Recovery Function Annex

1. Introduction
   
   
1. This portion of the Federal Response Plan (FRP) describes the structure and coordination activities to implement the array of Federal disaster programs, support, and technical services that directly assist individuals, families, businesses (including farms), and State and local governments to recover from the effects of a major disaster or emergency declared by the President.   The fundamental assumption is that recovery is a cooperative effort among Federal, State, local, and voluntary agencies and the private sector in partnership.
   
   
2. Sometimes disaster events require only the implementation of Federal and State recovery and mitigation programs, like disaster loans, the Hazard Mitigation Grant Program, or Disaster Housing.  They may not require Federal emergency response actions, or only limited response actions.  For this reason, this new part of the FRP has been included.    It has two purposes:
   
   
1. To describe separately the coordination and implementation of recovery programs that occur outside the FRP’s emergency support function (ESF) structure; and
   
   
2. To document the linkages that exist among response, recovery, and mitigation activities.
   
   
2. Definition of Terms, Scope
   
   
1. “Recovery activities” refer to actions by disaster victims that enable them to begin the process of rebuilding their homes; replacing property; resuming employment; restoring their businesses; permanently repairing, rebuilding, or relocating public infrastructure; and mitigating future disaster losses.  It also refers to Federal Government programs of assistance, support, and technical services that facilitate disaster victims’ recovery actions — such as grants and low-interest loans for repair or replacement of homes, businesses, property, and infrastructure; technical assistance; and education and information.
   
   
2. Recovery activities can begin immediately after a Presidential declaration.  When search and rescue, lifesaving, and emergency measures are well underway or nearly complete, individuals, families, and businesses seek funding and services to repair or replace their damaged property.  State and local governments plan the rebuilding of infrastructure and services, and seek sources of funding for sustainable redevelopment of their communities.  The Federal Government collaborates with the State in planning and coordinating the implementation of recovery programs to support families, businesses, and governments and initiates the delivery of recovery services.
   
   
3. Recovery activities should be carried out in the context of long-term redevelopment of viable, disaster-resistant communities.  In this context, recovery activities include implementation of postdisaster mitigation programs and opportunities for disaster victims at all levels to make wise rebuilding decisions.
   
   
3. Policies
   
   
1. Federal Authorities
   
   
1. The Robert T. Stafford Disaster Relief and Emergency Assistance Act is the authority for implementation of the FRP, including the recovery functions detailed in this document and the National Flood Insurance Program (NFIP).  The Federal Emergency Management Agency’s (FEMA’s) authorities derive largely from the Stafford Act.
   
   
2. Other Federal agencies have separate legislation and independent authorities to declare a disaster and to provide assistance.  Examples include the Small Business Administration (SBA), whose Administrator is empowered by the Small Business Act of 1953 to declare a disaster for the purpose of providing disaster loan assistance based on physical damage and economic injury; and the Department of Agriculture (USDA), whose Secretary (and other agency officials) may designate counties eligible for various types of emergency loans for physical damage and crop losses.  Where these actions occur independently outside a Presidential declaration, the FRP does not apply.
   
   
3. Some of the agencies’ programs are specifically designed for disaster relief, such as the SBA disaster loan program.  Others, e.g., the Department of Housing and Urban Development’s (HUD’s) Community Development Block Grant program, are not designed as disaster assistance resources but may be used by grantees, in whole or in part, to address disaster recovery needs.  Supplemental appropriations may be required to provide the necessary funding.
   
   
2. Coordination and Planning as Key Elements in Recovery
   
   
1. The Stafford Act assigns to FEMA the principal coordination function — the interactive process by which multiple Federal assistance programs are reviewed, initiated, implemented, and delivered to address the unique needs of a particular disaster area.  (FEMA also is responsible for funding, managing, and delivering certain Stafford Act programs.)  Systematic coordination among Federal agencies and States is necessary before and during a disaster to ensure effective, efficient delivery of the array of recovery programs that can aid disaster victims in alleviating damage, hardship, loss, and suffering.   The Federal coordination process must operate effectively, beginning “bottom up” in the field at the Disaster Field Office (DFO), with the Federal Coordinating Officer (FCO) and staff interacting with State and local governments and being supported by headquarters to resolve major policy and resource issues.  The President assigns the FCO and the Governor names a State Coordinating Officer (SCO) to focus interagency coordination.
   
   
2. Before a disaster, interagency planning and coordination provide a foundation for strengthening relationships among Federal and State agencies, voluntary organizations, and private sector entities; identifying inconsistencies and overlaps in recovery programs; streamlining program delivery; furthering intergovernmental partnerships; and improving customer service.  Coordination is critical to promote efficient, timely, consistent Federal action.  A structured approach to recovery planning also incorporates mitigation activities and lays the groundwork for the State to oversee longer term redevelopment and reconstruction that promote sustainable development.
   
   
3. Interagency meetings facilitate understanding and familiarity with recovery programs and priorities.  Contacts can be fostered in pre-disaster meetings and in meetings during disaster operations with recovery counterparts.  Meetings in both settings serve to:
   
   
1. Share management information and assessments;
   
   
2. Identify short-term and more protracted needs;
   
   
3. Discuss resource allocation issues, including funding;
   
   
4. Identify critical environmental issues;
   
   
5. Resolve program duplication issues;
   
   
6. Discuss and resolve timing issues (e.g., establishment of centers and workshops, issuance of public information);
   
   
7. Establish priorities and report progress in meeting established priorities;
   
   
8. Identify and resolve overlaps or shortfalls in Federal or State programs as they arise in the field;
   
   
9. Discuss and suggest solutions for issues arising from Community Relations contacts; and
   
   
10. Ensure coordinated Federal activities that promote community sustainability.
    
    
4. The involvement of voluntary organizations and private sector at the national, State, and local levels is critical to the success of a disaster recovery mission.  Voluntary organizations, including the American Red Cross, the Mennonite Disaster Service, the Salvation Army, and other organizations, are encouraged to provide leadership and to coordinate with Federal, State, and local governments in recovery planning and program implementation.
   
   
5. Voluntary Agency Liaisons at FEMA regional offices serve as the principal linkages between FEMA and voluntary organizations, and as conveners and coordinators of voluntary organization local consortiums.  These liaisons assist in supporting community-based long-term recovery organizations, aid in developing State-based voluntary coalitions called Voluntary Organizations Active in Disaster (VOADs), and coordinate between the FCO and voluntary organizations during disaster operations.  A counterpart national organization known as the National Voluntary Organizations Active in Disaster (NVOAD) serves as a forum for nonprofit disaster relief organizations to meet in disaster preparedness periods to discuss emergency management issues, share disaster experiences, and develop organizational relationships.
   
   
3. Determination of Recovery Program Priorities
   
   
1. The overall responsibility for recovery rests with State and local governments.  The FRP recognizes the primacy of State and local governments in defining recovery requirements and identifying needs.  The Federal Government’s role is to complement and supplement State, local, and private resources to facilitate recovery.
   
   
2. State and local governments define recovery priorities in the public sector.  However, the FCO is charged with making a management information assessment of the needs caused by the disaster or emergency.  This assessment builds upon the Preliminary Damage Assessment in that it provides to program managers at all levels of government the information needed to implement, manage, and staff disaster assistance programs and to prioritize the types of assistance most urgently needed.  The management assessment should be conducted jointly (as appropriate) between Federal and State agencies, and continue as needed until the programs not only are in operation but are being appropriately implemented.
   
   
4. Recovery Concepts and Requirements
   
   

As response phases into recovery, and when the Federal partners begin to coordinate recovery program priorities, certain Federal laws and requirements must be used as guidance in initiating and implementing recovery programs. 


1. Floodplain Management, Flood Insurance, Environmental Protection, Historic Preservation
   
   

Under Executive Order 11988, Floodplain Management, all Federal agencies are required to take action to reduce the risk of flood loss; minimize or eliminate the impact of flooding on human safety, health, and welfare; and restore and preserve the natural and beneficial functions of floodplains while carrying out their programs and activities.  Federal agency implementation of E.O. 11988 is critical during recovery because reconstruction or repair activities offer opportunities for economically feasible flood loss-reduction. 


Implementation of floodplain management measures through local community participation in the NFIP also is a key component of recovery operations.  Local floodplain management ordinances may require repair and reconstruction activities to meet prudent construction code requirements that mitigate future losses.  Flood insurance policies now provide additional coverage to assist in paying the costs of bringing existing construction into compliance with current codes.

The Office of Management and Budget and the Council on Environmental Quality jointly issued a policy guidance memorandum on February 18, 1997, entitled Floodplain Management and Procedures for Evaluation and Review of Levee and Associated Restoration Projects, which emphasized the need to consider nonstructural alternatives to flood protection during recovery and the need for coordination at all levels of government.  The goal is “to achieve a rapid and effective response to damaged flood and floodplain management systems that will minimize risk to life and property, while ensuring a cost-effective approach to flood damage mitigation and floodplain management and the protection of important environmental and natural resource values that are inherent to the floodplain and adjacent lands.”

This policy reflects the fact that recovery should take place in a climate of attention to floodplain management considerations (the Flood Disaster Protection Act of 1973, as amended), E.O. 11988, environmental considerations (the National Environmental Policy Act (NEPA) of 1969, as amended, and other associated environmental laws), and flood insurance purchase and maintenance requirements (National Flood Insurance legislation, including the National Flood Insurance Reform Act of 1994).  NEPA provides an umbrella under which agencies review compliance with a host of Federal environmental legislation and other related issues, such as floodplain and wetlands management, endangered species, historic preservation, and environmental justice issues.  Some response activities are exempt from specific NEPA review requirements, but must still comply with other environmental statutes.  As recovery programs get underway, compliance with environmental legislation deepens, but for the vast majority of projects the environmental review process is expedited through the use of categorical exclusions.  FEMA and other Federal agencies follow their agency regulations which specify the level of review required for specific recovery program activities.

In siting temporary or permanent structures, the Federal and State agencies agree to comply, within the bounds of recovery program laws and regulations, with the spirit and letter of floodplain management and environmental legislation as a way of protecting people, property, and structures against future threats.  Federal and State agencies also are encouraged to preserve properties with a historical significance as part of the assistance decision-making process.
 

2. Mitigation and Risk Management
   
   
1. Federal agencies commit to assist in rebuilding structures and facilities and restoring land in a way that minimizes risk of future damage and achieves the goal of building disaster-resistant communities.  The terms that describe these concepts —  “mitigation” and “risk management” — are often used as a unit, when they are defined as “sustained actions taken to reduce or eliminate long-term risk to people, property, and structures from hazards and their effects.”   The concepts of mitigation and risk management are based on the premise that money spent on mitigation will save significant future money by reducing the vulnerability of individuals, businesses, and communities to future disasters.  Mitigation is critical to the responsibility of all Federal agencies to provide short- and long-term solutions to minimize the effects of disasters.  The Deputy FCO for Mitigation (DFCO-M) has a leadership role in promoting the concepts and programs of mitigation and risk management.  Mitigation — as a concept translated into functional programs — should permeate all recovery activities undertaken at the State, local, and even individual levels, regardless of the source of funding for activities or projects.
   
   
2. Nonstructural alternatives to building and repairing structures and restoring former capability should be considered as mitigation/risk management opportunities (e.g., property acquisition, relocation of flood-threatened structures, insurance, insurance revenue plans).  Through early planning and consultation with Federal agencies that have statutory mitigation authorities, agencies should also recognize the balance between objectives in recovery planning, such as those involved with temporary measures vs. permanent restorative work.  State and local governments will be provided information and technical assistance required for the careful community recovery planning that will result in future disaster-resistant communities.  It is critical to incorporate mitigation and risk management concepts and activities into recovery planning.
   
   
3. Other Crosscutting Requirements
   
   

In addition to the objectives of floodplain management, environmental protection, historic preservation, mitigation, and risk management, agencies must remain cognizant of additional crosscutting statutory and other reasonable protections in facilitating or providing resources for disaster recovery.  These considerations include civil rights, environmental justice, fair housing, affordable housing, sustainable development, seismic safety, affordable insurance, disaster-resistant communities, Federal and State coastal zone management requirements, drought-resistant crop planting, and crop insurance.


4. Planning Considerations
   
   
1. Planning for recovery begins before a disaster.  Recovery coordination necessary to implement disaster assistance programs takes place when lifesaving and emergency operations may still be ongoing.  The requirements for staffing to be devoted to recovery operations are determined as early as possible.
   
   
2. State and local governments are responsible for identifying needs, establishing recovery priorities, and requesting appropriate assistance; for contributing cost-shares as established by law and regulation; for dealing with land use, floodplain management, development, and permitting and land-use waiver issues; and for identifying sites for temporary facilities.  State and local resources to carry out these responsibilities may be overwhelmed, requiring Federal technical and financial assistance.
   
   
3. In a major disaster of significant impact, the establishment of the formal recovery processes (teleregistration for Disaster Housing, SBA disaster loans, and grants; opening of Disaster Recovery Centers (DRCs)) and implementation of the other agencies’ recovery programs should be well-planned and coordinated, and should start as early as practicable.
   
   
4. Information-sharing protocols, including formal coordination meetings, are critical for interagency coordination, good customer relations, and program implementation.
   
   
5. The lead Federal agency (usually FEMA) has responsibility for coordinating (rather than directing or managing) the implementation and funding processes of other Federal agency programs.  FEMA does not fund programs that are within the authorities of another Federal agency, or other agencies’ participation in disaster operations.
   
   
6. Mitigation programs and choices are most effective and economical if implemented in the early stages of recovery or before a disaster occurs (such as buying insurance or adopting appropriate codes through participation in the NFIP or planning efforts with NFIP Flood Mitigation Assistance funds).
   
   
7. The concept of sustainability brings a relatively new approach to environmental, economic, and social thought and has the potential to enhance the achievement of mitigation goals in the postdisaster (as well as pre-disaster) environment.  Sustainability is development that maintains or enhances economic opportunity and community well-being while respecting, protecting, and restoring the natural environment upon which people and economies depend.  Sustainable redevelopment is simply the application of the concepts and practices of sustainable development to the disaster recovery process.
   
   
5. Concept of Operations
   
   
1. General
   
   
1. Federal agencies operate as a team in disaster recovery, bringing to the table the resources of their agencies to address identified needs.  The President’s disaster program is coordinated by FEMA.  Agencies share their program information and make their assistance available through the coordination mechanism of the FRP when a Presidential declaration is made.
   
   
2. The initiation of recovery programs is based on the fact that response actions are well underway (or have not been needed) and recovery actions would not interfere with ongoing response activities; that the communities and families affected are ready for the decision making that the programs require; that effective, coordinated, Federal-State recovery planning continues to take place; and that communications and support facilities for effective recovery have been restored.  The FCO makes use of coordination meetings with State and local officials, along with Federal agency recovery officials, to identify priorities and programs requested, identify and resolve funding issues, and review the milestones for program delivery.  Milestones should be established only after consultation with all major programs.
   
   
3. Recovery program funding is provided directly to the affected State, locality, business, or individual/family.  Where assistance is provided to a State for community/infrastructure recovery programs, the State administers the grant and passes the funding to affected communities.  (This method contrasts with the funding mechanisms used for response activities that include procurement from commercial sources and issuance of mission assignments to agencies providing direct Federal assistance.)
   
   
2.  Recovery Organization in the Disaster Field Office
   
   

The Emergency Response Team (ERT) Operations Section in the DFO includes a Human Services Branch and an Infrastructure Support Branch.  These branches, along with the Deputy FCO for Mitigation, form the program part of the recovery organization.   The Operations Section Chief is the central coordination point for Federal and State agencies and voluntary organizations in the implementation of recovery programs.  (These responsibilities may be delegated to the Human Services Branch or Infrastructure Support Branch, and also may be accomplished by the DFCO-M.)  In addition, liaisons among the Human Services and Infrastructure Support Branches and the Mitigation organization may be appointed for intra-agency coordination.  Agencies having recovery programs and support and technical services will be included in the ERT organization.  The structure will expand or contract as appropriate, depending on the nature of the disaster recovery needs.  Where no response component is established, the operation may be scaled back to include only the Human Services Branch and/or the Infrastructure Support Branch and/or the Mitigation organization. 


1. Human Services Branch
   
   
1. This branch is staffed by the Individual Assistance Officer, other program officers, DRC personnel, program liaisons, and others.  It is led by the Human Services Officer (HSO), whose functions are to:
   
   
1. Assist the FCO to assess individual, family, and business needs in the disaster area and, working with State and local officials and other Federal agencies, initiate programs that address those needs;
   
   
2. Initiate advertisement of FEMA’s toll-free teleregistration service and establish one or more DRCs.  Openings should be coordinated with the program delivery needs of all Federal and State agencies, including SBA;
   
   
3. Coordinate program implementation with agencies and organizations;
   
   
4. Initiate delivery of the individual assistance programs authorized by the Stafford Act;
   
   
5. Plan and coordinate with the National Processing Service Centers (NPSCs) the receipt and processing of applications for the Disaster  Housing program; refer cases to the State for processing in the Individual and Family Grant (IFG) program; and coordinate with SBA the delivery of its disaster loan programs;
   
   
6. In coordination with the NPSCs, ensure policies and procedures are in place to prevent and rectify duplication of benefits or receipt of excessive assistance; and
   
   
7. Perform grant management functions with respect to grant programs for individuals/families that are implemented by FEMA and the State.
   
   
2. Where the size of the disaster warrants, the HSO may appoint Assistant or Deputy HSOs, or the Individual Assistance Officer, to manage the specific program groups within the Human Services Branch.  FEMA staff, along with representatives from the State and Federal agencies with assistance programs in each of these groups, should staff the branch:
   
   
1. ESF #6 — Mass Care and ESF #11 — Food.  In a recovery operation that also involves response, these ESFs will be included in the Human Services Branch.  See the appropriate ESF annex for details and responsibilities.
   
   
2. Disaster Housing Group.  A FEMA representative leads this group, along with appropriate State representation, especially if a portion of the mission is to be performed by the State.  Functions such as policy coordination, resource identification, and manufactured housing operations (including environmental review), and tasks such as project monitoring and pre-placement interviewing are among the responsibilities of the group.
   
   
3.  IFG Group.  The IFG program is funded jointly by FEMA and the State, but is administered by the State.  FEMA and the State should co-lead this function, which consists of technical assistance to the State, training, funding, grant management, and program monitoring.
   
   
4.  Program Coordination Group.   This group handles the issues not enumerated above.  Particularly important is the function of coordination with SBA and the Farm Services Agency (and other USDA Federal and State agencies).  Other agencies that can be coordinated through this group include the Internal Revenue Service, Social Security Administration, Department of Health and Human Services, Department of Labor, and Young Lawyers Division of the American Bar Association.  Program emphases include SBA disaster loans, farm programs, tax counseling, Social Security check replacement, Crisis Counseling Assistance and Training, stress management counseling programs, Disaster Unemployment Assistance, and Disaster Legal Services.   Establishment of application, intake, or counseling sites to accommodate these and other applicable programs should be coordinated within the group.
   
   
5.  Donations Management Group.  Where the State is prepared to handle donations management, this function should be led by the State.  Otherwise, it should be led jointly by the State and FEMA.  Functions include setting up a toll-free telephone number, matching donated goods and services with validated needs, setting up a Donations Coordination Team, and overseeing the shipping, receiving, and distribution of goods and services.
   
   
6. Voluntary Organization Coordination Group.  FEMA’s Voluntary Agency Liaisons lead this function, which is focused on starting case assistance to address unmet needs, working with voluntary organizations to develop community-based long-term recovery organizations to manage case assistance related to unmet needs, and coordinating volunteers.  Representatives from national, State, and local voluntary organizations with programs applicable in the disaster area should staff this function, as far as practicable.
   
   
7. Agencies offering support and technical services in the human services arena will also staff the Human Services Branch.
   
   
2. Infrastructure Support Branch
   
   

The Infrastructure Support Branch is headed by the Infrastructure Support Branch Chief and is staffed with Public Assistance Officers, Public Assistance Coordinators, and Project Officers who are responsible for the administration and proper operation and delivery of assistance to State and local applicants.  Personnel from ESF #3 — Public Works and Engineering and response representatives from ESF #12 — Energy also staff the branch.  Staff from other agencies offering support and technical services also may be attached to the branch, as well as liaison with the DFCO-M.  The Infrastructure Support Branch Chief’s functions are to: 


1. Coordinate the implementation and management of recovery programs between and among State and Federal officials;
   
   
2. Serve as technical infrastructure program advisor to the FCO;
   
   
3. Supervise other Federal agencies providing direct Federal assistance under a FEMA mission assignment;
   
   
4. Coordinate the completion of mission assignments;
   
   
5. Identify mitigation opportunities; and
   
   
6. Work with the Public Assistance Officer to carry out recovery functions for programs authorized under the Stafford Act.
   
   
3. Mitigation Operations
   
   
1. The Deputy FCO for Mitigation leads this organization, which is staffed with program specialists, field coordinators, and technicians. Activities include:
   
   
1.  Coordinate between and among State and Federal officials the implementation and management of mitigation activities;
   
   
2.  Provide technical assistance in execution of the Early Implementation Strategy;
   
   
3.  Provide technical support to the Human Services Officer, Infrastructure Support Branch Chief, and Community Relations staff;
   
   
4.  Plan comprehensively for hazard mitigation;
   
   
5.  Address environmental consequences of the disaster, including those in coastal zones;
   
   
6.  Map hazards and analyze risks, which may be done by interagency hazard mitigation teams;
   
   
7.  Accomplish cost-benefit analysis and training;
   
   
8.  Assist communities to develop building codes;
   
   
9.  Develop and deliver training and education programs;
   
   
10.  Disseminate public awareness and information materials at DRCs;
    
    
11.  Establish Reconstruction Information Centers (RICs) to offer mitigation and reconstruction information assistance;
    
    
12.  Identify disaster-specific mitigation issues, strategies, opportunities, and measures;
    
    
13.  Work within FEMA and other Federal agencies to coordinate opportunities for long-term recovery with State and local planning officials, when appropriate; and
    
    
14.  Assist communities to promote sustainable development.
    
    
2. As the Human Services and Infrastructure Support Branches are beginning early assessments of needs during response, it is also critical that the Mitigation organization assemble and coordinate relevant Federal and State agencies to assess mitigation program needs and match Federal and State resources and programs to meet those needs.  This early implementation strategy sets goals for all mitigation partnership players and provides a platform for ongoing coordination and revision of the strategy as necessary.
   
   
3. Several Federal mitigation-related programs (e.g., the NFIP, the Hazard Mitigation Grant Program, and the Earthquake Program) are administered through existing grant mechanisms and standing relationships with State and local governments.  These relationships, as well as those established by the FRP and potential relationships with agencies involved in recovery activities, increase the opportunity for communication and coordination of mitigation in the aftermath of a disaster.
   
   
4. To achieve optimum effectiveness, mitigation resources and coordination within the recovery context in a DFO should flow through the centralized function of the DFCO-M, using staff of response operations.  After DFO closure, the coordination function is transferred to the Mitigation Division of the FEMA Regional Office or another lead Federal agency office.  Mitigation operations have the flexibility to adapt to different sizes and types of disasters. Mitigation personnel will participate in intra- and interagency coordination to assist in identifying mitigation opportunities and areas of possible funding.
   
   
6. Assistance to Individuals, Families, and Businesses
   
   

This section describes the initiation and coordination of programs providing recovery assistance directly to individuals, families, and businesses.  It also describes the initiation of the process by which individuals gain access to Disaster Housing (FEMA), Individual and Family Grant (FEMA-State), and disaster loan (SBA) programs.  Other Federal agencies, as well as State and voluntary organizations, also have programs that may be available to disaster victims.  A matrix outlining these programs is included at the end of this annex. 


1. Program Initiation
   
   

Some of the recovery programs for individuals, families, and businesses are automatically triggered by the specific language of the President’s declaration.  Others, such as the Nuclear Regulatory Commission’s insurance benefit program in the event of a nuclear incident and certain farm benefit programs operated by USDA, do not require a Presidential declaration, but may require a local or State request.  Still others, such as the Crisis Counseling Assistance and Training program, may be available following a Presidential declaration if needed and upon the Governor’s request and specific agency approval.  During the initial field-level coordination meetings of recovery agencies, program representatives should advise the FCO on whether any of the needed programs must be requested separately.  Plans should be made for: 


1. Providing technical assistance to the State for requesting these programs;
   
   
2. Arranging for damage or management information assessments;
   
   
3. Arranging for any State cost-sharing required by law or regulation; and
   
   
4. Noting and observing any time frames associated with those requests.
   
   
2. Combined Registration and Inspection for Housing, Disaster Loans, and IFG Assistance
   
   
1. FEMA establishes a toll-free registration telephone number (often known as teleregistration) to give individuals, families, and businesses access to three widely used programs: the Disaster Housing program, the SBA disaster loan program, and the IFG program administered by the State.  Teleregistration service is available in a variety of languages.  The phone bank also offers referrals to many other Federal, State, local, and voluntary organization programs and resources.  Agencies having local offices should supply information to FEMA about how to contact them as soon as possible after a disaster declaration, or, ideally, during pre-disaster planning meetings or conferences.
   
   
2. FEMA provides inspection services both for the Disaster Housing program and to assist States in administering the IFG program.  Inspectors verify the extent of damages and the value of losses to housing and other personal property.  FEMA refers applications and inspection information to SBA for its information in addressing housing and personal property needs.  Finally, FEMA assists SBA by making additional determinations about whether the applicant should be referred to SBA for a disaster loan based on criteria provided by SBA, and by making subsequent referrals of SBA loan denials to the State for meeting unmet needs.
   
   
3. FEMA processes Disaster Housing and IFG applications at NPSCs, which operate another critical customer service, the helpline.  Assistance is available through this toll-free telephone number in determining the status of applications and obtaining referrals to sources of assistance other than Disaster Housing, disaster loans, and IFG.  Federal, State, local, and private organizations should provide timely and accurate referral information to helpline staff.
   
   
4. Disaster Recovery Centers may be opened to provide on-site information services.  These may vary in each disaster and include taking applications, serving as a forum for State and local agencies’ disaster programs, assisting families and businesses to fill out SBA disaster loan applications, answering status questions, or providing reconstruction and mitigation information.  Federal agencies often are represented in DRCs to offer and explain programs that are tailored to meet disaster victims’ and service providers’ needs (e.g., HUD’s section 203(k) mortgage assistance programs for disaster victims).  The FCO and HSO will coordinate with Federal, State, voluntary, and private-sector partners who offer services to establish, identify the purposes of, staff, and set the days and hours of operation of these centers.
   
   
3. Program Procedures of Other Agencies
   
   

Other Federal, State, local, and voluntary organizations have established procedures for accepting and processing disaster applications.  They may have toll-free telephone lines or sites where individuals, families, and businesses may receive information and application assistance for their specific recovery programs.  Components of other agency programs should be coordinated with the FCO and his/her staff (the ERT Operations Section Chief, Human Services Officer, and/or Infrastructure Support Branch Chief), State and local government staff, and FEMA’s Office of Emergency Information and Media Affairs, so that consistent decision making and public information may be provided.  Public affairs offices of Federal and State agencies and voluntary organizations should be advised of all recovery activities.  Coordination meetings among agencies offering assistance are ideal forums in which to ensure that customers receive accurate, timely service for identified needs. 


4. Sequence of Assistance Delivery and Duplication of Benefits
   
   
1. Disaster assistance programs for individuals, families, and businesses often overlap in their coverage and purpose.  Section 312 of the Stafford Act, Duplication of Benefits, requires that no person, business concern, or other entity receive Federal disaster assistance for any part of a loss that has been covered by any other program, insurance, or any other source.  FEMA has established a policy for preventing and rectifying duplication.  The duplication of benefits policy excludes expendable items from being considered duplicative.  Expendable items include clothing, linens, and basic kitchenware.  No checks for duplication need to be made for such items.  See 44 CFR 206.191 for a more complete explanation.
   
   
2. The policy includes the concept of a sequence of delivery, which establishes the order in which the major forms of overlapping assistance should be provided.  The agency that has primary responsibility for delivering a certain type of assistance should provide that assistance first, and may do so without regard to other agencies with similar assistance that are lower in the sequence.  Agencies are not prohibited from disrupting the sequence to expedite the recovery of an applicant.  However, the agency that disrupts the sequence must take the corrective action.  The sequence of delivery is:
   
   
1. Voluntary organizations’ emergency assistance; insurance proceeds (including additional living expense benefits);
   
   
2. Disaster Housing assistance, including rental assistance, funds for minimal repairs, and provision of housing units;
   
   
3. SBA disaster loans for individuals and nonfarm businesses, and USDA disaster loans for agricultural enterprises;
   
   
4. IFG awards;
   
   
5. e. Voluntary organizations’ additional assistance (i.e., nonemergency) benefits; and
   
   
6. f. Other programs that are not primarily intended for disaster recovery (e.g., FEMA’s Cora C. Brown Fund and FEMA’s mitigation and property acquisition programs).
   
   
An example of duplication of benefits is that FEMA, primary agency in the delivery of Disaster Housing assistance, provides funds for minimal repairs (e.g., a new window or door to make a home habitable).  SBA might also include funds for these two items in a loan.  This  would be a duplication.  To rectify it, SBA would be required to recoup the loan or reduce the loan amount by the dollar value of the window or door. 


3. FEMA’s disaster assistance automated information and processing system is a decision-making tool that aids FEMA, SBA, the State, and voluntary organizations in preventing and rectifying duplication of benefits.  Because assistance requests, approvals of assistance, and insurance benefit information are shared, agency decision makers can avoid awarding assistance already provided.  Agencies other than FEMA, SBA, the State, and certain voluntary organizations do not normally have access to FEMA’s information-sharing system.  However, such agencies may request information from FEMA if an applicant has requested their assistance and authorized FEMA to release the information, and if the voluntary organization intends to deliver a benefit that duplicates housing or personal property repair or replacement or delivers medical or death benefits.
   
   
7. Assistance to State and Local Governments
   
   

The overall responsibility for accomplishing recovery of public facilities, infrastructure, and essential government services rests with State and local governments.  Insurance and Federal agency disaster assistance are supplemental and are not meant to supplant State and local prerogatives, programs, or responsibilities.


There is a broad array of Federal assistance programs for disaster recovery in the public sector.  This section describes the delivery system and coordination of recovery assistance programs, many of which are delivered in the form of grants, loans, and direct payments to State and local governments, certain private nonprofit (PNP) organizations, and Indian Tribes.  Some forms of State and local assistance are provided as a “pass through” for aiding individuals and families.  Others are intended to address recovery needs for planning and support/technical services to augment the capacity of State and local governments. 


Much of the Federal recovery assistance directed to State and local governments is directed toward rehabilitation, reconstruction, replacement, or relocation of housing; repairing, replacing, or rebuilding damaged public facilities (e.g., public buildings, utilities, roads, bridges, water control facilities) and infrastructure; and mitigation planning and reconstruction management, incorporating mitigation concepts.  This section describes the early coordination mechanisms for activating the appropriate recovery programs and delivering program assistance efficiently and effectively. 


1. Coordination Issues in Assistance for State and Local Governments
   
   
1. Federal agencies with direct recovery and mitigation programs for State and local governments normally initiate and implement their programs concurrently with FEMA’s Public Assistance program.  Some Federal programs overlap in coverage and purpose, and may be initiated and operated in various ways.
   
   
2. The ERT Operations Section Chief will be the primary focal point for the coordination of Federal recovery assistance to State and local governments, with advice and assistance from the DFCO-M.  He/she may delegate the coordination responsibility to the Infrastructure Support Branch Chief (or FEMA Public Assistance Officer) when program or operational issues are limited to State and local assistance programs (such as duplication of benefits, duplication of effort, or program timing).  The Public Assistance Officer and State and Federal recovery agencies work together to identify and resolve these issues.  Field coordination activities include:
   
   
1. Sharing management information and assessments;
   
   
2. Identifying needs;
   
   
3. Identifying program gaps or funding shortfalls; and
   
   
4. Resolving program duplication issues.
   
   
For example, if restoration of public highways is at issue with respect to which Federal program should fund its repair, the involved agencies (the Federal Highway Administration, Bureau of Indian Affairs, or FEMA) coordinate the determination of which agency should provide funding, based on current legislation, regulations, and purpose of the requested funds.


2. Duplication of Benefits
   
   
1. Section 312 of the Stafford Act, Duplication of Benefits, also applies to FEMA’s Public Assistance program when it states that the head of each Federal agency will ensure that no person, business concern, or other entity will receive Federal assistance if it has received financial assistance under any other program or from insurance.
   
   
2. FEMA’s Public Assistance program benefits are supplemental to insurance, which is primary. Actual and anticipated insurance recoveries will be deducted from otherwise eligible costs, thus preventing any duplication of benefits.
   
   
3. Additionally, FEMA generally does not fund permanent repair projects when another Federal agency has specific authority to restore facilities damaged or destroyed by an event that is declared a major disaster.
   
   
4. Other Federal agencies also are governed by legislation outlining measures to prevent duplication of benefits.  The principle involved is that the agencies are charged not to make their Federal funds available for uses the cost of which may be reimbursable by a primary disaster funding source in the sequence of delivery.  For example, some costs for repair or replacement of infrastructure are generally first borne by insurance or FEMA’s section 406 program, rather than HUD’s Community Development Block Grant program or the Economic Development Administration’s grant programs.
   
   
8. Accessing Federal Assistance
   
   
1. Major Federal disaster recovery programs and support/technical services are summarized in the following matrix.  Included is assistance to individuals, families, businesses, and State and local governments.
   
   
2. For more detailed information, State and local officials should consult the interagency publication, Disaster Assistance:  A Guide to Recovery Programs (November 1995).  They also may contact the appropriate Federal agency’s representative in the DFO or the Federal agency’s local field office.