 

switching, and distribution of 

telecommunications traffic

• Electric power generation, transmission, 

and distribution

• Irrigation to provide water for drinking 

water supply, fire suppression, or 

electricity generation

• Sewer and wastewater collection, 

transmission, and treatment

• Water treatment, transmission, and 

distribution, by a water company 

supplying municipal water

Emergency Services

• Ambulance

• Fire Protection 

• Rescue

Administrative and support buildings essential to the operation of PNP critical services are eligible 

facilities.
Appendix C: PA PNP Program Requirements 

FEMA Damage Assessment Operations Manual 111

PNP Eligible Non-Critical Services

Community centers established and primarily used for the 

purpose of offering the following services (or similar) to the 

community at large:

• Art services authorized by a State, Territorial, Tribal, 

or local government, including, but not limited to:

o Arts administration

o Art classes

o Management of public arts festivals

o Performing arts classes

• Educational enrichment activities that are not 

vocational, academic, or professional training; 

examples include hobby or at-home pursuits, such 

as:

o Car care

o Ceramics

o Gardening

o Personal financial and tax planning

o Sewing

o Stamp or coin collecting

• Multi-purpose arts programming

• Senior citizen projects, rehabilitation programs, 

community clean-up projects, blood drives, local 

government meetings, and similar activities

• Services and activities intended to serve a specific 

group of individuals (e.g. women, AfricanAmericans, or teenagers) provided the facility is 

otherwise available to the public on a nondiscriminatory basis

• Social activities to pursue items of mutual interest or 

concern, such as:

o Community board meetings

o Neighborhood barbecues

o Various social functions of community 

groups

o Youth and senior citizen group meetings 

• Community centers operated by a religious 

institution that provides secular activities, such as 

fundraising, activities that help the community at 

large

• Child care

• Day care for individuals with disabilities or access and 

functional needs (for example, those with Alzheimer’s 

disease, autism, muscular dystrophy)

• Food assistance programs

• Health and safety programs 

• Homeless shelters

• Libraries

• Low-income housing (as defined by Federal, State, 

Territorial, Tribal, or local law or regulation)

• Museums:

o Constructed, manufactured, or converted with a 

primary purpose of preserving and exhibiting a 

documented collection of artistic, historic, scientific, 

or other objects

o Buildings, associated facilities, fixed facilities, and 

equipment primarily used for the preservation or 

exhibition of the collection, including: 

 Permanent infrastructure, such as walkways 

and driveways of outdoor museum-type 

exhibition areas 

 Historic buildings, such as barns and other 

outbuildings, intended for the preservation 

and exhibition of historical artifacts within a 

defined area

 Permanent facilities and equipment that are 

part of arboretums and botanical gardens

 Infrastructure, such as utilities, and 

administrative facilities necessary for 

support

o The grounds at museums and historic sites are not 

eligible

o Open natural areas/features or entities that promote 

the preservation/conservation of such areas are not 

eligible

• Residential and other services for battered spouses

• Residential services for individuals with disabilities

• Senior citizen centers

• Shelter workshops that create products using the skills of 

individuals with disabilities 

• Zoos

• Performing arts centers with a primary purpose of 

producing, facilitating, or presenting live performances, 

including:

o Construction of production materials 

o Creation of artistic works or productions

o Design

o Professional training

o Public education

o Rehearsals

• Public broadcasting that monitors, receives, and 

distributes communications from the Emergency Alert 

System

Facilities that do not provide medical care, but do 

provide:

• Alcohol and drug treatment

• Assisted living

• Custodial care, even if the facility is not open to the 

general public (including essential administration 

and support facilities)

• Rehabilitation

With the exception of custodial care facilities and museums, administrative and support buildings essential to the operation of 

PNP non-critical series are NOT eligible facilities.
Appendix D: PA Site Sheet Example 

FEMA Damage Assessment Operations Manual 112

Appendix D: PA Site Sheet Example
Appendix E: IA Damage Assessment Matrix

FEMA Damage Assessment Operations Manual 113

Appendix E: IA Damage Assessment Matrix

Assessment Matrix for Manufactured Homes

Degree of 

Damage

Definition For Flood Damage For Damage Other Than Flood (e.g., Wind 

Driven Rain, Earthquake) 

Affected This category includes residences with 

cosmetic damage only. It also applies to 

residences with damage to a porch, 

carport, garage, and/or an outbuilding 

not for commercial use, etc.

 No damage affecting habitability; 

cosmetic damage only.

The dwelling's frame is not bent, twisted, or otherwise 

compromised. No structural components of the 

dwelling have been damaged (e.g., windows, doors, 

wall coverings, roof, bottom board insulation, 

ductwork, and/or utility hook up).

Minor The residence is damaged and requires

minimal repairs. 

 Water line is below the floor 

system.

 Skirting or HVAC is impacted.

 There is no structural damage to 

the residence and it has not been

displaced from the foundation.

 There is no structural damage to the 

residence and it has not been displaced from 

the foundation.

 Nonstructural components have sustained 

damage - e.g. windows, doors, wall 

coverings, roof, bottom board insulation, 

ductwork, and/or utility hook up.

 Skirting or HVAC is impacted.

Major The residence has sustained structural or

significant damage that require 

extensive repairs. 

 Water has come into contact with 

the floor system.

 The residence has been displaced 

from the foundation, block or 

piers and other structural 

components have been damaged.

 The residence has been displaced from the 

foundation, block or piers and other 

structural components have been damaged.

Destroyed The residence is a total loss. • The residence is a total loss.  The residence's frame is bent, twisted, or 

otherwise compromised.

 The residence is missing the roof covering or 

the structural ribbing has collapsed for the 

majority of the roof system.
Appendix E: IA Damage Assessment Matrix

FEMA Damage Assessment Operations Manual 114

Damage Assessment Matrix for Conventionally Built Homes

Category of 

Damage Definition Flood Examples Non-Flood Examples 

Affected Residences with minimal damage to 

the exterior and/or contents of the 

home.

 Any water line in the crawl space or basement when 

essential living space or mechanical components are 

not damaged or submerged

 Partial missing shingles or siding.

 Cosmetic damage such as paint discoloration or loose 

siding.

 Broken screens.

 Gutter damage and debris.

 Damage to an attached structure such as a porch, 

carport, garage, or outbuilding not for commercial 

use.

 Damage to landscaping, retaining walls, or downed 

trees that do not affect access to the residence.

Minor Encompasses a wide range of damage 

that does not affect the structural 

integrity of the residence.

 Water line up to 18 inches in an essential living space.

 Damage to mechanical components (e.g. furnace, 

boiler, water heater, HVAC, etc.).

 Nonstructural damage to roof components over 

essential living space to include shingles e.g. roof 

covering, fascia board, soffit, flashing, and skylight.

 Non structural damage to the interior wall 

components to include drywall, insulation

 Non structural damage to exterior components

 Multiple small vertical cracks in the foundation.

 Damage to chimney to include, tilting, fallen, cracks, 

or separated from the residence.

 Damage to mechanical components (e.g. furnace, 

boiler, water heater, HVAC, etc.).

 Damage or disaster related contamination to a private 

well or septic system

Major A residence may be categorized as 

having major damage when it has 

sustained significant structural damage 

and requires extensive repairs.

 Water line above 18 inches in an essential living 

space, a water line above the electrical outlets, or a 

waterline on the first floor of a residence when 

basement is completely full. 

 Failure or partial failure to structural elements of the 

roof over required rooms to include rafters, ceiling 

joists, ridge boards, etc.

 Failure or partial failure to structural elements of the 

walls to include framing, sheathing, etc.

 Failure or partial failure to foundation to include 

crumbling, bulging, collapsing, horizontal cracks of 

more than two inches, and shifting of the residence on 

the foundation of more than six inches.

Destroyed The residence is a total loss, or 

damaged to such an extent that repair 

is not feasible.

 Complete failure of two or more major structural 

components (e.g., collapse of basement walls, 

foundation, walls, or roof).

 Only foundation remains.

 A residence that will require immediate demolition or 

removal because of disaster-related damage or 

confirmed imminent danger (e.g., impending 

landslides, mudslides, or sinkholes).
Appendix F: IA Insurance Matrix

FEMA Damage Assessment Operations Manual 115

Appendix F: IA Insurance Matrix

Insurance 

Type

Property Covered Property Not 

Covered

Perils Covered Perils Not Covered

Flood Owners Only: all real property from 

the first floor up; real property in 

basement below ground level 

necessary for habitability (e.g., 

structural wall, furnace, water heater, 

main panel); separate structures such 

as storage buildings; cost of 

preventing flood damage to home; 

removal of debris deposited by 

covered peril

Homeowners and Renters: property 

in basement necessary for 

habitability (e.g., washer and dryer), 

all personal property in dwelling and 

separate enclosed structures (see 

property not covered); personal

property stored away from premises

RP: Water wells; well 

pumps; oil or propane 

tanks; septic tanks; 

seawalls; retaining walls; 

washouts (access); dikes

PP: property stored in 

basements below grade 

level as identified by the 

individual policy

General condition of 

flooding, (e.g. overflow of 

inland or tidal waters; the 

unusual and rapid run-off 

or accumulation of surface 

waters from any source); 

mudflow/mudslide; 

seepage caused by flood 

(e.g. ground saturation or 

seeping under doors from 

rising water) {Note: not all 

perils listed are included 

nationwide or in OCONUS 

areas, please consult with 

Local/State or 

Municipalities Insurance 

Commissioners for details}

Anything other than perils listed, 

e.g. WDR; landslide; sewer 

backup when no general flood 

exists; seepage not caused by 

flood (e.g. melting snow or 

WDR blowing water under 

doors) {Note: not all perils listed 

are excluded nationwide or in 

OCONUS areas, please consult 

with Local/State or 

Municipalities Insurance 

Commissioners for details}

EQ, SBU and 

other riders

Any property covered by the policy 

rider.

Any property excluded 

from coverage under the 

policy the rider is 

attached.

Only the peril(s) specified 

on the rider

All perils except those specified 

by the rider
Appendix F: IA Insurance Matrix

FEMA Damage Assessment Operations Manual 116

Insurance 

Type

Property Covered Property Not 

Covered

Perils Covered Perils Not Covered

Home owners or

Renters

Owners: all real property, including 

separate structures; removal of debris 

deposited by covered peril; personal 

property, Additional Living Expenses 

(ALE) for covered perils.

Renters: all personal property, including 

personal property away from premises 

and ALE for covered perils.

Seawalls; retaining walls; 

washouts (access)

Wind; hail; lightning; falling 

objects including trees; 

freezing of plumbing; weight 

of ice, snow, or sleet; fire; 

smoke; volcanic eruption; 

power surge; explosion 

Surface waters or flood; rain 

through doors, windows, or bad 

roof; seepage; landslides; mudslides; 

earthquake; sewer backup

Sewer back up is usually covered in 

an endorsement to the policy

Manufactured 

Home

Manufactured home, including separate 

structures; removal of debris deposited 

by covered peril; cost of emergency 

repairs or removal to protect the 

manufactured home; ALE for covered 

perils; All personal property, including 

personal property away from premises. 

Structural only coverage excludes 

personal property and ALE coverage.

Seawalls; washouts (outside 

damage)

Wind; hail; lightning; falling 

objects including trees; 

freezing of plumbing; weight 

of ice, snow, or sleet; fire; 

smoke; volcanic eruption; 

power surge; explosion

Flood may or may not be 

covered depending on the 

contract

Sewer backup; leakage from rain, 

snow, or sleet; freezing or electrical 

failure, mudslide, earthquake; Flood 

may or may not be covered 

depending on the contract

Electrical failure does not pertain to 

power surges, only to situations 

where electrical service stops and 

there is no damage to the home

Condominium Unit: Structural elements not shared by 

other tenants or owned by the 

association, generally from the sheetrock 

in, including sheetrock, paneling, wall 

covering; ALE for covered perils; All 

personal property, including personal 

property away from premises

Master: Structural elements shared by 

other tenants or owned by the 

association, generally from the studs out

Seawalls; retaining walls; 

washouts (access)

Wind; hail; lightning; falling

objects including trees; 

freezing of plumbing; weight 

of ice, snow, or sleet; fire; 

smoke; volcanic eruption; 

power surge explosion

Surface waters or flood; rain 

through doors, windows, or bad 

roof; landslides; mudslides; 

earthquake; sewer backup; leakage

from rain, snow, or sleet; freezing or 

electrical failure
Appendix G: IA GIS Product Examples

FEMA Damage Assessment Operations Manual 117

Appendix G: IA GIS Product Examples
Appendix G: IA GIS Product Examples

FEMA Damage Assessment Operations Manual 118
Appendix G: IA GIS Product Examples

FEMA Damage Assessment Operations Manual 119
Appendix G: IA GIS Product Examples

FEMA Damage Assessment Operations Manual 120
Appendix H: IA Street Sheet Example

FEMA Damage Assessment Operations Manual 121

Appendix H: IA Street Sheet Example
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