PAD: Recovery and Mitigation Ch. 2-3, Ch.8 & 10

Recovery plan

"A plan developed by each State, with assistance from the responding Federal agencies, to restore the affected area."

Reconstruction

"Actions taken to re-establish a community after a period of rehabilitation subsequent to a disaster. Actions would include construction of permanent housing, full restoration of all services, and complete resumption of the pre-disaster state."

Recover

"Activities that include the development, coordination, and execution of service- and site-restoration plans; the reconstitution of government operations and services; individual, private- sector, nongovernmental, and public-assistance programs to provide housing and to promote restoration; long-term care and treatment of affected persons; additional measures for social, political, environmental, and economic restoration; evaluation of the incident to identify lessons learned; post-incident reporting; and development of initiatives to mitigate the effects of future incidents (Source—NIMS, March 2004)." (DHS/ODP, State and Urban Area Homeland Security Strategy: Guidance on Aligning Strategies with the NPG, 2006, p. 4)

Red Team/Red Teaming

"Analytical Red Teaming uses an adversary perspective to advance security by providing an alternative view of threats, vulnerabilities, and countermeasures. Without testing the physical limitations of antiterrorism measures analytical red teaming can offer insight to challenge prevailing views, prevent surprise, help allocate resources, and expand the bounds of imagination. Analytical Red Teaming may occur as part of a discussion-based exercise (e.g., TTX) or as a stand-alone activity. This process indoctrinates participants into the mind-set of a specific adversary, modeled upon the results of the threat analysis. Once this perspective has been viably gained, participants use it to build a threat or attack that assaults the plan(s), policy(s), or procedure(s) under examination "a technique for assessing vulnerability that involves viewing a potential target from the perspective of an attacker to identify its hidden vulnerabilities, and to anticipate possible modes of attack." (DHS, The ODP Guidelines..., 2003, Glossary, p. 3 (30) Red Team/Red Teaming: "A group of subject-matter experts (SME), with various appropriate disciplinary backgrounds, that provides an independent peer review of plans and processes, acts as a devil's advocate, and knowledgeably role-plays the adversary, using a controlled, realistic interactive process during operations planning, training, and exercising." (DHS, TOPOFF 3 FAQ, 2005) Red Team/Red Teaming: "Purposefully testing a system, people, and equipment to probe for weaknesses can improve their security by mimicking the techniques the adversary would use to carry out an attack. When done at the system (rather than component) level, management can identify system improvements."

Recovery short term

"Even as the immediate imperatives for response to an incident are being addressed, the need to begin recovery operations emerges. In an almost imperceptible evolution, response efforts will transition to short-term recovery operations, such as the restoration of interrupted utility services, reestablishment of transportation routes, and the provision of food and shelter for those displaced by the disaster - actions that will help individuals, communities, and the Nation return to a general state of normalcy. While short-term recovery efforts are the primary responsibility of States and communities, they also involve significant contributions from all sectors of our society - Federal, State, local, and Tribal governments, the private sector, nonprofit partners, as well as individual citizens. As the priorities and needs of an incident evolve, people, assets, and resources will be reassigned or demobilized to provide a flexible and scalable response, evolving as needs evolve, changing as the incident priorities change. As immediate life-saving and life-sustaining activities subside, and short-term recovery decisions are made over a period of weeks or even months, we must recognize that these efforts are steps to an effective transition to long-term rebuilding and revitalization efforts." (White House, National Strategy for Homeland Security, Homeland Security Council, October 2007, p. 37)

Recovery Point Objective:

"From a business perspective RPO is the maximum amount of data loss the business can incur in an event. The targeted point in time to which systems and data must be recovered after an outage as determined by the business unit."

Recovery Exit Strategy:

"Just what is included in the recovery phase is open to question. This paper does not address "exit criteria." The recovery phase must have pre-existing exit criteria which are used to generate goals that indicate when success has been achieved during the recovery phase. Otherwise, as with post-Katrina, success is a moving target and the questions of how much recovery is needed and how much can be afforded leave the operational realm and enter the political realm." (Perkins, Shaping DHS Doctrine..., 2007, p. 21, footnote13)

Recovery Long Term

"Long-term recovery, which is outside the scope of the Framework [NRF] may involve some of the same actions but may continue for a number of months or years, depending on the severity and extent of the damage sustained. For example, long-term recovery may include the complete redevelopment of damaged areas." (DHS, NRF, 2008, p. 45)

Recovery Objectives DHS

"Objective 5.1 Strengthen nationwide recovery plans and capabilities. We will work with our partners to ensure the Nation's capability to recover from multiple or simultaneous disasters, including terrorist use of weapons of mass destruction, other man-made hazards and natural disasters, through the development and maintenance of short- and long-term plans and capabilities." (DHS, Strategic Plan 2004, p. 32) "Objective 5.2 Provide scalable and robust all-hazard recovery assistance: We will lead the Nation's recovery from the impacts of disasters and emergencies. We will deliver timely and appropriate assistance to individuals and families following acts of terrorism, natural disasters and other emergencies, acknowledging the unique requirements of recovery from catastrophic disasters and weapons of mass destruction events. We will provide help to restore services and public facilities, and provide states and other partners with professional, readily deployable, trained and certified leaders and staff to manage all levels and types of disasters. We will make assistance available to states and local governments for the management, mitigation and control of local hazards and emergencies, which threaten to become major disasters." (DHS, Strategic Plan 2004, p. 32)

Recovery

"Recovery is the effort to restore infrastructure and the social and economic life of a community to normal, but it should incorporate mitigation as a goal. For the short term, recovery may mean bringing necessary lifeline systems (e.g., power, communication, water and sewage, and transportation) up to an acceptable standard while providing for basic human needs (e.g., food, clothing, and shelter) and ensuring that the societal needs of individuals and the 10/27/08 1026 community are met (e.g., maintain the rule of law, provide crisis counseling, demonstrate that people do care and that help is becoming available). Once some stability is achieved, the jurisdiction can begin recovery efforts for the long term, restoring economic activity and rebuilding community facilities and family housing with attention to long-term mitigation needs." (FEMA, Guide For All-Hazard Emergency Operations Planning (SLG 101), 1996, p. 9) Recovery: Activities traditionally associated with providing Federal supplemental disaster recovery assistance under a Presidential major disaster declaration. These activities usually begin within days after the event and continue after the response activities' cease. Recovery includes individual and public assistance programs, which provide temporary housing assistance, grants and loans to eligible individuals and government entities to recover from the effects of a disaster. (FEMA FRP, 1999, Appendix B) Recovery: "Rebuilding communities so individuals, businesses, and government infrastructure can function on their own, return to normalcy, and are protected against future hazards." (FEMA. A Nation Prepared - FEMA Strategic Plan - Fiscal Years 2003-2008, 2002, p. 59 (Glossary)) Recovery: "The Recovery mission area is the development, coordination, and execution of service- and site-restoration plans for impacted communities and the reconstitution of government operations and services through individual, private-sector, non-governmental, and public assistance programs that: identify needs and define resources; provide housing and promote restoration; address long-term care and treatment of affected persons; implement additional measures for community restoration; incorporate mitigation measures and techniques, as feasible; evaluate the incident to identify lessons learned; and develop initiatives to mitigate the effects of future incidents." (FEMA, Homeland Security Exercise & Eval Pgm Glossary, 08) Recovery: "The development, coordination, and execution of service− and site-restoration plans; the reconstitution of government operations and services; individual, private sector, nongovernmental, and public assistance programs to provide housing and to promote restoration; long-term care and treatment of affected persons; additional measures for social, political, environmental, and economic restoration; evaluation of the incident to identify lessons learned; postincident reporting; and development of initiatives to mitigate the effects of future incidents." (DHS, National Preparedness Goal, December 2005 draft {citing NIMS March 2004); FEMA, National Incident Management System (FEMA 501/Draft), August 2007, pp. 156-157) Recovery: "...recovery is considered as: 'the coordinated process of supporting the reconstruction of physical infrastructure and the restoration of economic, physical and emotional well being. Through this process, it is preferable that individuals and communities are supported in the management of their own recovery as they know best what their needs are, and this approach is most likely to build community capacity and sustainability.'" (Gov. of South Australia, Collaboration is the Key, 2005, p. 3)

Red Team Hanbook:

"The Red Team Handbook is used solely in operations-based prevention exercises that employ red teams. This document aids red team operators, safety controllers, and evaluators in the conduct of safe and valid red team exercise activity. It also provides essential information (not included in any other exercise documents) to red team operators, which enables them to understand their roles in exercise execution

Recovery/Remediation

"The ability to restore essential services, businesses, and commerce; cleanup the environment and render the affected area safe; compensate victims; provide long-term mental health and other services to victims and the public; and restore a sense of well-being in the community." (Homeland Security Council, National Planning Scenarios, 2006 Final, p. vi)

Recovery

"The implementation of prioritized actions required to return an organization's processes and support functions to operational stability following an interruption or disaster." (

Recovery time objective (RTO)

"The period of time within which systems, applications, or functions must be recovered after an outage (e.g. one business day). RTO's are often used as the basis for the development of recovery strategies, and as a determinant as to whether or not to implement the recovery strategies during a disaster situation. Similar Terms: Maximum Allowable Downtime."

Recovery

"The recovery mission is the sustained commitment to return an impacted population and geographic area to a sustainable standard of living following an incident. This supports the goal of creating resilient populations and communities. Whereas response is focused primarily on minimizing immediate impacts, minimizing immediate consequences, and setting the conditions for long-term success, recovery is focused on restoring societies. Without a commitment to that restoration, resiliency is not possible."

The recovery strategy should include provisions for the return of the following services, as applicable:

(1) Critical infrastructure (water, gas, electricity, and waste management) (2) Telecommunications and cyber systems (3) Distribution systems or networks for essential goods (food, clothing, personal supplies, and services) (4) Transportation systems, networks and infrastructure (5) Built environment (including residential, commercial, and industrial uses) (6) Psychosocial services (7) Health services (8) Continuity of governance systems."

four types of disaster assistance authorized under the Stafford act

1) Individual assistance: - Assiatance to individuals including housing assistance and grants to support emergency needs 2) Public Assistance: - Assistance to state and local gov and eligible non-profits to cover the costs of responding to a disaster and repairing associated damages 3) Hazard Mitigation: Assistance to state and local government and eligible non profits to permanently reduce or eliminate the long term impacts of hazards n 4) Fire management assistance

Recovery is s complex process. Some of the complexities include but are not limited to

1) It is dependent on what happens in other phases of an emergency 2) Cascadin consequences can create secondary impacts 3) It involves a larger group of stakeholders with varying interests 4) Assistance providers are also varied and their actions are fragmented 5) Recovery goals are often hard to quantify 6) Successes may be difficult to claim due to varying stakeholder goals

The Disaster Relief Fund:

1) Congress appropriates money to the disaster relief fund for disaster assistance authorized by the Stafford Act 2) The fund are then comprised of "no year money" they remain available until expended 3) The DRF funds FEMA readiness capabilities so that these resources are in place when the president issues a declaration 4) Disaster relief funding does not come from the annaual FEMA operating budget

Recovery is often misunderstood to only involve money. Smith and birkland identify three fundamental roadblocks to sustainable disaster recovery

1) Differing sets of program rules and local needs 2) the uncoordinated timing of assistance 3) Low levels of horizontal and vertical integration

Widely held beliefs among members of disaster recovery assistance networks is that the responsibility for coordinating disaster recovery relief efforts falls squarely on the shoulders of

1) Federal 2) State 3) Local officials

Fire management Assistance Grants (FMAG) The Stafford Act authorizes the president to provide fire management assistance in the form of:

1) Grants 2) Equipment 3) Personnel 4) Supplies

The NDRF recommends specific topics be addressed when developing pre-disaster plans including:

- Assessment - Communications and outreach - Stakeholders - Partnerships - Guiding Principles and recovery priorities - Organization approach - Concept of operations - Process for post disaster recovery planning - Exercise - Planning considerations

The NDRF recommends adressing specific topics when developing post disaster plans

- Assessment - Leadership - Support - Communication and outreach - Existing guidance documents - build consensus - Recovery issues - Recovery vision and goals

The NDRF introduces six recovery support functions addressing

- Community planning and capacity building - Economic - health and social services - Housing - Infrastructure systems - Natural and cultural resources

The national disaster recovery framework defines

- Core recovery principles - Roles and responsibilities of recovery coordinators and other stakeholders - A coordinating structure that facilitates communication and collaboration among all stakeholders - Guidence for pre and post disaster recovery planning - the overall process by which communities can capitalize on opportunities to rebuild stronger smarter and safer

Gavin Smith identifies internal and external plan quality principles desighned to help promote better plans

- Issue identification - Policies - Fact base - Implementation - Monitoring and Evaluation - Internal consistency - Organization clarity - Inter-organizational coordination - compliance

While the NDRP does a great job of establishing an effective coordinted and consistent framework for disaster recovery planning several are of weakness still exists such as

- Lack of clear metrics for evaluating success - Limited pre-disaster funding for recovery planning - Concerns about the authority of and funding for the recovery coordinator position, particularly at the local level - Marginal participation of professional land use planners in emergency planning - Potential limitations for fostering horizontal integration particularly at the local/neighborhood level

Alternative dispute resolution (ADR) principles can be applied to the planning process to improve outcomes, some techniques include

- Repeated interaction and reciprocal dialogue - Creations of incentives to participate and share information - Demonstration of benefits of ADR - Clarification of the fact base - identification of new perspectives and the creation of multiple options - High stakeholders involvement - Redress of existing power imbalances

Recovery Principle:

- timely and responsive; - leadership; - people focus; - locally and community driven; - partnerships; - coordination; - integration and sustainability; - fair and transparent administration; - communication; - information management; - planning; and - efficient and effective management

Recording of the Nixon: Elvis partnerships are best captured on

1) 3 minutes on MP3 2) 6 minutes of CD 3) 9 minutes classic vinyl 4) 18 1/2 minutes on reel tape

Recommendation for improving public sector disaster recovery assistance delivery

1) Alter the culture of state and local dependence - measure recovery success by the level of capacity maintained after a disaster 2) Increase the public sectors committment to enage in pre-event planning for post disaster recovery - Expand stakeholders and improve horizontal and vertical integration 3) Enhance local capacity, self-reliance and accountability through planning commit local resources to pre-event funding, policies and technical assistance

Recommendations of the NYU report include:

1) Amend the stafford act to provie a new level of response for catastrophic disasters 2) Amend the definition of a major disaster in the Stafford act to recognize 21st century threats such as chemical, biological radio logical, and nuclear attacks and accidents 3) Eliminate the 5 million dollar cap on tax recovery asistance for state and local gov 4) Expand the Stafford act to allow FEMA to pay for in full the salaries of public employees in area stricken by a catastrophe 5) Expand Stafford act coverage to include private for profit utility providers 6) Offer a mix of grants and loans to established small business 7) Provide expedited micro grants and loans to small businesses to help defer immdeidate costs 8) Following a catastrophe, waive proof of insurance requirements and provide immediate assitance to those in need, which can later be reimbursed to the governments when insurance payments are made 9) FEMA's Public Assistance program should be revised so that money is provided in a fashion similar to block grants 10. Strengthen regulations to aggressively encourage mitigation and the reconstruction of improved infrastructure following disasters 11. Build a rider into the stafford act, giving the president, in consultation with congress, the athority to wave stafford act provisions and regulations following a catastrophe

The NDRF recommends addressing specific topics when developing post-disaster plans including

1) Assessment 2) Leadership 3) Support 4) Communication and outreach 5) Existing guidance documents 6) Build consensus 7) Recovery issues 8) Recovery vision and goals

Three types of declarations: The Stafford act authorizes the president to make three general types of declarations or commitments

1) Major disaster declarations 2) Emergency Declarations 3) Fire management assistance grants - - - A major disaster v emergency - (the stafford act definition of major disaster is relatively restrictive. For the president to declare a major disaster there must be a qualifying event that causes actual damage) - (By comparison the Stafford act definitions of emergency is broad. The president can declare an emergency before any damage occurs)

The two guiding principles of assistance under the Stafford Act

1) Supplement not supplant - Fedral assistance supplements states and local relief and recovery efforts 2) Support, not lead - Except in very unique circumstances involving exclusive or preeminent federal jurisdiction, Stafford act assistance is triggered only by a governors request for assistance and then a presidential declaration - ( the governor of an affected state can request that the president declare either a major disaster or an emergency only when the "disaster is of such severity and magnitude that effective response is beyond the capabilities of the state and the affected local government and that federal assistance is necessary

Recovery planning (successful steps)

1) Take advantage of the window of opportunity to develop an overall recovery strategy. The outside funding and technical assistance that becomes available after a disaster can help your community make progress on its long-term goals. • 2) Establish community goals and objectives. - Take the time and effort to unite the community behind agreed-upon goals and objectives. • 3) Consider the planning process as well as the plan itself. - Structure the planning process so that it is open and participatory, but also quickly leads to agreement on a broad framework for recovery. • 4) Employ multi-objective planning. - Look for opportunities to reap multiple benefits when incorporating hazard mitigation and sustainable redevelopment concepts into your recovery efforts. 5)•Be flexible. - The recovery process evolves rapidly and flexibility is mandatory. Keep your options open and take advantage of unexpected opportunities. • 6) All sources of funding are fair game. - Don't overlook non-disaster related grant programs. If expertise is not locally available, seek experienced grant writing assistance from other sources, such as regional or State agencies and the private sector. • 7) Maximize community stakeholder involvement. - - Recruit local corporations, foundations, and nonprofit or civic organizations to participate in the planning process. • 8) Maximize the use of non-traditional partners. - Marshal local nonprofit groups and organizations to supplement Federal and State agency support. 10/27/08 1030 9) Stay out of the weeds. - The recovery plan should be brief. Prioritize immediate, short-term, and long-term recovery actions; detailed design, architectural, and engineering plans can follow later." (FEMA, Rebuilding For A More Sustainable Future: An Operational Framework, November 1, 2000, p. 3-3

Flaws in evaluating success: Smith indentifies 3 flaws in the way in which a successful recovery is measured, particularly at the local government level including

1) The speed of disaster assistance delivery 2) The amount of funding received from external sources 3) The physical reconstruction of affected communities- usually to their pre-event condition

Smith refers to the three realities of disaster assistance include

1) Those who assume leaderhsip roles in recovery are not limited to members of the public sector 2) The actions of state and local govs are strongly influenced by narrowly defined federal programs 3) The all consuming effort required by staes and localities to administer these programs limits their collaborative activities including pre and psot event planning for recovery

The dimensions of disaster recovery framework include

1) Understanding local needs - The rules governing the provision of public sector assitance tend to be complex and highly prescriptive. Recovery actions are seldom guided by plans that maximize the use of all available resources 2) Timing of Disaster Assistance: - The role out of disaster recovery actions and funding does not take place in an orderly, linear fashion. The timing of some recovery programs may duplicate, interfere with or even reverse other initiatives 3) Improving integration - Challenges to the effective coordination of federal state and local partners includes horizontal fragmentation at the local level, as well as vertical fragmentation and fiscal dependency among state and local governments

Smith argues the transformation of the disaster recovery process requires

1) Understanding local needs 2) Coordinated timing of assitance 3) Horizontal and vertical integration

Recommendations for improving quasi governmental and nongovernmental disaster recovery assitance delivery

1) apply the capabilites of quasi governmental organizations to pre event planning 2) Maximize the contributions of nongovernmental organizations through existing and proposed organizational venues

Presidential Directive 8 addresses several key consideration including:

1) goals setting: - Call for developing a national preparedness goals 2) Hazards and vulnerabilities - informed by the risk to the security of the nation vulnerabilities 3) Risk: - Focused on threats that pose the greatest risk to the secuirty of the nations 4) Resources - identifies core capabilities necessary for preparedness 5) Metrics: - Allows for the tracking the progress of our ablity to build and improve the capabilities necessary to prevent, protect againts, mitigate the effects of respond to and recover from those threats 6) The naional response framework is build around a series of key principles inlcuding - Engaed partnerhsips - Tired response - Scalable, flexible and adaptable operational capabilities - Unity in effort through unified command - Readiness to act 7) The national incident management system is a comprehensive national approach to incident management that is applicable at all jurisdictional levels an across functional disciplines

Quasi-Governmental and Non-Governmental organization can:

1) provide key resources 2) Have a sound understanding of local needs 3) Forge horizontal and vertical lickages among members of the assistance network

Conclusions

1. Long-term, coordinated, systematically collected, and shared data on recovery is needed to effectively improve community resilience to future disasters 2. The use of metrics to track recovery is necessary to see what's getting better and what isn't. Data can also provide policy makers and community stakeholders with the information needed to identify priorities and make sound decisions about their future. 3. Metrics linked to recovery plans are more likely to convey information that can be converted into meaningful assessments of the cost, speed, efficiency, and sustainability of recovery policies and programs. 4. Metrics can help focus assistance on individuals and communities where it is most needed—and can potentially highlight inequalities in recovery that should be addressed.

Reconstruction Operations "Agencies must identify and outline a plan to return to normal operations once agency heads or their successors determine that reconstitution operations for resuming normal business operations can be initiated. Agencies must

1. Provide an executable plan for transitioning back to efficient normal operational status from continuity of operations status, once a threat or disruption has passed 2. Coordinate and preplan options for agency reconstitution regardless of the level of disruption that originally prompted the agency to implement its continuity of operations plan. These options must include moving operations from the continuity or devolution location to either the original operating facility or, if necessary, to a new operating facility 3. Outline the necessary procedures, whether under a standard continuity of operations scenario or under a devolution scenario, for conducting a smooth transition from the relocation site to a new facility."

typical recovery actions may include

1. Repair and replacement of disaster damaged public facilities (roads, bridges, municipal buildings, schools, hospitals, qualified non-profits); 2. Debris cleanup and removal; 3. Temporary housing and other assistance for disasters victims and their families; 4. Low-interest loans to help individuals and businesses with long-term rebuilding and mitigation measures; 5. Restoration of public services (electric power, water, sewer, telephone); 6. Crisis counseling and mental health; 7. Disaster unemployment; and 8. Planning and programs for long-term economic stabilization, community recovery and mitigation." (DHS, National Response Plan (Draft #1), Feb. 25, 2004, p. 16)

Recovery site:

A designated site for the recovery of business unit, technology, or other operations, which are critical to the enterprise. Related Terms: Alternate Site, Cold Site, Hot Site, Interim Site, Internal Hot Site, and Warm Sit

The american Planning association Briefings papers, Planning for post diaster recovery states

A high quality recovery process informed by data can provide a opportunity to build future resilience by taking advantage of the increased interest and resources present after a disaster.

Reconstruction

Actions taken under the surviving command authority to reestablish a damaged or destroyed headquarters staffed by survivors of the attack." (USACE, Planning and Operations Guidelines, Annex V: Definitions and Common Terms, 1985, p. V-4)

Principles of Emergency management

Definition Emergency management is the managerial function charged with creating the framework within which communities reduce vulnerability to hazards and cope with disasters. Vision Emergency management seeks to promote safer, less vulnerable communities with the capacity to cope with hazards and disasters. Mission Emergency Management protects communities by coordinating and integrating all activities necessary to build, sustain, and improve the capability to mitigate against, prepare for, respond to, and recover from threatened or actual natural disasters, acts of terrorism, or other man-made disasters. Principles Emergency Management must be: 1. Comprehensive — emergency managers consider and take into account all hazards, all phases, all stakeholders and all impacts relevant to disasters. 2. Progressive — emergency managers anticipate future disasters and take preventive and preparatory measures to build disaster-resistant and disaster-resilient communities. 3. Risk-Driven — emergency managers use sound risk management principles (hazard identification, risk analysis, and impact analysis) in assigning priorities and resources. 4. Integrated — emergency managers ensure unity of effort among all levels of government and all elements of a community. 5. Collaborative — emergency managers create and sustain broad and sincere relationships among individuals and organizations to encourage trust, advocate a team atmosphere, build consensus, and facilitate communication. 6. Coordinated — emergency managers synchronize the activities of all relevant stakeholders to achieve a common purpose. 7. Flexible — emergency managers use creative and innovative approaches in solving disaster challenges. 8. Professional — emergency managers value a science and knowledge-based approach based on education, training, experience, ethical practice, public stewardship and continuous improvement.

Key terms

Eligible applicant: - Persons or entities determined to need assistance Direct federal assistance: - Federal agency support in performing emergency work or debris removal Cost share: - The portion of disaster funding that the requesting state typically is required to cover. It may vary from program to program FEMA: - A grant agreement between the state and FEMA that sets fort the terms uder which FEMA will obligate and distribute disaster assistance funding

Major disaster vs Emergency Declaration: The Stafford Act Section 102 Definition (42 U.S.C. 5122) states

Emergency: - Means any occasion or instance for which in the determination of the president, federal assistance is needed to supplement State and Local efforts and capabilities to save lives and protect property and health and safety, or to lessen or avert the threat of catastrophe in any part of the US Major Disaster: Means any natural catastrophe or regardless of cause any fire flood or explosion in any part of the US which in the determination of the president causes damages of sufficient severity and magnitude to warrant major disaster assistace under this act to supplment the efforts and available resources of states, local govs, and disaster relief organizations in alleviating the damage, loss, hardship, or suffering caused thereby

The agency primarily responsible for implementing these federal programs is the

Federal Emergency Management Agency

Recovery

Implementing the prioritized actions required to return the processes and support functions to operational stability following an interruption or disaster." (DigitalCare, State of OR BC Workshop, 2006, p. 61)

Key point #2

Indicators should be designed for a wide array of goals and policies that might be included in a recovery plan. Two general classes of goals include transformative goals that deal with building back better and restorative goals that are aim to alleviate losses efficiently and quickly. Table 1 illustrates examples of goals, policies, and indicators that track achievement of goals. Development of recovery indicators can also help coordinate recovery planning. Communities can choose among different combinations of several types of plans that can be used to influence where and how local recovery should occur, and at what rate: 1) an emergency management plan addresses emergency response activities that focus on immediate actions to protect property, remove debris, and begin repair of water, sewer, and other essential services needed to meet basic human needs; 2. a comprehensive plan directs the long-range location, type, density, and rate of physical development; and 3. a stand-alone recovery plan offers an integrated guide that ties short-range emergency actions with long range redevelopment decisions (Florida DCA 2009). Measuring recovery outcomes based on a comprehensive and well-conceived set of indicators permits planners to identify congruencies, gaps, and conflicts among plans and program implementation. This allows planners to revise recovery policies and programs early on, thereby improving the chance of having a positive impact on the ultimate recovery outcomes while also saving time, resources, and opportunity costs.

Congressional Intent: Title I, Section 101 (b) States that

Intent of congress by this act to provide an orderly and continuing means of assistance by the federal gov to state and local gov in carrying out their responsibilities to alleviate the suffering and damage which result from such disasters by: 1) Revising and broadening the scope of existing disaster relief programs 2) Encouraging the development of comprehensive disaster preparedness and assistance plans, programs, capabilities, and organizations by the state and by local governments 3) Achieving greater coordination and responsiveness of disaster preparedness and relief programs 4) Encouraging individuals, states and local govs to protect themselves by obtaining insurance coverage to supplement or replace governmental assistance 5) Encouraging hazard mitigation measures to reduce losses from disasters, including development of land use and construction regulations and 6) Providing federal assistance programs for both public and private losses sustained in disasters

Key Point #3

Metrics must capture important differences in both magnitude and speed of recovery for socially vulnerable populations

Recover

Recover: "Definition of Recover: Develop, coordinate, and execute service- and site-restoration plans and reconstitute government operations and services through individual, private-sector, nongovernmental, and public assistance programs." (DHS, Universal Task List 2.1, 2005, p. 99)

Recovery

Recovery involves actions, and the implementation of programs, needed to help individuals and communities return to normal. Recovery programs are designed to assist victims and their families, restore institutions to sustain economic growth and confidence, rebuild destroyed property, and reconstitute government operations and services. Recovery actions often extend long after the incident itself. Recovery programs include mitigation components designed to avoid damage from future incidents.

Recovery

Recovery: "The phase beyond response that addresses physical and financial restoration of the impacted population and area, including developing and implementing strategic plans for full restoration, improvement and growth. Activities include development, coordination, and execution of service- and site-restoration plans; the reconstitution of government operations and services; individual, private-sector, and public-assistance programs to provide housing and to promote restoration; long-term care and treatment of affected persons; additional measures for social, political, environmental, and economic restoration; evaluation of the incident to identify lessons learned; and post-incident reporting." (HHS, Medical Surge Capacity and Capability Handbook, August 2004, p. D-10, Glossary) Recovery: "At the onset of an emergency, emergency management officials begin recovery efforts. Recovery is both short-term activity intended to restore vital life -support systems, and long-term activity designed to return infrastructure systems to pre-disaster conditions. Recovery also includes cost recovery efforts." (Little Hoover Com., Safeguarding Golden State, 2007, 6) Recovery: "The process of rebuilding, restoring and rehabilitating the community following an emergency." (London Resilience, London Recovery Management Protocol, 2008, 2; citing Emergency Response and Recovery Guidance, HM Government) Recovery: "The process of restoring community infrastructure and social and economic systems following an emergency or disaster." (Michigan DEM, 1998, 7) Recovery: "Activities and programs designed to return conditions to a level that is acceptable to the entity." (NFPA 1600, 2007, p. 8) "Recovery programs are designed to assist victims and their families, restore institutions to suitable economic growth and confidence, rebuild destroyed property, and reconstitute government operations and services. Recovery actions often extend long after the incident itself. Recovery programs include mitigation components designed to avoid damage from future incidents." (NFPA 1600, 2007, p. 11-12) Recovery: "Recovery activities continue until all systems return to normal or better. They include two sets of activities: Short-term recovery activities return vital life-support systems to minimum operating standards (for example, cleanup, temporary housing). Long-term recovery activities may continue for a number of years after a disaster. Their purpose is to return life to normal, or improved levels (for example, redevelopment loans, legal assistance, and community planning)." (NGA, Comprehensive Emergency Management Governors' Guide, 1979, p. 13) Recovery: "...recovery measures encompass what has traditionally been called reconstruction and recovery; ultimately the rebuilding of the disaster-impacted community." (Peterson and Perry 1999, 242; citing Drabek, 1986) Recovery: "...rebuilding communities so individuals, businesses, and governments can function on their own, return to normal life, and protect against future hazards." (Post-Katrina Emergency Management Reform Act of 2006, p. 1399) 10/27/08 1028 Recovery: "Decisions and actions taken after a disaster with a view to restoring or improving the pre-disaster living conditions of the stricken community, while encouraging and facilitating necessary adjustments to reduce disaster risk." World Health Organization, Mass Casualty Management Systems, April 2007, p. 31) Recovery: "As an essential component of homeland security, the United States will build and maintain various financial, legal, and social systems to recover from all forms of terrorism. We must, therefore, be prepared to protect and restore institutions needed to sustain economic growth and confidence, rebuild destroyed property, assist victims and their families, heal psychological wounds, and demonstrate compassion, recognizing that we cannot automatically return to the pre-attack norm." (White House, National Strategy for HS, 2002, 3)

RECP

Regional Emergency Coordination Plan.

The primary legal authority for the provision of disaster assistance in the United States is the

Robert T. Stafford Disaster Relief and Emergency Assistance act. - The rules are policies governing the disaster assistance framework are implemented through title 44 of the code of federal regulation (44 CFR). the federal emergency management agency has primary responsibility for implementing these federal programs

The importance of business recovery:

Seems to be widely acknowledged importance for the owners of the business, the employees of the business, the suppliers, the customers, economy, governmental agencies depending on tax revenues, and the community at large.

Recovery: Short Term

Short-term recovery is immediate and overlaps with response. It includes actions such as providing essential public health and safety services, restoring interrupted utility and other essential services, reestablishing transportation routes and providing food and shelter for those displaced by the disaster. Although called "short term," some of these activities may last for weeks." (DHS, National Response Framework -- Federal Partner Guide (Comment Draft), September10, 2007, p. 18)

True

Some sources suggest that "phases" should be referred to more accurately as "functional activities" or "components" or "aspects" of emergency management. The implications are examined in a following section, but these terms (phases, activities, components, aspects) are used interchangeably in this paper unless otherwise noted.

Recovery can be defined s rebuilding communities so individuals businesses, and government infrastructure can function on their own, return to normalcy and are protected against and are protected against future hazards

T

Recovery has been neglected relative to other phases of EM

T

Research on disaster recovery has been limited relative to the other phases of emergency management

T

The disaster assistance framework can be improved and the barries associated with differing sets of program rules and local needs, the uncoordinated timing of assistance and low levels or horizontal and vertical integration can be overcome through collaborative pre event planning ad the applications of alternative dispute resolution (ADR) techniques.

T

The recovery and restoration of damaged businesses facilities or interrupted services in an important component of disaster recovery and business (private dollars) play a role in financing and supporting the recovery process

T

There is a distinction between short-term and long term recovery action however both phases of recovery benifit from a long term perspective

T

True

The concept of "phases" has been used since the 1930s to help describe, examine, and understand disasters and to help organize the practice of emergency management. In an article titled Reconsidering the Phases of Disaster, David Neal cites different examples of different researchers using five, six, seven, and up to eight phases long before the four phases became the standard. (Neal 1997) This acknowledges that critical activities frequently cover more than one phase, and the boundaries between phases are seldom precise. Most sources also emphasize that important interrelationships exist among all the phases. For example, "mitigating" flood damage by restricting development in a flood plain will reduce the problems in "responding" to flooding. These interrelationships are discussed more in a subsequent section. So what is the basis for the "four phases"? The widespread use of "mitigation, preparation, response, and recovery" to help describe "comprehensive emergency management" is the result of work by the National Governors' Association (NGA) in the late 1970s. The NGA formed a Subcommittee on Disaster Assistance in 1977 in response to concerns among the Governors regarding the lack of coordination of emergency management at both the federal and state levels. At the federal level more than 100 programs were scattered across multiple agencies, some focused on"natural disasters" and others on "civil defense" and protection from enemy attack. In 1978 the NGA formed a team within their Center for Policy Research (subsequently renamed the Center for Best Practices) to examine the situation under an initiative referred to as the "Emergency Preparedness Project." (NGA 1979)

Recovery

The coordinated process of supporting emergency-affected communities in reconstruction of the physical infrastructure and restoration of emotional, social, economic and physical well-being. (EMI Australia 1996)

The declaration process from the courthouse to the white house

The courthouse: When local gov capabilities are exceeded- they request assistance from the state The statehouse: When the disaster is of such severity and magnitude that effective response is beyond the capabilities of the state the governor request the president declare either disaster or an emergency The white house: The president approves or denies the declaration request

Recovery

The development, coordination, and execution of service- and site-restoration plans for impacted communities and the reconstitution of government operations and services through individual, private sector, nongovernmental, and public assistance programs that identify needs and define resources; provide housing and promote restoration; address long-term care and treatment of affected persons; implement additional measures and techniques, as feasible; evaluate the incident to identify lessons learned; and develop initiatives to mitigate the effects of future incidents." (DHS, NIPP, 2006, p. 10

Key point #2

The failure to measure recovery outcomes against a local recovery plan limits planners' ability to evaluate and revise recovery policies and programs and decreasesthe chances of having a positive impact on ultimate recovery outcomes. Rebuilding a community after disaster strikes is a major undertaking. The most effective way to accomplish holistic post-disaster recovery is to be prepared before a disaster strikes. Developing a post-disaster recovery plan requires envisioning the potential obstacles to reconstructing a community in a compressed timeline—not just rebuilding what was there prior to the disaster event, but redeveloping a more sustainable and disaster-resilient community with participation from all stakeholders impacted by the disaster (Berke and Campanella 2006). Recovery indicators should offer relevant feedback throughout the post-disaster recovery plan implementation process. When indicators are linked to recovery plans, the information derived from tracking indicators can be used to assess achievement of progress toward plan goals, the performance of plan policies, and the updating of policies and programs. In contrast, indicators designed to track recovery outcomes directly, bypassing recovery plan goals and policies, are less likely to convey information that can be converted into information relevant to decision making. Indicators that are isolated from planning will not contribute to meaningful assessments of the cost, speed, efficiency, and sustainability of recovery policies and programs. Indeed, "Indicators alone are idle information which hardly convey any meaningful message for policy-making. It is the analysis of indicators against the wider context and policy objectives that provides the added value of converting information into intelligence." (Wong 2005) The key to designing indicators linked to recovery plans is to determine how change can be measured in an understandable manner with data that can be collected using a reasonable amount of resources. Other important questions to consider in linking indicators to a recovery plan include: • Does the indicator account for goals that reflect stakeholder needs and aspirations? • Can the indicator be customized to fit an individual agency charged with implementing an element in the recovery plan? • Is the cost/benefit relationship sensible (in terms of data availability or resources needed to collect data versus value)? • Can a source of information accountable for providing the data be identified? • Will the measure be sustainable to track plan performance over a period of years?

Key Point #1

The identification of standards and metrics for assessing the effectiveness of recovery efforts is a major challenge.

Red Team:

The red team is a group of subject matter experts (SMEs) of various appropriate disciplinary backgrounds who provide an independent peer review of plans and processes; act as the adversary's advocate; and knowledgeably role-play the adversary, using a controlled, realistic, interactive process during operations planning, training, and exercising. In prevention exercises, this group of operators adapt to player decisions and actions according to the prescribed adversary's motivations and tactics, which often provide players with instant feedback."

Recovery

Those long-term activities and programs beyond the initial crisis period of an emergency or disaster and designed to return all systems to normal status or to reconstitute these systems to a new condition that is less vulnerable. (FEMA, 1992)

Te riles and policies governing the disaster assistance framework are implemented through

Title 44 of the code of federal regulations

Hurricane Andrew: A debt of gratitude

Twenty years ago South Florida awoke to a new reality. In just a few hours of raging winds, Hurricane Andrew left in its wake nearly two dozen dead, thousands injured, nearly a quarter of a million people homeless and more than a million without power, water or communications. Thousands of businesses were destroyed. Homestead Air Force base was demolished. Turkey Point was down for the count. Debris was everywhere. A powdery film of salt and all that was pulverized by Andrew's blast covered everything. Landmarks and street signs were gone, so no one knew where they were anymore. The stench of animal carcasses and exposed garbage was suffocating and would continue for weeks. Hearts broke. Lives, hopes and dreams were shattered. That was just the beginning of the struggle survivors were to face in the long days, months and years ahead. The cost in dollars exceeded $40 billion in 1992 dollars. The cost in human suffering is incalculable. One Herald story compared the view of what was once a paradise to a lunar landscape and a nuclear winter. Crime, fraud, substance abuse, divorce, child abuse and bankruptcy soared. Tent cities housed thousands. Aid from police departments all over Florida, the Eastern Seaboard and Gulf Goast along with 32,000 federal troops deployed to South Dade were barely able to stabilize the situation. An army comprised of relief agencies, government workers, media, and insurance agents and adjustors descended on us. The first wave into South Dade brought fraudulent or incompetent contractors who demanded cash and then took off. Many of our politicians became embroiled in infighting that only deepened our despair. Helicopters became commonplace in the South Dade skies. Most of those whose homes came through reasonably intact housed others as well as their own families. There was nowhere for miles to seek medical care, buy food and fuel or seek services. We quickly became experts in which relief agency had the best meals but were grateful to have anything to eat. Faulkner said it best, "The past isn't dead. Hell, it isn't even past." Hurricane Andrew isn't over nor will it ever be for those who survived it, responded to it, or gave of themselves to help South Dade survive and recover. Andrew was more than a storm. It was an experience overwhelming in its impact and significance. It was an equal opportunity storm wreaking havoc on rich and poor, old and young, powerful and powerless. In some way, at some level, Hurricane Andrew became part of the collective us. We suffered as a community, struggled as a community, grieved as a community. Today we have a right to celebrate our survival the same way that we made it through our darkest hours . . . together. We won't forget the pain but that can't be the whole story. We have an obligation to remember and celebrate the many people from our neighbors to those throughout the nation and the world who contributed money, talent and time to help us survive and recover. We must honor the million acts of generosity, of selflessness, of sacrifice from strangers. Without them we would not have made it through. We must celebrate those elected leaders of the Florida Legislature and our own Dade Delegation who stood with us and for us before Hurricane Andrew as Florida's emergency managers fought to overhaul the legislation underpinning the system, especially then-House Speaker Tom Gustafson, the late state Sen. John Cosgrove, the late Sen. Lawrence Plummer, Reps. Elaine Bloom, Carrie Meek and Alzo Reddick. Through their insight, commitment and perseverance, and Bloom's critical leadership, legislation was adopted in 1993 which resulted in needed funding for Miami-Dade Emergency Management and other Florida county emergency management agencies, and provided structural changes needed to support state emergency management initiatives. We celebrate the efforts of national leaders like Sens. Bob Graham, Barbara Mikulski and Connie Mack III, the late Rep. Dante B. Fascell, Reps. Ileana Ros-Lehtinen, Lincoln Diaz-Balart and Carrie Meek who fought in Congress for the federal assistance we needed and the changes the system required. We celebrate the many changes to local, state and national plans and systems that resulted from Hurricane Andrew's lessons. Strides have been made in government and business preparedness and response systems, health systems, community mental health strategies, education, and non-profit capabilities. Building codes were strengthened. New products, materials and services made preparedness more achievable. The system is far from perfect but viewed from August 24, 1992, it has come a long way. We celebrate local media which helped us prepare and kept us informed. The Miami Herald was awarded a Pulitzer Prize for its brilliant coverage. There was no award for getting the paper out and distributed as quickly as it did but there should have been. None of us will forget Brian Norcross, huddled with Tony Segreto and Kelly Craig as their building shook, calming and guiding thousands of frightened people through the storm. In the days that followed, Ann Bishop's reporting exemplified all that the word "anchor" meant as she kept us where we needed to be. We celebrate the men and women of local government who worked around the clock to serve their communities — so often while dealing with the loss of their own homes. The load they shouldered was astounding. They were, for the most part, unheralded heroes. This includes our teachers, who faced their own losses while healing our children with strength and compassion. It includes the emergency managers and emergency responders who extended our capabilities. There were so many more to whom we owe a debt of gratitude we can never repay. As dawn broke on Aug. 24, 1992 no one could think beyond that day let alone 20 years ahead. We have the luxury of looking forward. What will the ultimate legacy of Andrew be for future South Floridians? One day another Andrew will come, and it will test this legacy. For the sake of all who follow us, let it be the importance of wise leadership to sustain and expand the gains in awareness, preparedness and systems made since Andrew. Let it be a culture of awareness and preparedness that tackles our fears and vulnerability with practical knowledge, preparations, fortitude and resiliency. Let it be a community that looks past its diversity to its common humanity and can be relied on to stand together as one when it faces new trials. When the next trial comes, I hope they will celebrate us for the legacy Andrew's survivors bequeathed to them. Kate Hale, who was Miami-Dade County's emergency management director during Hurricane Andrew, is now the emergency management administrator for James City County, Va.

Key point #3

Uneven recovery trajectories for socially vulnerable populations can leave entire neighborhoods susceptible to rapid change, population displacement, and redevelopment, undermining community plans and exacerbating preexisting disparities. Although natural disasters magnify and accelerate processes already occurring in communities (Olshansky, Hopkins, and Johnson 2012) not all processes compress or accelerate at the same rate during the recovery. The result can be a distortion in the relationships between redevelopment and decision processes. Recovery may vary greatly among subpopulations based on social vulnerability factors (Peacock et al. forthcoming). Socially vulnerable households include those who are minority, low-income, female-headed, elderly, and/or renters. Often these characteristics are present in combinations (e.g., both minority and low-income), compounding the households' vulnerability (Morrow 1999). Socially vulnerable households are more likely to live in less desirable and likely more risky (i.e., low-lying) neighborhoods, in lower-quality and less well-maintained homes. As a result, these households are more likely to receive higher-than-average levels of damage. Further, socially vulnerable populations often have no or inferior insurance and poorer access to financial resources that can aid in recovery. As a result, socially vulnerable households will take longer to recover, and their housing units are less likely to reach full restoration of pre-disaster values. Further, because these populations are often spatially concentrated, more uneven recovery trajectories can leave entire neighborhoods susceptible to change and redevelopment (Zhang and Peacock 2010). The local context of housing recovery (i.e., the sociodemographic composition of the population, the local housing market, and the mix of housing types) may result in significant variation in the way that social vulnerability factors matter. In some areas, race or ethnicity may be a critical factor in predicting recovery times and levels, while in others, income may be more critical (Peacock et al. forthcoming). Housing tenure—whether one owns or rents—is also critical, since renters, particularly those that are low-income, have lower levels of housing security (Rohe, Van Zandt, and McCarthy 2001) and have fewer resources (lower incomes, less job stability, and less savings) with which to address maintenance, repair, and recovery (McCarthy, Van Zandt, and Rohe 2001; Van Zandt and Rohe 2011). Consequently, recovery metrics must capture important differences in both the magnitude and speed of recovery for these subpopulations within the community. While housing recovery is only one area of recovery, it is probably the strongest indicator of overall community recovery and, when disaggregated, can reflect recovery for constituent subpopulations. Aggregate measures and average values of housing recovery will miss important differences. For example, in many communities, single-family housing will dominate the housing stock. Looking at average values of housing recovery will mask important differences that may be occurring within multifamily or other types of housing that is more often inhabited by renters, who are also more likely to be lower-income, minority, and otherwise socially vulnerable. Consequently, it is important to disaggregate housing recovery by housing type, neighborhood sociodemographic characteristics (race/ethnicity, income, female-headed households, age, and tenure), and neighborhood location. Extending this to other metrics of recovery is also important. For example, business recovery should also be disaggregated to uncover important systematic differences in how businesses with different characteristics (owner characteristics, sizes, industries, locations) may be recovering or languishing. Tax appraisal data from county appraisal districts is a terrific source of data that permits tracking of the pace of housing recovery by housing type. Most often, recovery is measured by the percentage of pre-disaster value reflected in the appraised value. Restoration is achieved when the unit is appraised at a value equal to its pre-disaster value. Appraisal data can also be used to identify where long-term vacancies are occurring and where land uses are changing, both signs of impending and occurring redevelopment. While sales data are another great source, they are not available in every state and not for every property. Both types of data can be merged with block group or tract-level sociodemographic data from the American Community Surveyor U.S. Census to assess differences in both pace of recovery (how quickly the values return to pre-disaster values) as well as the magnitude of recovery (whether or not they achieve or surpass pre-disaster values) among neighborhoods based on income, race/ethnicity, tenure, female-headed households, and age. Building permit data can help understand where rebuilding is taking place and where it may not be. Importantly, spatial analysis using GIS permits the assessment of differences at the neighborhood level to help identify areas that may not be recovering adequately. Disasters can provide a focusing event that heightens awareness of inequalities present before, during, and after the event. Tracking inequalities with effective metrics will enhance the ability of recovery agents to highlight needs and qualify for additional assistance based on disaster impacts and recovery needs. During recovery, there is a window of opportunity to use both community commitment and the influx of resources that often occurs to undertake transformational action to reduce rather than exacerbate preexisting inequalities.

Key point #1

Valid and reliable metrics that can be utilized across disasters, over time, and in different geographic locations are a necessary part of increasing resilience by providing data to inform planning, preparedness, and early interventions. The sense of urgency that prevails after a disaster may lead local governments to make decisions in the short term that foreclose long-term options to reduce a community's vulnerability to future disasters. However, sustainable recovery should provide an opportunity to improve upon, rather than recreate, pre-disaster vulnerabilities (Smith and Wenger 2006). To do this, systematically collected and shared data that characterize the baseline condition of a community and track recovery over time is needed. The identification of a robust set of recovery indicators, with quantifiable metrics for assessing the effectiveness of national recovery efforts, has been identified as a major challenge requiring federal investment (National Research Council 2012). Recovery indicators should be linked to the guiding framework of federal recovery policy as outlined by the Federal Emergency Management Agency (FEMA) in the National Disaster Recovery Framework. This linkage will help ensure and support local, state, and regional coordination with the federal government as each works towards recovery. If the "whole community" (FEMA 2011) is to successfully work together to keep the nation safe and resilient in the face of disasters, this type of coordination around federal recovery policy will support comparability within communities and across disasters. Working as a "whole community" can also help build networks of practitioners across potentially siloed functions such as planning, emergency management, and public health. These networks are needed to successfully take action on the multiple fronts required to reduce vulnerability and build resiliency in the future. Working within the framework of federal recovery policy, there is great opportunity for the development and use of measures that are flexible, easy to assess, cost effective, and useful for decision making in the practice, policy, or research setting. Following established best practices, recovery metrics should be able to be measured and assessed repeatedly over time. They should be sensitive to changes in community recovery status over time and within key demographic and geographic subpopulations. Finally, the effect of both community- and individual-level experiences should also be considered. A number of recovery measures have already been developed and pilot tested as part of a variety of assessments, scorecards, and toolkits. Many of these are likely underutilized by both practitioners and researchers. For example, the National Oceanic and Atmospheric For communities that have successfully characterized a baseline and adopted measures to assess progress toward a resilient future, recovery from a disaster can provide an opportunity for economic development, restoration of social networks, or revitalization of the role of civic organizations. The process of identifying recovery metrics that fit a community's setting, context, and values is a challenge that can be surmounted. First, federal recovery policy can provide an effective coordinating structure for the key functional areas of assistance typically needed by a community after a disaster. Second, existing indices and measures can be adapted to address specific risks and opportunities. Finally, robust, high-quality plans can provide the fact base that can assist in the development of indicators, as well as a road map for the use of data in the recovery process

National Response Framework Fact sheet

What Is the National Response Framework? - The National Response Framework is a guide that details how the Nation conducts all-hazards response- from the smallest incident to the largest catastrophe. This document establishes a comprehensive, national, all-hazards approach to domestic incident response. The Framework identifies the key response principles, as well as the roles and structures that organize national response. It describes how communities, States, the Federal Government and private-sector and nongovernmental partners apply these principles for a coordinated, effective national response. In addition, it describes special circumstances where the Federal Government exercises a larger role, including incidents where Federal interests are involved and catastrophic incidents where a State would require significant support. It lays the groundwork for first responders, decision-makers and supporting entities to provide a unified national response. In addition to releasing the NRF base document, the Emergency Support Function Annexes and Support Annexes are available on-line at the NRF Resource Center (www.fema.gov/nrf). The annexes are a total of 23 individual documents designed to provide concept of operations, procedures and structures for achieving response directives for all partners in fulfilling their roles under the NRF. Audiences - The NRF is written especially for government executives, private-sector business, and nongovernmental leaders and emergency management practitioners. The NRF's clear, simple style makes the serious work of incident management understandable for newly elected or appointed government officials, business executives, as well as seasoned practitioners. - The NRF is addressed to senior elected and appointed leaders, such as Federal department or agency heads, State governors, mayors, tribal leaders or city managers - those who have a responsibility to provide for effective emergency management. - The NRF also informs emergency management practitioners, explaining the operating structures and tools used routinely by first responders and emergency managers at all levels of government. - The NRF Resource Center (www.fema.gov/NRF) is an important online reference center that provides stakeholders at all levels of government, the private sector and non-governmental organizations access to the NRF and supporting documents. Identifies Response Doctrine -The NRF retains the same core principles of the National Incident Management System (NIMS) in which first responders from different jurisdictions and disciplines can work together more closely to effectively respond to natural disasters and emergencies, including acts of terrorism. Draws Focus on Preparedness - The NRF is built on the following five principles: Engaged partnerships Tiered response Scalable, flexible and adaptable operational capabilities Unity of effort through unified command Readiness to act Effective preparedness is a critical precondition for successful response. The NRF encourages a higher level of readiness by drawing a sharper focus on the value of the following preparedness activities: planning, organizing, training, equipping, exercising, and applying lessons learned. Mastery of these key functions supports unity of effort, and thus our ability to save lives, protect property, and meet basic human needs. Guides the Conduct of All-Hazards Response -- - Through engaged partnerships with elected and appointed officials, dedicated emergency management practitioners, nongovernmental organizations, and the private sector, and by applying common NIMS principles and response doctrine, government at all levels can respond more effectively to incidents and better serve our communities and the nation.

Nims Frequently asked questions

What is the National Incident Management System (NIMS)? - NIMS is a comprehensive, national approach to incident management that is applicable at all jurisdictional levels and across functional disciplines. It is intended to: 1) Be applicable across a full spectrum of potential incidents, hazards, and impacts, regardless of size, location or complexity. 2) Improve coordination and cooperation between public and private entities in a variety of incident management activities. 3) Provide a common standard for overall incident management. Why do we need NIMS? - NIMS provides a consistent nationwide framework and approach to enable government at all levels (Federal, State, tribal, and local), the private sector, and nongovernmental organizations (NGOs) to work together to prepare for, prevent, respond to, recover from, and mitigate the effects of incidents regardless of the incident's cause, size, location, or complexity. Consistent application of NIMS lays the groundwork for efficient and effective responses, from a single agency fire response to a multiagency, multijurisdictional natural disaster or terrorism response. Entities that have integrated NIMS into their planning and incident management structure can arrive at an incident with little notice and still understand the procedures and protocols governing the response, as well as the expectations for equipment and personnel. NIMS provides commonality in preparedness and response efforts that allow diverse entities to readily integrate and, if necessary, establish unified command during an incident. What are the Components of NIMS? - NIMS Components link together and work in unison to form a comprehensive incident management system. NIMS Components include: • Preparedness • Communications and Information Management • Resource Management • Command and Management • Ongoing Management and Maintenance To whom does NIMS apply? - NIMS is applicable to State, tribal and local governments, private sector organizations, critical infrastructure owners and operators, nongovernmental organizations and other organizations with an active role in emergency management and incident response. Elected and appointed officials, who are responsible for jurisdictional policy decisions, must also have a clear understanding of their emergency management roles and responsibilities to better serve their constituency. 2 How does NIMS relate to the National Response Framework (NRF)? - The NIMS and NRF are companion documents and are designed to improve the Nation's incident management and response capabilities. While NIMS provides the template for the management of incidents regardless of size, scope or cause, the NRF provides the structure and mechanisms for national level policy of incident response. Together, the NIMS and the NRF integrate the capabilities and resources of various governmental jurisdictions, incident management and emergency response disciplines, non-governmental organizations, and the private-sector into a cohesive, coordinated, and seamless national framework for domestic incident response. How does NIMS relate to local incident command? A basic premise of NIMS is that all incidents begin and end locally. NIMS does not take command away from State and local authorities. NIMS simply provides the framework to enhance the ability of responders, including the private sector and NGOs, to work together more effectively. The Federal Government supports State and local authorities when their resources are overwhelmed or anticipated to be overwhelmed. Federal departments and agencies respect the sovereignty and responsibilities of local, tribal, and State governments while rendering assistance. The intention of the Federal Government in these situations is not to command the response, but rather to support the affected local, tribal, and/or State governments. What is the role of Elected and Appointed Officials during an incident? - Elected and appointed officials are responsible for ensuring the public safety and welfare of the people of that jurisdiction. Specifically, these officials provide strategic guidance and resources during preparedness, response, and recovery efforts. Elected or appointed officials must have a clear understanding of their roles and responsibilities for successful emergency management and response. At times, these roles may require providing direction and guidance to constituents during an incident, but their day-to-day activities do not focus on emergency management and response. Their awareness of NIMS is critical to ensuring cooperative response efforts and minimizing the incident impacts. What role does Preparedness have in NIMS? - Preparedness is essential for effective incident and emergency management and involves engaging in a continuous cycle of planning, organizing, training, equipping, exercising, evaluating, and taking corrective action to achieve and maintain readiness to respond to emergencies. As such, the NIMS Preparedness Component serves as a baseline concept that links all the NIMS Components. Preparedness spans jurisdictions, governments, agencies and organizations. Though individuals certainly play a critical role in preparedness and are expected to prepare themselves and their families for all types of potential incidents, they are not directly included in NIMS preparedness. NIMS primarily discusses the preparedness role for governments, organizations geared specifically toward preparedness, elected and appointed officials, nongovernmental organizations, and the private sector. What is a Common Operating Picture? - A common operating picture (COP) offers a standard overview of an incident, thereby providing incident information that enables the Incident Commander/Unified Command and any supporting agencies and organizations to make effective, consistent, and timely decisions. Compiling data from multiple sources and disseminating the collaborative information COP ensures that all responding entities have the same understanding and awareness of incident status and information when conducting operations. What is Interoperability? - Interoperability allows emergency management/response personnel and their affiliated organizations to communicate within and across agencies and jurisdictions via voice, data, or video-on-demand, in real-time, when needed, and when authorized - this includes equipment and the ability to communicate. If entities have physical communications systems that are able to directly communicate, those systems are considered to be interoperable. This can be a function of the actual system or the frequency on which the system operates. What is Resource Management? - Resource management involves the coordination, oversight, and processes necessary to provide timely and appropriate resources during an incident. Utilization of the standardized resource management concepts such as the typing, inventorying, ordering, and tracking of resources will facilitate their dispatch, deployment, and recovery before, during, and after an incident. What is Command and Management? - The Command and Management component within NIMS is designed to enable effective and efficient incident management and coordination by providing a flexible, standardized incident management structure. To institutionalize these activities within a formal structure, command and management includes three fundamental elements: the Incident Command System (ICS), Multiagency Coordination Systems (MACS), and Public Information. These fundamental elements provide standardization through consistent terminology and established organizational structures. Why is ICS needed? - When an incident requires response from multiple local emergency management and response agencies, effective cross-jurisdictional coordination using common processes and systems is critical. The Incident Command System (ICS) provides a flexible, yet standardized core mechanism for coordinated and collaborative incident management, whether for incidents where additional resources are required or are provided from different organizations within a single jurisdiction or outside the jurisdiction, or for complex incidents with national implications. What is ICS Designed To Do? - The ICS is a widely applicable management system designed to enable effective, efficient incident management by integrating a combination of facilities, equipment, personnel, procedures, and communications operating within a common organizational structure. ICS is a fundamental form of management established in a standard format, with the purpose of enabling incident managers to identify the key concerns associated with the incident—often under urgent conditions—without sacrificing attention to any component of the command system. It represents organizational "best practices" and, as an element of the Command and Management Component of NIMS, has become the standard for emergency management across the country. Designers of the system recognized early that ICS must be interdisciplinary and organizationally flexible to meet the following management challenges: Meet the needs of incidents of any kind or size. • Allow personnel from a variety of agencies to meld rapidly into a common management structure. • Provide logistical and administrative support to operational staff. • Be cost effective by avoiding duplication of efforts. ICS consists of procedures for controlling personnel, facilities, equipment, and communications. It is a system designed to be used or applied from the time an incident occurs until the requirement for management and operations no longer exists. How does an EOC relate to MACS? - MACS is designed to facilitate the process of multiagency coordination, which allows all levels of government and all disciplines to work together more efficiently and effectively. Multiagency coordination can and does occur on a regular basis whenever personnel from different agencies interact in such activities as preparedness, prevention, response, recovery, and mitigation. More specifically, the primary function of MACS is to coordinate activities above the field level and to prioritize the incident demands for critical or competing resources, thereby assisting the coordination of the operations in the field. MACS consists of a combination of elements: personnel, procedures, protocols, business practices, and communications integrated into a common system. Emergency Operations Centers (EOCs) are one of several system elements included within the Multiagency Coordination System(MACS). EOCs are intended to facilitate MACS functions, and may provide support to Area Command, Incident Command, or Unified Command when resource needs exceed local capabilities. What is the relationship between an Incident Command Post and an EOC/MAC Group? - The Incident Command Post is a physical location that administers the on-scene incident command and the other major incident management functions. An EOC is a physical location that is located separately from the on-scene Incident Command Post and supports the on-scene response by providing external coordination and securing of additional resources. A MAC Group does not have any direct incident command involvement and will often be located some distance from the incident site(s). EOC/MAC Groups do not command the on-scene level of the incident, but rather supports the Incident Command Post's command and management efforts. What is the difference between Area Command and MACS? - Area Command is an organization that oversees the management of multiple incidents handled individually by separate incident command organizations or to oversee the management of a very large or evolving incident engaging multiple incident management teams. Area Command should not be confused with the functions performed by MACS as Area Command oversees management coordination of the incident(s), while a MACS element (such as a communications/dispatch center, EOC, or MAC Group) coordinates support. What does Public Information, within NIMS, include? Public Information consists of the processes, procedures, and systems to communicate timely, accurate, and accessible information on the incident's cause, size, and current situation to the public, responders, and additional stakeholders (both directly and indirectly affected). Public information must be coordinated and integrated across jurisdictions and organizations involved in the incident to include, Federal, State, tribal, and local governments, private sector entities and NGOs. In order to facilitate that process, Public Information includes three major systems/components - Public Information Officers (PIOs), the Joint Information System (JIS), and the Joint Information Center (JIC). REVISION PROCESS QUESTIONS Why was the NIMS document revised? - HSPD-5 directed the Secretary of Homeland Security to develop, administer and periodically update the NIMS. The document, originally released in March 2004, was revised and released in 2008 to incorporate current best practices and lessons learned from recent incidents. It was intended to be revised periodically to reflect changes in national homeland security policy and doctrine. The NIMS revision clarified concepts and principles and refined processes and terminology throughout the document. No major policy changes were made to NIMS during the revision. Were NIMS stakeholders part of the revision process? - The NIMS document review and revision process began in May 2006. This revision, led by the Federal Emergency Management Agency (FEMA's) National Integration Center (NIC) Incident Management Systems Integration Division, incorporated stakeholder input throughout the process in the form of working groups (representing over 100 entities from Federal, State, tribal and local governments, the private sector and NGOs). Furthermore, stakeholders represented a broad spectrum of emergency management and incident response disciplines. Three national comment periods were used to gather widespread and diverse stakeholder input for the NIMS document. During the comment periods, more than 280 individuals and organizations provided approximately 6,000 comments. This process allowed the NIC to receive and incorporate a wide range of feedback from stakeholders, while maintaining the core concepts of NIMS. The chart below illustrates the number of substantive comments by NIMS category: Were any major policy changes made? - No major policy changes were made to NIMS during the revision. The revision clarified concepts and principles and refined processes and terminology throughout the document. What were the general updates and changes to the NIMS document? Eliminated redundancy Reorganized document to emphasize that NIMS is more than the ICS Increased emphasis on planning and added guidance on mutual aid Clarified roles of private sector, NGOs, and chief elected and appointed officials Expanded the Intelligence/Investigation function Highlighted relationship between NIMS and NRF Why was the ordering of the NIMS Components changed? - The reordering of the components within the NIMS document emphasizes the role of preparedness and is designed to mirror the progression of an incident. This reorganization also lessens the perception that NIMS is only ICS, and emphasizes the fact that NIMS is an allencompassing systematic approach to incident management, of which ICS is just one component. What is the Intelligence/Investigations Function? How is it different from the Information/Intelligence Function? - The purpose of the Intelligence/Investigations Function is to ensure all intelligence and investigative operations, functions and activities within the incident management and incident response are properly managed, coordinated, and directed. The Intelligence/Investigations

Long term recovery :

Which is outside the scope of the framework, may involve some of the same actions but may continue for a number of months or years, depending on the severity and extent of the damage sustained. For example, long-term recovery may include the complete redevelopment of damaged areas.

Short Term recovery:

is the immediate and overlaps with response, it includes action such as providing essential public health and safety services, restoring interrupted utility services, reestablishing transportation routes, and providing food and shelter for those displaced by the incident. Activities may last for weeks

Federal Disaster Policy is best characterized as a

series of disconnected programs without an integrative policy framework guiding pre- and post-event decision making

Key point #2

the prexisting disaster recovery plan is one way to identify indicators and materials for measuring recovery

Emergency management in the United States has been described for the past three decades as a "four phase" process, involving:

• Mitigation • Preparedness • Response • Recovery