Planning Considerations: Disaster Housing - National ... · providing guidance on national housing priorities, types of housing, key considerations, and housing-specific planning

NATIONAL ENGAGEMENT

PLANNING CONSIDERATIONS: DISASTER HOUSING

September 12, 2019

FEMA’s National Integration Center is seeking feedback on the draft document Planning Considerations: Disaster Housing. Comments and recommendations received help ensure the final version of the guide is an effective resource for emergency managers across the nation.

The Planning Considerations: Disaster Housing document supplements Comprehensive Preparedness Guide (CPG) 101: Developing and Maintaining Emergency Operations Plans by providing guidance on national housing priorities, types of housing, key considerations, and housing-specific planning recommendations that state, local, tribal, and territorial jurisdictions can apply when developing or improving housing plans. This planning document is a tool for use in conjunction with the Six-Step Planning Process described in CPG 101.

Housing recovery is the cornerstone to a community’s resilience. By helping survivors achieve sustainable housing after a disaster, state and local leaders move their communities towards stability and improving resiliency for future incidents. Achieving widespread sustainable housing after a disaster is a determining factor in community’s ability to recover. To improve disaster housing capabilities across the Nation, states, tribes, territories, and local jurisdictions are encouraged to collaboratively work together, along with the Federal Government, private sector partners, and nongovernmental organizations to develop disaster housing plans.

When reviewing the document, consider:

• Identifying areas that may be confusing and need revision;

• Providing success stories or best practices associated with the disaster housing efforts,including those involving public-private sector collaboration; and

• Identifying additional job aides, training opportunities, or resources for inclusion in thedocument.

FEMA is hosting a series of 60-minute engagement webinars to describe the draft document and answer participants’ questions about providing feedback. The webinars will be open to the whole community.

To review the draft document, download the comment matrix, and for additional webinar information, please visit https://www.fema.gov/plan.

Please provide any comments, input, or recommendations by COB on October 15, 2019. Email feedback to [email protected].

https://www.fema.gov/plan

mailto:[email protected]

Planning Considerations: Disaster Housing

PRE-DECISIONAL – NATIONAL ENGAGEMENT DRAFT

- WORKING DRAFT –September 2019

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[email protected] Planning Considerations: Disaster Housing

PRE-DECISIONAL – NATIONAL ENGAGEMENT DRAFT i

Table of Contents

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

Purpose ........................................................................................................................................ 1

Audience ...................................................................................................................................... 1

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

Housing Goals .............................................................................................................................. 2

Disaster Housing Assistance ........................................................................................................ 3 State Disaster Housing Programs and Resources .................................................................... 3 Federal Disaster Housing Assistance ...................................................................................... 3

Housing Phases ......................................................................................................................... 5

Sheltering ..................................................................................................................................... 6

Interim Housing .......................................................................................................................... 7

Permanent Housing ..................................................................................................................... 8

Housing Considerations ..........................................................................................................10

Regulations and Authorities ...................................................................................................... 10

Natural Environment ................................................................................................................ 11

Infrastructure ............................................................................................................................ 12

Population .................................................................................................................................. 12 Individuals with Access and Functional Needs ..................................................................... 12 Homeless Populations .......................................................................................................... 13 Incarcerated Individuals ....................................................................................................... 14 Nursing and Senior Facilities ............................................................................................... 14

Housing Availability .................................................................................................................. 15

Contracting ................................................................................................................................ 16

Host State Agreements .............................................................................................................. 16

Wrap-Around Services .............................................................................................................. 17

Housing Inspection .................................................................................................................... 18

Public Information, Outreach, and Preparedness .................................................................... 18

Housing Assistance Programs.................................................................................................20

Developing a Disaster Housing Plan .......................................................................................21

Step 1: Form a Collaborative Disaster Housing Planning Team ............................................. 21

Step 2: Understand the Housing Situation................................................................................ 22

Step 3: Determine Housing Goals and Objectives .................................................................... 24

Step 4: Housing Plan Development ........................................................................................... 24

Planning Considerations: Disaster Housing [email protected]

ii PRE-DECISIONAL – NATIONAL ENGAGEMENT DRAFT

Step 5: Housing Plan Preparation, Review, and Approval ...................................................... 25

Step 6: Housing Plan Implementation and Maintenance ......................................................... 25

Glossary ...................................................................................................................................27

Acronyms .................................................................................................................................29

Appendix A: Housing Assistance Programs...........................................................................31

State and Local Housing Assistance Programs......................................................................... 31

Federal Housing Assistance Programs ..................................................................................... 32 Army Corps of Engineers (USACE) ..................................................................................... 32 Department of Agriculture (USDA) ..................................................................................... 33 Department of Health and Human Services (HHS) ............................................................... 34 Department of Housing and Urban Development (HUD) ...................................................... 34 Department of Veterans Affairs (VA)................................................................................... 35 Federal Emergency Management Agency (FEMA) .............................................................. 36 Small Business Administration (SBA) .................................................................................. 37

Appendix B: Authorities and References ...............................................................................38

Authorities ................................................................................................................................. 38

References .................................................................................................................................. 39

Appendix C: Disaster Housing Planning Checklist ...............................................................41

Step 1: Form the Collaborative Planning Team ....................................................................... 41

Step 2: Understand the Housing Situation................................................................................ 41 Conduct Housing-Related Research and Analysis................................................................. 41 Planning Assumptions and Considerations ........................................................................... 41

Step 3: Determine Housing Goals and Objectives .................................................................... 44

Step 4: Housing Plan Development ........................................................................................... 45 Purpose, Scope, Situation Overview, and Planning Assumptions .......................................... 45 Concept of Operations ......................................................................................................... 45 Direction, Control, and Coordination.................................................................................... 48 Communications .................................................................................................................. 48 Administration, Finance, and Logistics................................................................................. 48 Preparedness, Mitigation, and Recovery ............................................................................... 48 Implementation, Maintenance, and Training ......................................................................... 49 Authorities and References .................................................................................................. 49

Step 5: Housing Plan Preparation, Review, and Approval ...................................................... 49

Step 6: Housing Plan Implementation and Maintenance ......................................................... 49

Appendix D: Other Resources ................................................................................................50


PRE-DECISIONAL – NATIONAL ENGAGEMENT DRAFT 1

Introduction 1

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In the aftermath of disasters, communities often face situations that require creative short-term and long-term housing solutions for populations with different geographic and infrastructure challenges. Effectively moving survivors into post-disaster housing is a critical step toward long-term recovery. However, many jurisdictions do not have disaster housing plans, possibly due in part to the perception that housing is solely the Federal Government’s responsibility. Some housing programs are federally resourced, but they are state-managed and locally executed. Planning for disaster housing should occur at all levels of government.

“The optimal framework for response and recovery is one that is federally supported, state-managed, and locally executed.”

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

Purpose This document supplements Comprehensive Preparedness Guide (CPG) 101: Developing and Maintaining Emergency Operations Plans. It provides guidance on national housing priorities, types of housing, key considerations, and housing-specific planning recommendations for state, local, tribal, and territorial (SLTT) jurisdictions to use, in conjunction with the Six-Step Planning Process described in CPG 101, to develop or improve disaster housing plans.1

Audience This document provides guidance to SLTT partners as they develop disaster housing plans and strategies for their communities. In many instances, a local or state emergency manager coordinates the development of a disaster housing plan with designated recovery leaders and 21

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appropriate housing subject matter experts from across the jurisdiction and private sector.

Background Each community has unique characteristics, resources, cultural considerations, and demographics that impact the ability to rebuild homes and restore public services. SLTT jurisdictions should assess understand the risks that could displace individuals and households for long periods of time, the potential disaster housing needs of their communities, and their capability and capacity to help address those needs via sheltering, interim housing, or permanent housing solutions. SLTT governments should develop housing solutions and strategies that work for their residents and complement the overall housing market in the area.

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

https://www.fema.gov/media-library/assets/documents/25975


2 PRE-DECISIONAL – NATIONAL ENGAGEMENT DRAFT

2017 Hurricane Season Housing Figures 31 The aftermath of Hurricane Harvey left nearly 75,000 homes with at least 18 inches of floodwater.32

33 34 35 36 37 38 39 40 41

42 43 44 45 46 47 48 49 50 51 52 53

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59 60 61 62

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

At its peak, Texas sheltered 42,399 survivors in congregate shelters, with approximately 1,403survivors remaining in shelters 30 days after Hurricane Harvey made landfall.

While FEMA programs supported Texas’ and Florida’s efforts to move most survivors out of sheltersinto interim housing within 60 days, shelter operations in Puerto Rico and the U.S. Virgin Islandsextended past 90 days.

By May 2018, nearly 4.8 million households affected by the 2017 hurricanes and California Wildfiresregistered for Federal assistance, more than the previous 10 years combined.

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

The ability to comprehensively address the housing needs of disaster survivors routinely appears in annual National Preparedness Reports as an area for improvement,2 and other reports and studies have documented gaps in the Housing core capability. A 2012 survey by the Los Angeles Housing Department determined that most agencies and organizations in Southern California did not have housing recovery plans despite the impending threat of earthquakes in that area.3 More recently, after-action reports on disasters such as flooding, wildfires, and hurricanes continue to highlight ongoing gaps in delivering efficient and effective housing solutions for disaster survivors. These findings reinforce the importance of developing local disaster housing plans to better meet the diverse and complex needs of communities. To improve disaster housing capabilities across the Nation, SLTT jurisdictions should work collaboratively, in conjunction with regional partners, the private sector, nongovernmental organizations (NGOs), and the Federal Government, to develop disaster housing plans.

Housing Goals Housing recovery is the cornerstone, often the linchpin, of a community’s recovery and ultimate resilience. By helping survivors achieve sustainable housing after a disaster, state and local leaders move their communities toward stability and resiliency for future incidents. Achieving widespread sustainable housing after a disaster helps determine a community’s ability to recover.

The National Disaster Housing Strategy establishes six national goals that create a common framework and provide a broad range of housing options to meet urgent needs following a disaster, enabling individuals, households, and communities to rebuild and meet their unique housing needs.4 These goals are guiding principles for SLTT jurisdictional-specific housing plans. The goals in the National Disaster Housing Strategy are: 63

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

2 2017 National Preparedness Report. https://www.fema.gov/media-library/assets/documents/134253. 3 Los Angeles/Long Beach/ Riverside Regional Catastrophic Planning Grant Program Region Assessment and Gap Analysis Report, 2012. https://hcidla.lacity.org/assessment-and-gap-analysis-report 4 National Disaster Housing Strategy, January 16, 2009. https://www.fema.gov/media-library-data/20130726-1819-25045-9288/ndhs_core.pdf. NOTE: A review of housing-related doctrine is ongoing. This document will be updated based on any changes to key principles, terms, and authorities.


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

https://www.fema.gov/media-library-data/20130726-1819-25045-9288/ndhs_core.pdf




2. Define and fulfill fundamental disaster housing responsibilities and roles. 65 3. Increase our collective understanding and ability to meet the needs of disaster survivors and66

affected communities.5 67 4. Build capabilities to provide a broad range of flexible housing options, including sheltering,68

interim housing, and permanent housing. 69 5. Better integrate disaster housing assistance with related community support services and70

long-term recovery efforts. 71 6. Improve disaster housing planning to better recover from disasters, including catastrophic72

events. 73

Disaster Housing Assistance 74

Consistent with the principles of the National Incident Management System, most incidents 75 begin and end locally and typically require a unified approach from local agencies, the private 76 sector, and NGOs. Some require additional support from neighboring jurisdictions or state 77 governments. Regardless, each jurisdiction or state should leverage its own resources and 78 programs to help displaced survivors find housing or move back into their homes.6 The 79 following sections describe some state and Federal housing programs that can help local 80 jurisdictions secure viable housing solutions for all members of the community. 81

State Disaster Housing Programs and Resources 82 States have day-to-day housing responsibilities, but 83 they also administer emergency housing programs. 84 Many states implement these programs in 85 conjunction with Federal assistance. Refer to 86 Appendix A for more information on state and 87 Federal housing assistance programs. Housing 88 assistance also involves programs sponsored by or 89 involving the private sector. 90

In addition, states coordinate resources and 91 capabilities across jurisdictions to support local 92 activities, obtaining additional support through 93 interstate mutual aid and assistance mechanisms such as the Emergency Management Assistance 94 Compact (EMAC). 95

Federal Disaster Housing Assistance 96 The Federal Government can provide direct temporary housing and permanent housing 97 construction to individuals or households only when all other housing options, including 98 financial assistance for rent, transitional shelters, and relocation, have been exhausted or are 99

5 The National Disaster Housing Strategy uses the term “disaster victims.” However, since publication of the document, the accepted term has changed to “disaster survivors.” 6 For the purposes of this document, “incident” includes planned events as well as emergencies and/or disasters of all kinds and sizes.

North Dakota’s Flood-Impacted Housing Assistance Program

In 2013, the North Dakota Legislative Assembly directed the state’s Housing Finance Agency to establish a grant program to assist residents in flood-impacted areas with rehabilitation or replacement of flood damaged homes and transitional expenses to facilitate housing availability for flood-impacted residents.



deemed unreasonable. Direct temporary housing assistance is limited to situations in which 100 traditional financial options are insufficient to meet the needs of the affected populations. 101

A host of Federal programs and grants, sponsored by various agencies such as FEMA, the 102 Department of Housing and Urban Development (HUD), the Department of Agriculture 103 (USDA), and the Small Business Administration (SBA), are available to help disaster survivors 104 obtain interim and permanent housing. Many of these programs have specific eligibility 105 requirements; see the programs’ website links in Appendix A to review eligibility criteria. 106

Following a Presidential emergency or major disaster declaration, Emergency Support Function 107 (ESF) #6—Mass Care, Emergency Assistance, Temporary Housing, and Human Services and the 108 Housing Recovery Support Function (RSF) are the primary mechanisms to coordinate Federal 109 disaster housing support.7 Through ESF #6, the Federal Government provides assistance to 110 individuals for sheltering and temporary housing options including rental, repair, replacement, 111 and loan assistance; temporary housing units and permanent housing construction; referrals; 112 identification of accessible housing; and access to other sources of temporary housing assistance. 113

The Housing RSF supports and assists state and local 114 governments in identifying resources—both human capital 115 and financial—to help rehabilitate and reconstruct 116 destroyed and damaged housing, including developing new 117 accessible, permanent housing options. ESF #6 and the 118 Housing RSF collaborate to provide the range of housing 119 solutions. State and local planners should involve 120 representatives from the Federal ESF #6 and the Housing 121 RSF in the planning process to better understand Federal 122 sheltering and disaster housing programs. 123

7 For more information on Emergency Support Functions and Recovery Support Functions, refer to the National Response Framework and National Disaster Recovery Framework at https://www.fema.gov/national-planning-frameworks.

Disaster Recovery Reform Act (DRRA) of 2018

This legislation authorizes FEMA to issue grants to states, territories, and federally recognized tribes to implement direct assistance for temporary housing and permanent housing construction as part of a two-year pilot program.

https://www.fema.gov/national-planning-frameworks

https://www.fema.gov/national-planning-frameworks



Housing Phases 124

The nature and magnitude of an incident drives the size, scope, and scale of housing needs and 125 the duration of assistance required. Planners should develop a range of housing assistance 126 objectives to address the full spectrum of disasters, from smaller-scale incidents of short duration 127 and concentrated impact to large-scale catastrophic incidents of widespread devastation that 128 require long-term solutions. Housing plans should address the full range of potential incidents 129 from natural disasters to terrorism incidents and manmade events. A good reference for all 130 hazards should be in a state’s Threat and Hazard Identification and Risk Assessment8 or 131 community hazard mitigation strategies. 132

A range of sheltering and interim housing options typically meet the housing needs for smaller-133 scale disasters. However, large-scale catastrophic incidents require extensive long-term 134 reconstruction and rehabilitation to renew and revitalize the community and region. Some 135 incidents, such as a radiological accident or catastrophic hurricane, may render an area 136 uninhabitable for extended periods of time and require intensive advanced planning. 137

Housing solutions have three phases: sheltering, interim housing, and permanent housing 138 (Figure 1). Planning for disaster housing solutions and recovery starts in the pre-incident period, 139 otherwise known as steady state, when there is time for stakeholder engagement, research and 140 analysis, and discussions on the viability of courses of action (COAs). Housing planning 141 continues after an incident through response and recovery mission areas, when the COAs are 142 tailored and operationalized based on the specifics of the incident. 143

144 Figure 1: Housing Phases 145

As the disaster response and recovery progresses, multiple stakeholders work to help families in 146 shelters find alternative housing arrangements. 147

• Sheltering is the shortest housing phase. It generally occurs in the days immediately before148 and after a disaster and provides survivors who are displaced from their homes with a place 149 of safety to receive shelter, food, and other types of support. As disasters increase in size and 150

8 Threat and Hazard Identification and Risk Assessment. http://www.fema.gov/threat-and-hazard-identification-and-risk-assessment.

http://www.fema.gov/threat-and-hazard-identification-and-risk-assessment

http://www.fema.gov/threat-and-hazard-identification-and-risk-assessment



complexity, the number and type of shelters increases, along with the number of people in 151 them. This typically results in long-term sheltering (i.e., more than two weeks). 152

• Interim housing is the intermediate period of housing assistance that covers the gap between153 sheltering and the return of disaster survivors to permanent housing. 154

• Permanent housing is the final housing phase, when disaster survivors move back into their155 repaired homes or attain another form of long-term housing. This can take several years. 156

Sheltering 157

NGOs work closely with local governments to plan and manage shelters that meet local needs. 158 Sheltering may be preventative, such as accommodating individuals prior to a severe storm, or 159 immediately following an incident. When required, additional support is provided by the state 160 and, if necessary, by the Federal Government. In most cases, shelter residents return home within 161 a short period of time or locate other housing on their own. However, in large-scale disasters, 162 extended shelter stays may be required until individuals can either return home or transition to 163 interim or permanent housing. 164

Shelters serve multiple purposes. They provide temporary refuge and offer a place for families 165 and households to regroup, register for disaster assistance, and obtain updates regarding 166 damages, casualties, and response and recovery efforts. Shelters also provide access to disaster 167 recovery services to help meet the immediate needs of individuals and households while the 168 community responds to the incident and begins the recovery process. 169

Major or catastrophic incidents require more intensive sheltering support. When the demand for 170 shelters exceeds capacity or traditional shelters are not available, planners and emergency 171 managers may need to use nontraditional sheltering options, such as tents, vacant buildings, 172 dormitories, campgrounds, unused warehouses, or cruise ships. In these instances, not only will 173 the number of people requiring shelter support be large, but extensive damage to structures and 174 infrastructure will limit sheltering options and result in substantially longer shelter operational 175 periods. The total demand for shelter services and the post-impact assessment of structures that 176 meet shelter standards drive decisions on whether to use nontraditional shelters. Table 1 defines 177 congregate and non-congregate sheltering options and provides examples of each type. 178

Table 1: Sheltering Examples 179

Shelter Type Definition Examples

Congregate Private or public facilities with large open spaces

● Pre-Existing Shelter Facilities● Large Venue Sheltering (i.e., Mega-Shelters)● Schools, Churches, Community Centers● Retreats/Conference Centers● Soft-Sided Survivor Support Camps● Social Services Shelters (e.g., Homeless)● All-Purpose Community Centers or Facilities

Non-Congregate Locations where survivors are not grouped with others in large spaces

● Hotel, motel, Trailer● Dormitories/Group Quarters and Other Vacant

Institutional Facilities● Cruise Ships, Recreational Vessels, Floating Hotels



Shelter Type Definition Examples ● Recreational Vehicles● Seasonal and Commercial Recreational Camps● Family and Friends

180 When a disaster impacts thousands of people in a single community, a large, congregate shelter 181 (also known as a mega-shelter) may be the best way to serve them. A mega-shelter is an arena, 182 stadium, convention center or similar very high-occupancy facility that can shelter an 183 exceptionally large population of evacuees from a major disaster.9 Mega-shelters create a “little 184 city” where evacuees have access to services such as medical care and pharmacies, postal 185 services, legal services, day care, and places to power electrical devices. 186

Nontraditional shelters should be considered and discussed during the planning process, because 187 they require additional monitoring and resources to address potential, unanticipated problems 188 that could arise. Weighing the availability, benefits, and concerns for sheltering resources is an 189 important part of disaster housing COA development. 190

Interim Housing 191

Interim housing is the intermediate phase of housing assistance that covers the gap between 192 sheltering and the return of survivors to permanent dwellings. This phase provides displaced 193 survivors with safe, habitable, and secure places to live with access to community services and 194 the opportunity to begin the process of recovery. Interim housing assistance begins with financial 195 assistance for rent, hotel or motel reimbursement, and home repairs or replacement, and for most 196 incidents, this addresses most temporary housing requirements. Much of this assistance can be 197 obtained through homeowners’ insurance policies, which should be stressed as the best and first 198 line of recovery assistance. For more serious disasters, in which homes or communities are 199 destroyed, damaged, or contaminated to such an extent that they are uninhabitable for an 200 extended period, additional housing options are required. 201

Operational planning for interim housing begins immediately after an incident while survivors 202 are still in shelters and builds off the concepts and COAs from pre-disaster plans. Interim 203 housing can extend from weeks to months. In catastrophic or major incidents where the damage 204 to housing infrastructure is substantial or in rural areas where rental housing is limited, this 205 period may be many months. 206

Interim housing options vary depending on the nature of the incident. When infrastructure is not 207 severely damaged and the number of individuals with needs is manageable, existing resources 208 such as rental properties are the simplest and, in many ways the best, options. However, if the 209 damage to the community’s infrastructure significant or the venue is rural and rental property is 210 unavailable, more levels of government become involved and the complexity of solutions 211 increases. In some instances, survivors may certain non-congregate shelter options (i.e., family 212 and friends, hotel, motels, trailers) may represent the best interim housing option Table 2 213 provides for examples of interim housing. 214

9 Mega-Shelter Planning Guide. International Association of Venue Managers Life Safety Council. October 1, 2010. https://www.fema.gov/pdf/emergency/disasterhousing/mspg.pdf.

https://www.fema.gov/pdf/emergency/disasterhousing/mspg.pdf



Table 2: Interim Housing Examples 215

Examples Examples

● Friends and Family● Hotel, Motel● Commercial Space● Rental Units● Unused Federal Residential Properties

● Seasonal Rentals● Manufactured Homes● Recreational Vehicles● Temporary or Alternative Housing Units● Vacant Apartment Buildings

216 Decisions made for interim housing may have substantial implications for long-term recovery, 217 which is once again why it is imperative to appropriately document necessary decisions, roles 218 and responsibilities, and authorities in a housing plan. Interim housing solutions require greater 219 involvement of the whole community. As such, planning for interim housing COAs is complex 220 and should involve many stakeholders. 221

Permanent Housing 222

The stress level of disaster survivors increases the longer they are without permanent housing. 223 Therefore, the goal is to transition survivors from interim to permanent housing as quickly as 224 possible. However, identifying permanent housing relies on many factors such as availability, 225 financial resources, and alignment of individuals to housing with the appropriate 226 accommodations. Table 3 includes some examples of permanent housing solutions. 227

Table 3: Permanent Housing Examples 228

Examples Examples

● Construction of Kit Homes● Lease or Purchase of Single or Multi-Family

Homes, Apartments, and Condominiums● Modular Housing

● Manufactured Housing● Panelized Housing● Rehabilitated Single or Multi-Family Homes

229 Unlike sheltering and interim housing, permanent housing depends primarily on the personal 230 decisions and financial ability of individuals before and after the incident. 231

• Renters must seek out available replacement rental housing in the community. The lack of232 available affordable rental housing in the community impacts their transition to permanent 233 housing. 234

• Homeowners’ tasks are more complex; they should decide on one of several courses of235 action, coordinate with their insurance providers, and seek other financing as needed. 236 ‒ They need to decide whether they want to repair, rebuild, or possibly relocate, and local 237

government decisions on land use, building and occupancy inspections and permits, and 238 providing wrap-around or basic community services may guide their decisions. A 239 jurisdiction can expedite homeowner transitions by identifying and incorporating local 240 government decisions impacting permanent housing into their plan. 241

‒ Money is required to repair or rebuild. Hopefully, homeowners have insurance, but 242 insurance may not cover all rebuilding costs. Homeowners who are inadequately insured 243 may be at higher risk of delays in achieving permanent housing. 244



Jurisdictions should incorporate information on applicable financial programs for homeowners 245 into disaster housing plans to help planners understand the situation and develop COAs. For 246 example, many states have a state housing finance agency that may have access to Federal 247 resources such as the Community Development Block Grant (CDBG) and HOME Investment 248 Partnerships (HOME) program, or low-income housing tax credit or other programs of that 249 nature. Some states, such as Florida, operate a state housing trust fund for a variety of housing 250 purposes, including rebuilding housing following an incident. States can also use general funds 251 to support permanent housing, even if they do not have a housing trust fund. Most importantly, 252 state, tribal, and territorial governments are the conduits for many of the Federal disaster housing 253 programs, including preparedness grants, as well as a host of other programs offered by various 254 Federal departments and agencies. Appendix A lists housing assistance programs. 255



Housing Considerations 256

Disaster housing plans vary by jurisdiction and the threats they face. Factors such as 257 demographics, infrastructure, geography, topography, tourism levels, businesses, government 258 programs, and jurisdictional rules and regulations all present unique challenges to jurisdictions 259 and states. Housing planning has no “one size fits all” approach. Jurisdictions should examine 260 lessons learned and best practices of other communities and incorporate those considerations, as 261 appropriate, into their own plans. In addition, considerations evolve or grow as solutions 262 transition from sheltering to interim housing to permanent housing. Thorough discussions on 263 these considerations as part of the planning process is critical for the success of any COA. 264

The following section identifies some planning considerations for emergency managers and 265 planning teams to factor into their disaster housing plans, along with examples of pertinent 266 questions to help frame the planning discussion. 267

Regulations and Authorities 268

Various statutory authorities and policies provide the basis for disaster housing assistance and 269 can impact the availability of housing and the development of permanent housing options: 270

• Laws, statutes, ordinances, and executive orders dictate the ability to reconstruct, repair,271 allocate, and issue disaster housing. 272

• Local zoning ordinances, environmental regulations, fire codes, limitations for building in273 floodplains or coastal barriers, and accessibility requirements must be taken into account. 274

• States, local governments, tribes, and territories may have unique authorities that impact their275 emergency response activities and disaster housing programs. 276

• Most Federal assistance is based on authorities provided by the Robert T. Stafford Disaster277 Relief and Emergency Assistance Act, as amended (the Stafford Act, 42 U.S.C. 5121, et 278 seq.), the Post-Katrina Emergency Management Reform Act of 2006 (PKEMRA), the 279 Disaster Recovery Reform Act (DRRA), and those of other Federal departments and 280 agencies. 281

Thorough research on the regulations and authorities that impact the implementation of disaster 282 housing plans is critical to a plan’s viability, as each jurisdiction has unique laws and ordinances. 283 For example, various HUD programs allow waivers of regulations following a Presidential 284 Disaster Declaration. If waivers to regulations exist, then planners should document them, along 285 with the process for obtaining them, to expedite their execution when needed. Engaging 286 representatives from various local, state, and Federal government agencies in the planning 287 process can help to identify regulations that could delay the ability to get displaced survivors into 288 interim and permanent housing. Appendix B identifies a list of Federal laws, regulations, and 289 waivers to consider when writing disaster housing plans. 290



Regulations and Authorities Questions to Consider 291

• What entities have regulatory or legislative responsibilities for disaster housing within the292 jurisdiction?293

• What is the legal basis for mutual aid agreements to provide housing assistance?294 • What health and safety protocols can impact return to, and occupancy of, homes and buildings?295 • What codes and ordinances may need to be waived or suspended to support temporary housing296

solutions (e.g., placement of temporary housing units, distance from roadways, multiple297 temporary housing units on property, zoning, local flood damage prevention ordinances)?298

Natural Environment 299

Geography is a key contributing factor to community vulnerability. Proximity to hazard-prone 300 areas, such as coasts, floodplains, seismic zones, or potential contamination sites directly affects 301 the number of people requiring housing assistance and the potential duration. Statistical and 302 geographical information system (GIS)-based modeling approaches can assist planners in 303 determining risk based on the natural environment. For example, Flood Insurance Rate Maps, 304 storm surge models, hurricane wind and rain prediction models, and seismic risk approaches help 305 planners predict the areas most likely to sustain damage during certain incidents, the population 306 that will require housing assistance, and the likely types of assistance needed. In developing 307 pre-disaster housing plans, local planners or emergency managers should consult existing GIS 308 analysis of their region and incorporate the known topography challenges, culturally sensitive 309 locations (e.g., tribal sacred grounds, historical sites), and other known environmental 310 considerations into their COAs. In addition, jurisdictions can use FEMA’s Emergency 311 Management Performance Grant to fund GIS analysis to help develop housing plans. 312

Natural Environment Questions to Consider 313

• Has the jurisdiction conducted GIS modeling to determine topography and assess impacts from314 hazards?315

• What unique environmental risks in the jurisdiction could result in large numbers of displaced316 persons or challenges with rebuilding (e.g., coastal areas, floodplains, seismic zones)?317

• Are any cultural or historical sites in the jurisdiction governed by specific regulations?318 • Would any zoning regulations hinder the ability to rebuild in certain locations due to319

environmental considerations?320 • Does the jurisdiction have high-risk flooding areas or Special Flood Hazard Areas?321 • Are threatened or endangered species or other protected wildlife or plants present in any of the322

proposed locations where land-clearing activities may be required?323



Infrastructure 324

The viability and resiliency of infrastructure directly correlates to a community’s resilience—325 personal homes, as well as businesses and services. Homes and businesses in flood zones, on 326 earthquake faults, and on the coastline are more susceptible to certain types of disasters or 327 emergencies. Public infrastructure and lifelines (e.g., water, power) are especially critical, as the 328 loss of these assets impacts the ability of individuals to return to their communities in a timely 329 manner. Poorly constructed or maintained buildings, inadequately maintained public 330 infrastructure, commercial and industrial development, and certain types of housing stock all 331 increase the vulnerability of the built environment. For example, code requirements for older 332 buildings are in effect from when the structure was constructed, so they may be more susceptible 333 to damage. Planners should consult recent land surveys, local development records, building 334 permits, and census population data to obtain a better understanding of existing infrastructure 335 and planned growth, based on forecasted changes to the total number of persons inhabiting their 336 jurisdictions. This will help them more accurately document the disaster housing resources that 337 may be required and any potential gaps in capabilities. 338

Infrastructure Questions to Consider 339

• What critical infrastructure (e.g., water/wastewater plants, healthcare systems, schools), if340 damaged, could impact the ability of individuals to return to their homes?341

• What are the specific building codes to which structures need to be rebuilt?342 • Do planners have access to a list of key public and private infrastructure partners (e.g., power343

providers, utility companies) on which the jurisdiction relies?344

Population 345

The projected number of survivors requiring disaster housing assistance and their demographics 346 are two of the largest planning factors that influence disaster housing plans. Densely populated 347 areas require more disaster housing resources than rural areas. For example, areas along the Gulf 348 Coast are likely to have a large number of displaced survivors during a hurricane, versus 349 less-densely populated inland areas. For regions with considerable population fluctuation 350 throughout the year (e.g., summer vacationers), planning to accommodate the larger anticipated 351 displaced populations is a best practice. Certain demographic and social characteristics also 352 significantly impact disaster housing plans for an area: age, acute medical needs, socioeconomic 353 status, individuals with access or functional needs, survivors with limited English proficiency 354 (LEP), immigrants, and seasonal tourists. 355

Individuals with Access and Functional Needs 356 The social vulnerability10 of communities affects sheltering, interim, and permanent housing 357 choices and locations. When developing disaster housing plans, emergency managers should 358

10 The Centers for Disease Control and Prevention (CDC) maintains a Social Vulnerability Index (SVI). The SVI uses U.S. Census data to determine the social vulnerability of a community. CDC defines social vulnerability as the



engage and collaborate with FEMA Regional Disability Integration Specialists, state-designated 359 Disability Integration Coordinators, and members from across the community to obtain a better 360 understanding of the needs of a community and the resources to shelter or house individuals for 361 extended periods. Accessible resources, accommodations, and reasonable modifications are 362 necessary to ensure housing plans and operations include individuals with access and functional 363 needs.11 For example, survivors with access and functional needs often need to stay in proximity 364 to their established support system, which restricts available accessible housing options. Refer to 365 Appendix B for a list of the primary authorities that address accessibility requirements. 366

Advanced planning is essential to ensure equitable access and services for all survivors. Making 367 general population shelters and interim housing accessible to those with access and functional 368 needs may require additional items and services, such as: 369

• Communication assistance and services370 • Transportation and personal care assistants371 • Assistance with activities of daily living372 • Crisis counseling373 • Availability of food and beverages appropriate for individuals with dietary restrictions374 • Medical support375 • Provisions for service animals.376

Planning and executing disaster housing solutions for individuals with access and functional 377 needs requires a combined effort of government, private sector, and nonprofit agencies. Meeting 378 with community partners, stakeholders, providers, and individuals with access and functional 379 needs will enhance emergency planners’ and public health officials’ abilities to develop housing 380 plans that successfully integrate those needs into their housing strategy. In addition, these 381 collaboration efforts will help educate community members with access and functional needs 382 about the importance of personal preparedness plans. A variety of resources for planners on 383 access and functional needs is located at https://www.fema.gov/resources-people-disabilities-384 access-functional-needs. 385

Homeless Populations 386 Planners should also include the needs of their community’s homeless population in housing 387 plans. For example, as part of the planning process, obtaining an estimate of the locality’s pre-388 disaster homeless population and services needed to transport and shelter or house them 389 following a disaster is imperative for the community’s needs assessment. This requires engaging 390 with the entity responsible for Adult Social Services in their community to get a better 391 understanding of various government homeless assistance programs and their eligibility 392 requirements. 393

resilience of communities when confronted by external stresses on human health, stresses such as natural or human-caused disasters, or disease outbreaks. Factors such as poverty, lack of access to transportation, and crowded housing impact social vulnerability. https://svi.cdc.gov/. 11 Individuals having access and functional needs may include, but are not limited to, people with disabilities, older adults, and individuals with limited English proficiency, limited access to transportation, and/or limited access to financial resources to prepare for, respond to, and recover from the emergency.

https://www.fema.gov/resources-people-disabilities-access-functional-needs

https://www.fema.gov/resources-people-disabilities-access-functional-needs

https://svi.cdc.gov/



Some private sector programs may be able to provide temporary housing solutions while the 394 homeless individuals look for a job and seek affordable housing. In addition, planners should 395 also research available Federal programs designed to assist the homeless and incorporate these 396 into the plan’s COAs as appropriate. For example, HUD’s Continuum of Care program and 397 related network of service providers may be useful resources when developing the plan. 398

Incarcerated Individuals 399 Another population for consideration is the incarcerated. Prisons are subject to the same hazards 400 as the public. Correctional facilities are responsible for the evacuation and housing of their 401 resident population, due to issues such as security and detention for the safety of the incarcerated 402 evacuees and protecting the public from potential escapees. Inmates are sheltered at like facilities 403 as available—e.g., Federal-to-Federal, county-to-county. However, some county and state 404 prisons provide “rent out” space to Federal prisoners. These arrangements are generally not in 405 the scope of emergency planners, except to coordinate with them to ensure they have plans in 406 place and do not need additional assistance from the local government. 407

The National Institute of Corrections commissioned guidance for responding to a variety of prison 408 emergencies, including transportation needs, titled A Guide to Preparing for and Responding to Jail 409 Emergencies: Self-Audit Checklists, Resource Materials, Case Studies. 410 https://info.nicic.gov/nicrp/system/files/023494.pdf. 411

Nursing and Senior Facilities 412 Healthcare and other skilled nursing or senior facilities are also responsible for developing 413 emergency operations and contingency plans. Many individuals in senior living complexes or 414 assisted living facilities can be relocated to general population shelters, but interim and 415 permanent housing solutions must address specific requirements based on their medical needs. 416

Unlike correctional facilities, these facilities often rely on assistance from the government to 417 transport and relocate patients during disasters. Most healthcare facilities have memoranda of 418 understanding (MOUs) to facilitate evacuation and temporary housing processes. Planners 419 should factor in the resources and capability gaps needed to accommodate this segment of the 420 local population. A good practice is for planners to follow up with nursing facilities to ensure 421 their contingency plans are updated and contain information such as accessible transportations 422 for evacuation to temporary and permanent housing locations. 423

Population Questions to Consider 424

• What are the most densely populated areas in the jurisdiction?425 • Does the population for the jurisdiction fluctuate throughout the year (e.g., periods of the year426

where the tourist population increases)?427 • What is the demographic breakdown of the jurisdiction? How current are the statistics?428 • Which agencies within the jurisdiction provide services to the population with access and429

functional needs?430

https://info.nicic.gov/nicrp/system/files/023494.pdf



• What is the homeless population in the jurisdiction? Are there plans for sheltering or housing 431 them following a disaster?432

• What portion of the community receives pre-disaster housing assistance?433 • What are the estimated numbers of the community’s homeowners and renters?434 • How many hospitals or medical centers are in the jurisdiction? Do they have evacuation plans in435

place?436 • Does the planning team have copies of evacuation plans for jails/prisons and medical centers?437

Housing Availability 438

Following a catastrophic incident resulting in many displaced survivors, interim and permanent 439 housing options may be limited. This could be a result of high housing demand prior to the 440 incident, legal restrictions, or damage to pre-disaster alternative housing resources. It is 441 imperative that emergency managers and planners maintain awareness of the current housing 442 stock within their jurisdiction and identify temporary housing facilities prior to any incident. 443 Engaging local developers, realtors, and entities such as the local Board of Realtors is one way 444 that planners can start identifying potential housing solutions for their community. In some 445 cases, jurisdictions can negotiate pre-disaster contracts with various rental or business 446 communities to provide interim or permanent housing. This will alleviate the need to navigate 447 legal requirements during the height of a response to an incident. Understanding the current 448 housing stock in a community and identifying potential options for disaster housing are critical to 449 determining the available resources as part of the planning process. A disaster housing plan 450 should include a list of identified housing facilities and units as an appendix. 451

In addition, the planning team can discuss the possibility of issuing specific waivers for building 452 codes or zoning ordinances to create additional temporary housing solutions. This is especially 453 important for housing solutions that require delivery and installation. A best practice is to 454 coordinate with local jurisdictions regarding existing building, zoning, floodplain management, 455 codes, and regulations when working on the housing plan. 456

Housing Availability Questions to Consider 457

• What is the composition of the current housing stock (e.g., rentals, single family, multi-family,458 short-term occupancy)?459

• What percentage of the housing inventory is accessible for people with access and functional460 needs?461

• What percentage of the housing inventory allows household pets?462 • Does the jurisdiction have temporary housing resources (e.g., temporary housing units, trailers)?463 • What is the percentage of homeowners and renters in the area?464 • What percentage of the housing inventory is non-primary residences?465 • Are agreements in place for temporary housing solutions (e.g., with neighboring jurisdictions,466

colleges, hotels)?467



• Can building codes or zoning ordinances be waived to create additional temporary housing 468 solutions? If so, what is the process for that?469

• Is there an inventory of potential areas that could support group sites?470 • Is there an inventory of available pads for lease?471

Contracting 472

Contractors are a critical force-multiplier during any incident response. Local jurisdictions and 473 states may consider establishing pre-positioned contracts with vendors to expedite access to 474 housing resources following an incident. As part of the planning process, emergency managers 475 should identify any existing pre-positioned contracts and discuss the need for additional advance 476 contracts that could help obtain housing services and resources in a timely manner. This is 477 particularly valuable for addressing housing needs following smaller-scale emergencies where 478 Federal resources may not be available. 479

PKEMRA requires FEMA to identify and establish contracts prior to an incident for frequently 480 requested goods and services. In 2017, FEMA had an inventory of 77 advance contracts and 481 reported that it obligated about $2.3 billion on 57 of them for hurricane assistance—$890 million 482 for Harvey, $459 million for Irma, and $945 million for Maria. Some commonly acquired 483 products and services under these advance contracts were architect and engineering services, 484 inspection services, and prefabricated buildings.12 485

State and local planners should reach out to their regional FEMA office to obtain more 486 information or guidance on pre-positioned contracts. 487

Contracting Questions to Consider 488

• What, if any, pre-positioned contracts exist in the jurisdiction for housing-related services?489 • If any exist, have they recently been reviewed for accuracy and currency?490 • If none exist, are there resource gaps where a contract should be considered?491 • What is the contract process that would be used to address housing needs?492 • Does the planning team understand the requirements for Federal acquisitions?493

Host State Agreements 494

Through mutual aid agreements, SLTT jurisdictions provide disaster-related assistance to one 495 another. This includes sheltering and housing displaced survivors from other jurisdictions or 496 states. For example, Florida provided sheltering and temporary housing for evacuees from Puerto 497 Rico following Hurricane Maria. 498

12 2017 Disaster Contracting: Observations on Federal Contracting for Response and Recovery Efforts. February 2018. United States Government Accountability Office. https://www.gao.gov/assets/700/690425.pdf.

https://www.gao.gov/assets/700/690425.pdf



Reimbursement to host states for their efforts is either 499 through existing mutual aid agreements (e.g., EMAC), 500 direct reimbursement from FEMA, or in response to a 501 state’s request to FEMA under the Stafford Act. 502

Planners should identify any existing host state 503 agreements already in place or consider establishing 504 agreements with neighboring states during preparedness 505 planning efforts to expand the capacity of available 506 sheltering and interim housing options. 507

Host State Questions to Consider 508

• Are any host state agreements already in place at the state or territory level?509 • If not, should host state agreements be established?510 • Does the agreement specifically address relocation of displaced individuals?511 • Does the agreement specify procedures or limits to sharing information on displaced individuals512

(e.g., personally identifiable information)?513

Wrap-Around Services 514

Providing interim housing requires more than just providing structures. Individuals and 515 households in a new neighborhood should be within reasonable access to community and 516 “wrap-around” services (e.g., schools, fire and emergency services, grocery stores, healthcare, 517 daycare, public transportation services, social services, employment counseling, veterinarians). 518

The National Disaster Housing Strategy identifies several planning assumptions for wrap-around 519 services that emergency managers and planners should consider in their housing plans. 520

• Certain wrap-around services are fundamental, in that they meet a community’s basic needs521 for security, restoration of private sector life-support, and community connectivity. 522

• Providing wrap-around services expedites the individual/family recovery plans and the523 identification of a more permanent housing solution. 524

• To the extent possible, several wrap-around services may be met through assistance that525 enables and/or connects community nonprofit organizations’ abilities and interests in meeting 526 the needs directly.13 527

Wrap-Around Services Questions to Consider 528

• Have the wrap-around services and the agencies or organizations responsible for providing529 them been identified within the jurisdiction?530

13 National Disaster Housing Strategy, pg. 52. https://www.fema.gov/media-library-data/20130726-1819-25045-9288/ndhs_core.pdf.

Host State: A state that, by agreement with an impact-state or FEMA, is providing evacuation and sheltering support to individuals from another state.

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





• Are wrap-around service providers part of relevant planning efforts? 531 • What community organizations and partners can provide support and resources?532

Housing Inspection 533

Housing inspections are required to assess 534 damages, estimate the value of lost property, 535 and determine eligibility for certain disaster 536 assistance programs. Following catastrophic 537 incidents, the volume of damage inspections 538 will likely exceed the capacity to perform 539 these activities in a timely manner, as depicted 540 in Table 4. This will delay the delivery of 541 housing assistance to survivors. 542

In considering how to expedite housing 543 inspections, planners should identify the 544 existing pool of building inspectors and 545 permitting officials available to support 546 post-disaster repair and re-occupancy. Mutual 547 aid assistance compacts such as EMAC are 548 force multipliers for jurisdictions. Planners 549 should include information on additional inspection resources in their disaster housing plans. 550

Housing Inspections Questions to Consider 551

• What entity is responsible for occupation and safety inspections?552 • What are the available housing inspection resources within the jurisdiction?553 • Does the state recognize certifications and licenses from other states?554 • Are mutual aid agreements in place for additional housing inspectors?555 • What ways can inspections be expedited (e.g., waivers)?556 • What is the current waiting time to receive a certification of occupancy? Can this be expedited557

post incident?558

Public Information, Outreach, and Preparedness 559

A critical aspect of preparedness and planning efforts is identifying and transmitting information 560 that will help individuals and households prepare for displacement from their homes following 561 an incident. Synchronized, proactive messaging, prior to and following an incident, encourages 562 individuals and households to plan and react accordingly for displacement and helps alleviate 563 some of the burden on the jurisdictions. 564

Part of the disaster housing planning process should include public outreach. Emergency 565 managers, housing agencies, and public officials should ensure residents are aware of housing 566

Table 4: Housing Inspections and Wait Times for Disasters (2005–2017)

Disaster Number of Inspections

Avg. Wait Time (Days)

Katrina 1,385,329 35

Rita 623,635 27

Wilma 439,081 14

Sandy 343,003 7

Harvey 584,056 24

Irma 967,163 27

Maria 260,989 39



resources and how to access them. For example, the State of 567 568 569

570 571 572 573 574 575 576 577 578 579 580 581 582 583

Texas created a dedicated website for disaster housing resources following Hurricane Harvey (Figure 2).14

Messaging about the importance of flood insurance, homeowners and rental insurance, or documentation of proof of ownership (e.g., deed, title, mortgage statement) can expedite disaster assistance. Jurisdictions and states should develop a communications strategy that includes preparedness activities and messaging in alternative formats, so everyone has access to information regarding services and assistance. This may include sharing existing tools such as fact sheets or checklists that a state or agency has already developed. For example, FEMA’s direct housing assistance website for Hurricane Harvey includes information on temporary and permanent housing for individuals and households.15 Planners can identify and even script messages on housing assistance as part of the planning process.

Public Information, Outreach, and Preparedness Questions to Consider 584

• What communication channels will communicate relevant information to the community?585 • Has disaster-housing-related messaging already been developed within the jurisdiction?586 • Who is responsible for releasing information to the public within a jurisdiction?587 • What community organizations can help amplify housing-related messaging?588 • Will a website be established to convey disaster-housing information? How would it be589

established and who will sustain it?590 • What is the protocol to synchronize messages between local, state, and Federal entities?591

14 Texas Department of Housing and Community Affairs website. https://www.tdhca.state.tx.us/texans.htm. 15 FEMA Direct Housing Assistance website. https://www.fema.gov/media-library/assets/documents/155389.

Figure 2: State of Texas Housing Website

https://www.tdhca.state.tx.us/texans.htm




Housing Assistance Programs 592

Many government agencies and organizations have disaster housing responsibilities, capabilities, 593 and resources. Local jurisdictions, businesses, and states provide the first line of housing 594 assistance to affected individuals and households. As such, a variety of housing programs and 595 resources exist at the state and local levels and do not require a Stafford Act declaration. 596

After a Presidentially declared disaster, Federal housing programs become available to the 597 survivors and community to begin the recovery process, including programs administered by 598 FEMA. This is beneficial because no single program can mitigate all disaster housing challenges; 599 however, navigating the various programs, particularly those of the Federal Government, can be 600 difficult because of their similarities. 601

State and local planners should have a broad knowledge of these programs, including their 602 applicability, intended use, funding, population served, end-state, activation requirements, and 603 authorities. Planners should ensure that their housing plans catalog the housing assistance 604 programs and resources that are unique to their jurisdictions as well as the criteria and 605 information for accessing them. 606

Appendix A provides examples of some state disaster housing programs and a high-level 607 overview of various Federal programs that help survivors find interim and permanent housing. 608 See Annex 1 of the National Disaster Housing Strategy for more details on these programs.16 609

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

https://www.hsdl.org/?view&did=232305



Developing a Disaster Housing Plan 610

CPG 101 provides a standardized planning process for SLTT jurisdictions to develop housing 611 plans that integrate and synchronize with existing operational and strategic planning products 612 and efforts. This promotes consistency between plans and provides a familiar framework for 613 stakeholders to engage and participate. Figure 3 depicts the Six-Step Planning Process. 614

615 Figure 3: Six-Step Planning Process 616

The Pre-Disaster Recovery Planning Guide for Local Governments is another reference when 617 developing a disaster housing plan.17 The housing capability transcends both response and 618 recovery, and this document offers recovery-specific planning recommendations for planners. 619

This section offers housing-related recommendations and best practices that SLTT jurisdictions 620 should incorporate into the Six-Step Planning Process when developing disaster housing plans. 621

Step 1: Form a Collaborative Disaster Housing Planning Team 622

As previously noted, disaster housing responsibilities, capabilities, and resources involve a 623 diverse array of organizations with varied missions and vested interests in providing disaster 624 housing assistance. No single entity has the means to address the full spectrum of disaster 625 housing challenges. In addition, jurisdictions are all unique, with different risks, demographics, 626 and geographies and different levels of resources and capabilities to address disaster housing. 627 Therefore, planners should identify the appropriate representatives from all levels of 628 government, NGOs, and the private sector to participate in the planning process for a specific 629 jurisdiction. It is important to understand what capabilities and expertise each stakeholder can 630 bring to a whole community’s disaster housing solution. 631

In this step, planners establish the core and collaborative disaster housing planning teams: 632

The core planning team is a small group of planners or writers that takes input from the 633 collaborative planning team and develops the products for the planning process. This group 634 establishes the schedule, communicates with stakeholders, sets expectations, leads the planning 635 process, and develops the actual draft. 636

To ensure transparency with the community, the collaborative planning team should be as broad 637 as possible, including: 638

• Representatives from various government agencies at the jurisdictional, regional, state, and 639 Federal levels that have a role in providing disaster housing or wrap-around services 640

• Non-profit organizations 641

17 Pre-Disaster Recovery Planning Guide for Local Governments. https://www.fema.gov/media-library/assets/documents/129203.





• Local land developers and builders 642 • Volunteer organizations643 • Disability organizations644 • Faith-based organizations645 • Chambers of commerce646 • Organizations representing the needs of children, seniors, people with access and functional647

needs, people with LEP, and historically underserved populations 648 • As appropriate, organizations representing culturally sensitive locations (e.g., tribal sacred649

grounds) and/or historical sites. 650

Table 5 provides additional examples of organizations that may be involved in disaster housing 651 (these agencies and organizations will vary by jurisdiction). An expansive collaborative planning 652 team establishes relationships that bring creativity and innovation to disaster housing planning. 653

Table 5: Example Participants for a Housing Collaborative Planning Team 654

Government Organizations Private Sector/Non-Profit Organizations

● Local elected/appointed officials (e.g., mayors,city/county managers)

● Emergency management and public safety(Police/Fire/Emergency Medical Services)

● Housing finance agency● Public housing authorities● Building departments● Planning and zoning authorities● Public works departments● Health and social services departments● Floodplain management● Environmental protection● Department of Education● Economic development (local and regional)● Parks and Recreation● Historic preservation boards or commissions● Americans with Disabilities Act (ADA)

coordinators● Military installations● ESF #6 and Housing RSF representatives

(FEMA, HUD, SBA, USDA, VA)

● American Red Cross● Volunteer organizations active in disaster

(VOADs)● Non-profit organizations● Utility companies● Commercial and residential construction

developers● Rental property representatives/associations● Realtors● Independent charities● Education community (private)● Advocacy organizations (access and

functional needs, children, immigrant,homeless, racial/ethnic concerns)

● Chambers of commerce● Faith-based organizations● Media outlets

Step 2: Understand the Housing Situation 655

As noted in CPG 101, planners start the problem-solving process by conducting research and 656 analysis on how a jurisdiction’s threats and hazards can create a potential for displaced survivors 657 for long periods of time. Planners use pre-disaster housing inventories, populations, and services 658 as their basis for developing housing solutions, but the impacts from the event is likely to make 659 the post-disaster inventory differ significantly. 660



Know Your Community 661 The key to determining risks, impacts, and consequences is to know your community and understand 662 what defines its identity. Using existing data from local planning documents or local community 663 organizations, identify and map all community features, attributes, community makeup, people, and 664 assets (e.g., social, political, financial, infrastructure, public and private sector, institutional). 665 Understanding these community features assists the hazard identification process and provides a 666 thorough understanding of resources at the community’s disposal. Examine previous disasters and their 667 impacts and communicate to the planning team any community insights from these previous disasters. 668

The first step to understanding a disaster housing scenario is to conduct focused research on a 669 broad range of characteristics of a jurisdiction, such as the size, composition, and distribution of 670 the population, as well as land use patterns, socioeconomic conditions, the local government, 671 local cultural considerations, and businesses, community groups, infrastructure conditions, and 672 other community resources. Leveraging housing data from local and national housing surveys 673 such as the American Housing Survey (AHS)18 and the American Community Survey (ACS) can 674 assist planners with this activity.19 The AHS assesses regional and national housing needs every 675 two years and the ACS assesses general community data annually. In addition, many 676 communities have some form of data integration center that collects and enhances information to 677 support broader community decisions. The Greater New Orleans Data Center is an example of 678 such an organization.20 Planners can access such data tools to better determine the disaster 679 housing needs of their localities and states. 680

This step also includes obtaining knowledge about the various regulations and laws on options 681 for disaster housing. One tool to elicit this data is a fact sheet or questionnaire distributed to the 682 collaborative planning team that seeks information on a variety of issues and capabilities unique 683 to their organizations. In addition, these team members can point the planners to existing 684 resources or data specific to the jurisdiction. For example, health officials can provide data on 685 various elements of the population, as well as which critical health services require restoration 686 before interim housing structures are usable. 687

AHS: Conducted every two years by the Census Bureau for HUD, the AHS measures housing quality and 688 costs over time, with a longitudinal sample cohort. The data obtained about residences and households 689 provides valuable information that aids Federal, state, and local governments in planning to meet the 690 housing needs of the Nation. The AHS covers the 50 states and Washington, DC. 691 ACS: Administered by the Census Bureau; collects data on an ongoing basis to provide communities with 692 information for important decisions. The ACS covers the 50 states, Washington, DC, and Puerto Rico. 693

This is also an opportunity to assess the capabilities of the community and their broader network 694 of resources. For example, research can help identify how many dormitory rooms would be 695 available at local or regional institutions of higher learning, which new hotels or apartments are 696 being developed, and which unused rental properties require repair. 697

18 American Housing Survey (AHS). https://www.census.gov/programs-surveys/ahs/about/respondent-information.html. 19 American Community Survey (ACS). https://www.census.gov/programs-surveys/acs/data.html. 20 The Greater New Orleans Data Center. https://datacenterresearch.org.

https://www.census.gov/programs-surveys/ahs/about/respondent-information.html


https://www.census.gov/programs-surveys/acs/data.html

https://datacenterresearch.org/



When all research is complete, the core planning team analyzes the data to create a “scenario” 698 that maximizes the requirements for sheltering and housing within a community. Based on the 699 scenario, the planning team develops facts and assumptions pertaining to the housing mission. 700

Step 3: Determine Housing Goals and Objectives 701

Using information from the scenario in Step 2, the planning team considers how displaced 702 survivors’ needs will evolve and identifies projected housing requirements. These requirements 703 become the priorities and basis for establishing jurisdiction goals and objectives. Jurisdictions 704 should reference the national disaster housing goals when establishing their housing goals and 705 objectives. However, executives and elected officials of each jurisdiction may have additional 706 goals or objectives based on the unique characteristics and vision of the community. 707

The core planning team develops a list of goals and objectives for disaster housing. 708

• Goals are broad, general statements that indicate the intended solution to the identified 709 problems. They are what personnel and equipment resources are supposed to achieve. 710

• Objectives are specific and measurable and focus on actions carried out during the operation. 711 They lead to achieving the goals and determining the actions that participants in the operation 712 must accomplish. Translating objectives into actions is part of Step 4. 713

As goals and objectives are set, planners may identify more requirements that will feed into the 714 development of COAs as well as the capability estimate (see Step 4). 715

Example of a Disaster Housing Goal and Objectives 716 Goal: Identify any housing needs as individuals and households transition from interim to permanent 717

housing. 718 Objectives: 719 Decide which interim housing options will be best for the jurisdiction. 720 Determine available resources. 721 Identify necessary updates, amendments, or waivers to local building codes and zoning ordinances. 722 Ensure availability of utilities and essential services, such as police and fire protection, school, 723

childcare, medical facilities, and supermarkets, are available and accessible to households receiving 724 interim housing assistance. 725

Identify a range of physically and programmatically accessible housing options. Provide mechanisms 726 to assist those with access and functional needs to live independent lives. 727

Step 4: Housing Plan Development 728

In this step, the planning team develops operational COAs to achieve each objective. Given the 729 complexity of disaster housing authorities, the planning team should establish a projected 730 timeline for housing actions, ranging from sheltering through permanent housing. Using this 731 timeline, planners can identify decision points and response actions required to achieve the 732 objective or response goal (i.e., the desired end-state). The timeline also helps determine how 733 much time is available or needed to complete a sequence of actions. This is particularly 734



important to help survivors moveout of shelters and to return to some level of normalcy as 735 quickly as possible. 736

When developing COAs, there needs to be an understanding as to which organization(s) have 737 responsibility for which actions and whether those actions depend on any decisions, legal 738 authorities, or the completion of other tasks. In addition, some housing assistance programs have 739 timelines established in law, regulations, or policies, which can include deadlines for 740 applications, completion of work, developing administrative plans, program duration, or 741 timelines for submitting extension requests or appeals. 742

After the selection of COAs, the planning team develops capability estimates that identify the 743 capabilities and resources needed to accomplish tasks. Capability estimates help planners decide 744 whether pursuing a COA is realistic and supportable. Once the estimates are completed, the 745 planning team uses the information from Step 2 to identify existing resources and any gaps or 746 shortfalls (in direct or indirect disaster housing capabilities, resources, authorities, or funding). 747 Gaps are usually between the projected number of people requiring some form of housing 748 assistance and the actual capacity to house them with existing resources. However, projecting 749 actual housing needs has historically been a challenge—survivors make their own choices and 750 the length of time it takes to deliver housing solutions may impact the participation rate. 751

At this juncture, the planning team should start identifying external housing capabilities (outside 752 the jurisdiction—e.g., regional, Federal, NGO) that can fill some of the housing shortfalls. They 753 should also discuss the need for mutual aid agreements, host state agreements, or waivers. 754

Step 5: Housing Plan Preparation, Review, and Approval 755

Once the core planning team develops a draft of the plan, representatives from the collaborative 756 planning team should review and validate the content and potentially identify additional 757 coordination points, functions, or resources. 758

Particularly, since roles and responsibilities for disaster housing support encompass many 759 agencies and organizations, any errors or conflicts must be resolved and addressed prior to the 760 plan’s approval and publication. Conducting at least one stakeholder engagement period is a best 761 practice. Refer to CPG 101 for successful strategies to facilitate input from stakeholders. 762

After the review and adjudication of all comments, the collaborative planning team members 763 should have an opportunity for a final review of the document to ensure that all critical omissions 764 or errors are resolved. The lead planner or emergency manager then submits the plan to the 765 appropriate executive decision-maker (which will vary by jurisdiction) for approval. 766

Step 6: Housing Plan Implementation and Maintenance 767

States typically convene housing task forces at their state emergency operations center (EOC) or 768 a joint field office to implement the housing plan and identify actual housing solutions following 769 an incident. During the planning process, emergency managers are encouraged to identify 770 personnel to serve on an interagency housing task force. 771



Ideally, an exercise to test the viability of the housing COAs occurs prior to the plan’s approval, 772 but that is not always the case. Therefore, the emergency manager should identify exercise and 773 training opportunities for the plan as soon as possible following publication. 774

To help emergency managers determine the qualifications that specific housing roles require, 775 jurisdictions and states can leverage the National Qualification System (NQS) disaster housing 776 job titles and position task books. The NQS establishes standard minimum qualifications for 777 specific incident-related positions to provide consistency across the Nation and support 778 nationwide interoperability.21 779

Collaborative exercises should involve partners identified in the plan, to help familiarize them 780 with the plan and solidify a practical understanding of processes, decision points, and delivery of 781 capabilities. Tabletop exercises (TTXs) are useful tools for identifying potential resource 782 shortfalls or weakness in the plan. Lessons learned from TTXs, other exercises, or trainings 783 inform decisions by senior leaders to make changes to the plan. The Homeland Security Exercise 784 and Evaluation Program (HSEEP) describes several types of exercises, from full scale to 785 tabletop, in very specific terms. HSEEP guidance also provides other valuable information 786 regarding the use of exercises as training. Emergency managers should consult HSEEP for 787 additional information on exercises to test housing capabilities.22 788

Lessons learned from real-world incidents are 789 critical inputs to plan revisions and housing 790 solutions. These incidents, while unfortunate, offer 791 an opportunity to assess existing plans and identify 792 planning or resource gaps. Partners, such as the 793 members of a Disaster Housing Task Force, can 794 further refine housing plans and strategies based on 795 the execution of existing plans in the face of a 796 real-world incident. 797

A scheduled periodic review and revision of the 798 housing plan is necessary to keep it current. The 799 review should consider lessons learned from 800 real-world incidents or exercises that included a 801 disaster housing mission, new national policy, or 802 significant changes within the jurisdiction, such as 803 government reorganizations, housing booms, and 804 demographics. 805

21 Guideline for the National Qualification System. FEMA. November 2017. https://www.fema.gov/media-library/assets/documents/151291. 22 The Homeland Security Exercise and Evaluation Program (HSEEP). https://www.fema.gov/media-library/assets/documents/32326.

State-Led Disaster Housing Task Force (DHTF)

At the state level, a DHTF is a permanent body that coordinates SLTT, Federal, NGO, and private sector experts to identify and evaluate housing programs, resources, and capabilities as part of the disaster housing planning effort. It primarily consists of SLTT officials who have a role in disaster housing. Following an incident, the DHTF:

Activates upon initiation of the state-led housing mission.Determines the scope of disaster-caused housing needsExplores available rental resources and feasible alternatives

Develops housing solutions.







Glossary 806

Access and Functional Needs: Individuals having access and functional needs may include, but 807 are not limited to, people with disabilities, older adults, and individuals with limited English 808 proficiency, limited access to transportation, and/or limited access to financial resources to 809 prepare for, respond to, and recover from the emergency. 810

Agency: A government element with a specific function offering a particular kind of assistance. 811

Congregate Shelters: Private or public facilities with large open spaces, such as schools, 812 churches, community centers, armories, or other similar facilities. 813

Course of Action (COA): An approach that accomplishes an objective or mission. 814

Emergency Operations Center (EOC): The physical location where the coordination of 815 information and resources to support incident management (on-scene operations) activities 816 normally takes place. An EOC may be a temporary facility or located in a more central or 817 permanently established facility, perhaps at a higher level of organization within a jurisdiction. 818

Emergency Operations Plan (EOP): The ongoing plan maintained by various jurisdictional 819 levels for responding to a wide variety of potential hazards. It describes how people and property 820 will be protected; details who is responsible for carrying out specific actions; identifies the 821 personnel, equipment, facilities, supplies, and other resources available; and outlines how all 822 actions will be coordinated. 823

Emergency Support Function (ESF): The grouping of governmental and certain private sector 824 capabilities into an organizational structure to provide capabilities and services most likely 825 needed to manage domestic incidents. 826

Host State: A state that, by agreement with an impact-state or FEMA, is providing evacuation 827 and sheltering support to individuals from another state. 828

Impact State: A state, territory, or tribe that has received a Presidential emergency or major 829 disaster declaration. 830

Incident: An occurrence, natural or manmade, that necessitates a response to protect life or 831 property. In this document, the word “incident” includes planned events as well as emergencies 832 and/or disasters of all kinds and sizes. 833

Interim Housing: The intermediate period of housing assistance that covers the gap between 834 sheltering and the return of disaster survivors to permanent housing. Generally, this period may 835 span from the day after a disaster declaration through a period up to 18 months. 836

Jurisdiction: A political subdivision (e.g., municipality, county, parish, state, Federal) 837 responsible for ensuring public safety, health, and welfare within its legal authorities and 838 geographic boundaries. 839

Mega-Shelter: An arena, stadium, convention center, or similar very high-occupancy facility 840 that is used to shelter an exceptionally large population of evacuees from a major disaster. 841



Non-Congregate Shelters: Locations where survivors are not grouped with others in large 842 spaces (e.g., family, friends, trailer, hotel). 843

Nongovernmental Organization (NGO): A group that is based on the interests of its members, 844 individuals, or institutions that is not created by a government; it may work cooperatively with 845 government. Examples include faith-based groups, relief agencies, organizations that support 846 people with access and functional needs, and animal welfare organizations. 847

Objective: A statement of an outcome to be accomplished or achieved. Incident objectives are 848 used to select strategies and tactics. Incident objectives should be realistic, achievable, and 849 measurable, yet flexible enough to allow strategic and tactical alternatives. 850

Permanent Housing: Safe, sanitary, and secure housing that can be sustained without continued 851 disaster-related assistance. 852

Private Sector: Organizations and individuals that are not part of any governmental structure. 853 The private sector includes for-profit and not-for-profit organizations, formal and informal 854 structures, commerce, and industry. 855

Reasonable Modification: A structural change made to existing premises, occupied or to be 856 occupied by a person with a disability, to afford such person full enjoyment of the premises. 857

Shelter: A place of refuge that provides life-sustaining services in a congregate facility for 858 individuals who have been displaced by an emergency or a disaster. 859

Sheltering: Housing that provides short-term refuge and life-sustaining services for disaster 860 survivors who have been displaced from their homes and are unable to meet their own immediate 861 post-disaster housing needs. 862

State: Used in this document to include any U.S. state, the District of Columbia, the 863 Commonwealth of Puerto Rico, the Virgin Islands, Guam, American Samoa, the Commonwealth 864 of the Northern Mariana Islands, and any U.S. possession. 865

State-Administered Disaster Housing Task Force (DHTF): A permanent body that 866 coordinates SLTT, Federal, nongovernmental, and private sector experts to identify and evaluate 867 housing programs, resources, and capabilities as part of disaster housing planning. 868

Temporary Housing Unit: Manufactured housing, recreational vehicle, or other readily 869 fabricated dwelling (e.g., pre-fabricated dwelling). 870

Wrap-Around Services: Infrastructure and additional essential services to address disaster-871 related needs of affected residents living in temporary housing sites. These services go beyond 872 the physical need for housing or political subdivision of a state and typically include basic social 873 services and access to utilities, transportation, grocery stores, and medical and employment 874 facilities. 875



Acronyms 876

ACS American Community Survey 877

ADA Americans with Disabilities Act 878

AHS American Housing Survey 879

CDBG Community Development Block Grant 880

CDBG-DR Community Development Block Grant – Disaster Recovery 881

COA Course of Action 882

CPG Comprehensive Preparedness Guide 883

CSBG Community Services Block Grant 884

DHTF Disaster Housing Task Force 885

DRRA Disaster Recovery Reform Act 886

EMAC Emergency Management Assistance Compact 887

EO Executive Order 888

EOC Emergency Operations Center 889

EOP Emergency Operations Plan 890

ESF Emergency Support Function 891

FEMA Federal Emergency Management Agency 892

FHA Federal Housing Administration 893

FTH First-Time Homebuyer 894

GIS Geographic Information System 895

HHS Department of Health and Human Services 896

HMGP Hazard Mitigation Grant Program 897

HOME HOME Investment Partnerships Program 898

HSEEP Homeland Security Exercise Evaluation Program 899

HSPD Homeland Security Presidential Directive 900

HUD Department of Housing and Urban Development 901

LEP Limited English Proficiency 902



NFIP National Flood Insurance Program 903

NGO Nongovernmental Organization 904

NQS National Qualification System 905

PKEMRA Post-Katrina Emergency Management Reform Act 906

RSF Recovery Support Function 907

SBA Small Business Administration 908

SHIP State Housing Initiatives Partnership 909

SLTT State, Local, Tribal, and Territorial 910

TTX Tabletop Exercise 911

USACE Army Corps of Engineers 912

USDA Department of Agriculture 913

VA Department of Veterans Affairs 914



Appendix A: Housing Assistance 915

Programs 916

State and Local Housing Assistance Programs 917

The composition of governments in each SLTT jurisdiction differs. As a result, disaster housing 918 programs vary across each jurisdiction. Some states and jurisdictions have dedicated housing 919 assistance programs or resources in addition to those supplied by the Federal Government. 920 Table 6 provides some examples of state housing programs. 921

As part of the planning process, planners should understand the disaster housing programs at the 922 local, state, and Federal levels, along with their purpose, scope, and eligibility requirements. 923

Table 6: Examples of State Disaster Housing Programs 924

State Program Purpose Link

Florida State Housing Initiatives Partnership (SHIP)

Provides funds to local governments as an incentive to create partnerships that produce and preserve affordable homeownership and multi-family housing for very low, low, and moderate-income families. SHIP may fund emergency repairs, new construction, rehabilitation, down payment and closing costs, impact fees, construction and gap financing, mortgage buy-downs, acquisition of property for affordable housing, matching dollars for Federal housing grants and programs, and homeownership counseling.

https://www.floridahousing.org/programs/special-programs/ship---state-housing-initiatives-partnership-program

Maryland Maryland Disaster Housing Assistance Program

Provides short-term, emergency rental assistance for families or individuals displaced by a natural disaster, as identified by the Maryland Emergency Management Agency or the Maryland Department of Human Resources, while the voucher recipient arranges for long-term housing or awaits permanent housing assistance.

www.dhcd.maryland.gov/Communities/Documents/TenantParticipatonFactSheet.pdf

Massachusetts Massachusetts Accessible Housing Registry Program

Helps people with disabilities find rental housing in Massachusetts, primarily accessible and barrier-free housing.

http://www.massaccesshousingregistry.org/






http://www.dhcd.maryland.gov/Communities/Documents/TenantParticipatonFactSheet.pdf








State Program Purpose Link

Minnesota Quick Start Disaster Recovery Program

Provides assistance as a last resort when private insurance and Federal assistance are not adequate to return a damaged home to its pre-disaster condition. The program is activated in the event of a federally declared natural disaster.

http://www.mnhousing.gov/wcs/Satellite?c=Page&cid=1358905001749&pagename=External/Page/EXTStandardLayout

North Carolina Single-Family Rehabilitation Program

Provides funding to rehabilitate owner-occupied homes in disaster-affected counties. Assistance is provided through local governments or nonprofit agencies.

https://www.nchfa.com/current-homeowners/repair-your-home/single-family-rehabilitation-program

Virginia The Emergency Home and Accessibility Repair Program

Provides funds to remove urgent emergency health and safety hazards. It also addresses physical accessibility barriers for low-income Virginians.

https://www.dhcd.virginia.gov/eharp

Federal Housing Assistance Programs 925

The following sections summarize major Federal programs by department or agency that 926 provides, or helps provide, sheltering or interim or permanent housing for individuals or 927 households affected by a major disaster. These programs help individuals and households return 928 to their pre-disaster state of sustainable, self-sufficient housing. More details on these programs 929 are in the National Disaster Housing Strategy Annex 1: Overview of Disaster Housing Programs 930 for Federal, State, Tribal, and Local Government and Nongovernmental Organizations.23 931

Army Corps of Engineers (USACE) 932

Table 7: USACE Disaster Housing Program 933

Program Purpose Activation Link

Operation Blue Roof

Provides homeowners in disaster areas with fiber-reinforced sheeting to cover their damaged roofs until arrangements can be made for permanent repairs.

Presidential emergency or major disaster declaration

https://www.usace.army.mil/Media/Fact-Sheets/Fact-Sheet-Article-View/Article/475463/temporary-roofing/

934

23 National Disaster Housing Strategy Annex 1: Overview of Disaster Housing Programs for Federal, State, Tribal, and Local Government and Nongovernmental Organizations. https://www.fema.gov/media-library-data/20130726-1747-25045-6170/ndhsannex1.pdf.




















https://www.fema.gov/media-library-data/20130726-1747-25045-6170/ndhsannex1.pdf

https://www.fema.gov/media-library-data/20130726-1747-25045-6170/ndhsannex1.pdf



Department of Agriculture (USDA) 935

Table 8: USDA Disaster Housing Programs 936


Direct Loan and Loan Guarantee Programs

Provides qualified applicants the opportunity to acquire, build, rehabilitate, improve, or relocate dwellings in rural areas. Borrowers may either obtain direct loans from USDA or from private lenders that are guaranteed by USDA.


https://usdamortgagehub.com/usda-502-guaranteed-or-direct-loan/

Farm Labor Housing Loans and Grants

Helps develop housing for farm workers through direct loans and grants.


https://www.rd.usda.gov/programs-services/farm-labor-housing-direct-loans-grants

First-Time Homebuyers (FTH) Program

Provides incentives such a 0% down payment, lenient qualifications, and low mortgage insurance to incentivize FTH in rural areas as defined by USDA. A borrower who hasn’t owned a home in the past three years may also qualify for an FTH loan.

Standing program

https://www.usdaloans.com/program/first-time-homebuyers/

Multi-Family Housing Rental Assistance Program

Makes rental assistance payments to owners of rental housing whose houses are uninhabitable due to a disaster. Eligible tenants pay no more than 30% of their income in rent.


https://www.rd.usda.gov/programs-services/multi-family-housing-rental-assistance

Rural Rental Housing Guaranteed Loans

Enables developers to provide multi-family housing for the elderly, individuals with a disability, and families who cannot afford the purchase price and maintenance costs of their own homes. Borrowers may obtain loans from private lenders to finance multi-family housing in rural areas, and USDA guarantees to pay for the lender losses in case of borrower default.


https://www.hud.gov/sites/documents/19565_515_RURALRENTAL.PDF

Single-Family Housing Repair Loan and Grant Program

Provides very low-income rural homeowners with direct loans to repair their homes.


https://www.rd.usda.gov/programs-services/single-family-housing-repair-loans-grants

937





























Department of Health and Human Services (HHS) 938

Table 9: HHS Disaster Housing Programs 939


Community Services Block Grants (CSBG)

Provides block grants to states, U.S. territories, and federally recognized Native American tribes following disasters, who then distribute the monies to community action agencies and other organizations serving low-income populations.

Any disaster, regardless whether there is a presidential emergency or major disaster declaration

https://www.acf.hhs.gov/ocs/programs/csbg

Social Services Block Grants

Provides block grants to states, U.S. territories, and federally recognized Native American tribes following disasters for the provision of social services to low-income populations.

Upon passage of a supplemental appropriations bill following a disaster

https://www.acf.hhs.gov/ocs/programs/ssbg

940

Department of Housing and Urban Development (HUD) 941

Table 10: HUD Disaster Housing Programs 942


Community Development Block Grants (CDBG)

Funds local community development activities such as affordable housing, economic revitalization, public services, and infrastructure restoration.

Ongoing program funded by annual appropriation to HUD

https://www.hudexchange.info/programs/cdbg/

Community Development Block Grants – Disaster Recovery (CDBG-DR)

Often utilized as a distribution mechanism for disaster recovery funds made available by Congressional supplemental appropriations.

Supplemental appropriations made by Congress following a Presidential disaster declaration

https://www.hudexchange.info/programs/cdbg-dr/

FHA Mortgage Insurance for Disaster Victims – Section 203(h)

Provides insurance for mortgages made by qualified lenders to victims of a major disaster who have lost their homes and are in the process of rebuilding or buying another home.


https://www.hud.gov/program_offices/housing/sfh/ins/203h-dft

FHA Rehabilitation Mortgage Insurance – Section 203(k)

Helps those who have lost their homes by insuring a single, long-term, fixed, or adjustable rate loan that can cover both the acquisition and rehabilitation of a property that is at least a year old.

Any disaster, regardless whether there is a presidential emergency or major disaster declaration

https://www.hud.gov/program_offices/housing/sfh/203k
























HOME Investment Partnerships Program

Annual formula grants to participating jurisdictions that allow states and localities to fund a wide range of activities that build, buy, and/or rehabilitate affordable housing or provide direct rental assistance to low-income people.

Standing program https://www.hud.gov/program_offices/comm_planning/affordablehousing/programs/home/

HUD-Owned Homes

Allows HUD to sell or lease homes it owns at a discount to survivors displaced by disasters.

No formal activation; case-by-case basis

https://www.hudhomestore.com/Home/Index.aspx

Loss Mitigation Program for FHA Homeowners

Incorporates a process to avoid foreclosures where lenders assist borrowers who have been unable to make loan payments and are in danger of defaulting on their loans.

At the discretion of the Secretary of HUD

https://www.hud.gov/program_offices/housing/sfh/nsc/lossmit

Public Housing Capital Funds

Makes improvements that benefit public housing residents, who are predominantly families and elderly people with incomes below 50 percent of the HUD-adjusted median income in their area.

No formal activation; case-by-case basis

https://www.hud.gov/hudprograms/phcapfund

943

Department of Veterans Affairs (VA) 944

Table 11: VA Disaster Housing Program 945


VA Home Loans

Helps veterans, certain Service personnel (including certain Reservists and Guard members), and certain unmarried surviving spouses of veterans obtain credit to buy, build, or improve homes.

At the discretion of the VA Secretary following a presidential emergency or major disaster declaration

https://benefits.va.gov/homeloans/

Temporary Housing for Disaster Victims

Develops and maintains plans to make housing assets that are habitable, to which VA has title and possession, available for use by survivors in catastrophic disasters.

At the discretion of the VA Secretary following a presidential emergency or major disaster declaration

https://www.fema.gov/media-library-data/1470149820826-7bcf80b5dbabe158953058a6b5108e98/ESF_6_MassCare_20160705_508.pdf

946

https://www.hud.gov/program_offices/comm_planning/affordablehousing/programs/home/


























Federal Emergency Management Agency (FEMA) 947

Table 12: FEMA Disaster Housing Programs 948


Cora C. Brown Fund

Helps meet disaster-related needs that have not or will not be met by governmental agencies or any other organization.

Presidentially declared major disaster or emergency not caused by or attributable to war

http://www.federalgrantswire.com/cora-brown-fund.html

Essential Assistance (Section 403)

Supports and augments state and local sheltering resources for the affected population. Assistance is available to a broad population and not subject to eligibility or demographic restrictions.


https://www.fema.gov/media-library-data/1519395888776-af5f95a1a9237302af7e3fd5b0d07d71/StaffordAct.pdf (page 27)

Federal Assistance to Individuals and Households - Housing Assistance Provision (Section 408)

Provides interim housing with some sheltering and permanent housing applications. Available to individuals and households whose primary residences are in a Presidentially declared major disaster area where individual assistance is designated.


https://www.fema.gov/news-release/2018/05/17/4362/fact-sheet-frequently-asked-questions-about-fema-individual-assistance

Hazard Mitigation Grant Program (HMGP)

Provides grants to state and local governments who implement long-term hazard mitigation measures that will reduce the loss of life and property due to natural disasters.


https://www.fema.gov/hazard-mitigation-grant-program-new

Individuals and Households Program (Financial Assistance and Direct Assistance)

Provides financial and direct assistance to eligible individuals and households affected by a disaster who have uninsured or underinsured necessary expenses and serious needs. Financial assistance funds temporary housing, home repair, and replacement. Direct assistance provides housing options to disaster survivor applicants. Programs may include multi-family lease and repair, transportable temporary housing units, direct lease, and permanent housing construction.

Presidential emergency or major disaster declaration.





https://www.fema.gov/media-library-data/1519395888776-af5f95a1a9237302af7e3fd5b0d07d71/StaffordAct.pdf


























National Flood Insurance Program (NFIP)

Enables individuals to purchase insurance against losses from physical damage or loss of buildings and/or contents.

Standing program http://www.fema.gov/business/nfip/

949

Small Business Administration (SBA) 950

Table 13: SBA Disaster Housing Program 951


Disaster Loan Assistance

Provides low-interest, fixed-rate loans to disaster victims, enabling them to repair or replace property damaged or destroyed in declared disasters.

At the discretion of SBA Administrator or following a presidential emergency or major disaster declaration.

https://disasterloan.sba.gov/ela/Information/Inde

952

http://www.fema.gov/business/nfip/

http://www.fema.gov/business/nfip/

https://disasterloan.sba.gov/ela/Information/Index





Appendix B: Authorities and 953

References 954

Authorities 955

Each SLTT jurisdiction has unique statutes and policies that govern their housing activities. The 956 authorities portion of this appendix focuses on Federal authorities that jurisdictions and states 957 should consider when developing their disaster housing plans. NOTE: This lis is not exhaustive. 958

• Age Discrimination Act of 1975, 42 U.S.C. § 6101-6107: Prohibits discrimination on the 959 basis of age in programs and activities receiving Federal financial assistance. 960

• Americans with Disabilities Act (ADA), Public Law 101-338, as amended. 42 U.S.C. 961 § 12101: Prohibits discrimination on the basis of a disability; defines a person with a 962 disability as an individual who has a physical or mental impairment that substantially limits 963 one or more major life activities. All federally funded programs must be ADA compliant. 964

• Architectural Barriers Act, as amended, 42 U.S.C. § 4151 et seq.: Requires that all 965 buildings and facilities designed, constructed, or altered with Federal funds, or leased by a 966 Federal agency, comply with Federal standards for physical accessibility (requirements are 967 limited to architectural standards in new and altered buildings and in newly-leased facilities). 968 Federal funds that provide shelter or interim or permanent housing after a disaster must 969 comply with this act. 970

• Civil Rights Act of 1964, Title VI, Public Law 88–352: Prohibits discrimination on the 971 basis of race, color, and national origin by recipients of Federal financial assistance. 972

• Civil Rights Act of 1968, Title VIII (Also known as the Fair Housing Act of 1968), 42 973 U.S.C. § 3601-3619: The 1968 act expanded on the Civil Rights Act of 1964 by prohibiting 974 discrimination concerning the sale, rental, and financing of housing based on race, religion, 975 and national origin. A 1974 Amendment added gender and a 1988 Amendment protects 976 people with disabilities and families with children. 977

• Executive Order (EO) 12898 – Federal Actions to Address Environmental Justice in 978 Minority Populations and Low-Income Populations: Directs Federal agencies to identify 979 and address disproportionately high and adverse human health or environmental effects of 980 their actions on minority and low-income populations with the goal of achieving 981 environmental protection for all communities. 982

• EO 13166 – Improving Access to Services for Persons with Limited English Proficiency: 983 Requires Federal agencies to examine the services they provide, identify any need for 984 services to those with LEP, and develop and implement a system to provide those services so 985 LEP people have meaningful access to them. 986

• EO 13347 – Individuals with Disabilities in Emergency Preparedness: Ensures that the 987 support needed by individuals with disabilities is integrated into the development and 988 implementation of emergency preparedness plans by Federal, SLTT governments, and 989 private organizations. 990

https://www.bing.com/search?q=Act+of+Congress%20wikipedia

http://legislink.org/us/pl-88-352



• Federal Aviation Administration Reauthorization Act of 2018 (Disaster Recovery991 Reform Act of 2018), Public Law 115-2524: Acknowledges the shared responsibility of992 disaster response and recovery and aims to reduce the complexity of FEMA and build the993 Nation’s capacity for the next catastrophic event. The law contains more than 50 provisions994 that require FEMA policy or regulation changes for full implementation, as they amend the995 Robert T. Stafford Disaster Relief and Emergency Assistance Act996

• Flood Disaster Protection Act of 1973, Public Law 93-234: Mandated the purchase of997 flood insurance to protect property located in Special Flood Hazard Areas. 998

• Homeland Security Presidential Directive - 5 (HSPD-5), Management of Domestic999 Incidents, 2003: Establishes a single, comprehensive national incident management system. 1000

• International Code Council: International Residential Code, 2018: Used by most states1001 and local jurisdictions (after local adoption) for the design, construction, materials, and use 1002 and occupancy of one- to four-unit residential structures. Communities may have adopted 1003 earlier versions of this code. For larger residential and all non-residential buildings, the 1004 International Building Code would govern, when locally adopted. 1005

• National Fire Protection Association 5000: Building and Construction Safety Code,1006 2018: Provisions to regulate and control the permitting, design, construction, quality of 1007 materials, use and occupancy, and location of all buildings, structures, and certain equipment. 1008

• National Flood Insurance Act of 1968, 42 U.S.C. 4001 et seq.: Established NFIP, an1009 insurance alternative to disaster assistance to meet the escalating costs of repairing damage to 1010 buildings and their contents caused by floods. 1011

• Pets Evacuation and Transportation Act of 2006, Public Law 109-308: Amended the1012 Stafford Act to require state and local emergency preparedness operational plans to address 1013 the needs of individuals with household pets and service animals following a major disaster 1014 or emergency. 1015

• Post-Katrina Emergency Management Reform Act, Public Law 109–295: Amended the1016 Stafford Act with several important provisions, including that after a major disaster or 1017 emergency declaration, accelerated Federal assistance could be sent by FEMA in the absence 1018 of a specific request by a state. 1019

• Rehabilitation Act of 1973, 29 U.S.C. § 701: Section 504 prohibits discrimination on the1020 basis of disability in any program or activity that receives Federal financial assistance, 1021 including federally subsidized housing programs. 1022

• Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act), Public1023 Law 93-288, as amended, 42 U.S.C. § 408(c): Enables the Federal government to assist 1024 states affected by a disaster to expedite the rendering of aid and emergency services and the 1025 reconstruction of devastated areas. It provides statutory authority for most Federal disaster 1026 response activities, especially as they pertain to FEMA programs, including disaster housing. 1027

References 1028

This section includes references to documents and websites cited throughout this guide. 1029

https://www.fema.gov/robert-t-stafford-disaster-relief-and-emergency-assistance-act-public-law-93-288-amended

http://thomas.loc.gov/cgi-bin/bdquery/L?d93:./list/bd/d93pl.lst:234%28Public_Laws%29



• 2017 Community Needs Assessment: Community-Based Participatory Research. El Centro1030 de la Raza. http://www.elcentrodelaraza.org/wp-content/uploads/2017/11/El-Centro-de-la-1031 Raza-2017-Community-Needs-Assessment.pdf1032

• 2017 Hurricane Season FEMA After-Action Report. FEMA. July 12, 2018.1033 https://www.fema.gov/media-library-data/1531743865541-1034 d16794d43d3082544435e1471da07880/2017FEMAHurricaneAAR.pdf 1035

• 2017 National Preparedness Report. FEMA. August 28, 2017. https://www.fema.gov/media-1036 library/assets/documents/134253. 1037

• American Housing Survey. Census Bureau. https://www.census.gov/programs-1038 surveys/ahs/about/respondent-information.html. 1039

• Community Development Block Grant Disaster Recovery Assistance. HUD.1040 https://www.hud.gov/hudprograms/disaster-recovery. 1041

• CPG 101, Version 2. FEMA. November 1, 2010. https://www.fema.gov/media-1042 library/assets/documents/25975. 1043

• Emergency Management Performance Grant Program. FEMA.1044 https://www.fema.gov/emergency-management-performance-grant-program. 1045

• HOME Investment Partnerships Program. HUD.1046 https://www.hud.gov/program_offices/comm_planning/affordablehousing/programs/home/. 1047

• Homeland Security Exercise and Evaluation Program. FEMA. https://www.fema.gov/media-1048 library/assets/documents/32326. 1049

• National Disaster Housing Strategy. FEMA. January 16, 2009. https://www.fema.gov/media-1050 library-data/20130726-1819-25045-9288/ndhs_core.pdf. 1051

• National Disaster Recovery Framework, Second Edition. FEMA. June 2016.1052 https://www.fema.gov/media-library/assets/documents/117794. 1053

• Pre-Disaster Recovery Planning Guide for Local Governments. FEMA. February 2017.1054 https://www.fema.gov/media-library/assets/documents/129203 1055

• Pre-Disaster Recovery Planning Guide for State Governments. FEMA. November 2016,1056 https://www.fema.gov/media-library-data/1485202780009-1057 db5c48b2774665e357100cc69a14da68/Pre-1058 DisasterRecoveryPlanningGuideforStateGovernments-1.pdf. 1059

• Los Angeles/Long Beach/ Riverside Regional Catastrophic Planning Grant Program Region1060 Assessment and Gap Analysis Report, 2012. https://hcidla.lacity.org/assessment-and-gap-1061 analysis-report. 1062

http://www.elcentrodelaraza.org/wp-content/uploads/2017/11/El-Centro-de-la-Raza-2017-Community-Needs-Assessment.pdf

http://www.elcentrodelaraza.org/wp-content/uploads/2017/11/El-Centro-de-la-Raza-2017-Community-Needs-Assessment.pdf

https://www.fema.gov/media-library-data/1531743865541-d16794d43d3082544435e1471da07880/2017FEMAHurricaneAAR.pdf

https://www.fema.gov/media-library-data/1531743865541-d16794d43d3082544435e1471da07880/2017FEMAHurricaneAAR.pdf





https://www.hud.gov/hudprograms/disaster-recovery



https://www.fema.gov/emergency-management-performance-grant-program








https://www.fema.gov/media-library-data/1485202780009-db5c48b2774665e357100cc69a14da68/Pre-DisasterRecoveryPlanningGuideforStateGovernments-1.pdf







Appendix C: Disaster Housing 1063

Planning Checklist 1064

The following checklist is a tool for emergency planners to help develop their disaster housing 1065 plan. The checklist follows the suggested EOP format defined in CPG 101. 1066

Step 1: Form the Collaborative Planning Team 1067

Create a work plan for the effort. 1068 Identify governmental, private sector, and NGO entities with responsibilities or equities for 1069

developing housing solutions. 1070 Identify members of the core and collaborative planning teams. 1071

Conduct a kickoff meeting to establish the timeline, milestones, and expectations. 1072 Determine whether these same members will participate in a housing task force to execute 1073

the plan. 1074

Step 2: Understand the Housing Situation 1075

Conduct Housing-Related Research and Analysis 1076 Understand the demographics and infrastructure in the jurisdiction, including determining the 1077

number of people with access and functional needs. 1078

Review results pertaining to housing from national, regional, or statewide studies. 1079 Create a scenario to drive the planning effort (e.g., the maximum number of people to shelter, 1080

number of homes destroyed). 1081 Research existing roles and responsibilities by distributing surveys or fact sheets to 1082

collaborative planning team members. 1083

Identify the lead agency(ies) for disaster housing solutions. 1084 Identify mutual aid partners. 1085 Consider issuing a community survey to better understand local demographics and housing 1086

needs. 1087

Planning Assumptions and Considerations 1088 Based on the scenario, develop assumptions (e.g., will enough resources be available, 1089

percentage of displaced survivors that will request assistance) to frame the COAs. 1090 Review the planning considerations in this document, as well as any additional assumptions 1091

(e.g., available resources, usable locations, permitting and utility connection processes) and 1092 complete or refine them based on the jurisdiction’s needs. 1093



• Regulations and Authorities: Key Considerations 1094 What entities have regulatory or legislative responsibilities for disaster housing within the 1095

jurisdiction? 1096

What is the legal basis for mutual aid agreements to provide housing assistance? 1097 What health and safety protocols can impact return to, and occupancy of, homes and 1098

buildings? 1099 What codes and ordinances may need to be waived or suspended to support temporary 1100

housing solutions (e.g., placement of temporary housing units, distance from roadways, 1101 multiple temporary housing units on property, zoning, local flood damage prevention 1102 ordinances)? 1103

• Natural Environment: Key Considerations 1104 Has the jurisdiction conducted GIS modeling to determine topography and assess impacts 1105

from hazards? 1106 What unique environmental risks in the jurisdiction could result in large numbers of 1107

displaced persons or challenges with rebuilding (e.g., coastal areas, floodplains, seismic 1108 zones)? 1109

Are any cultural or historical sites in the jurisdiction governed by specific regulations? 1110 Would any zoning regulations hinder the ability to rebuild in certain locations due to 1111

environmental considerations? 1112

Does the jurisdiction have high-risk flooding areas or Special Flood Hazard Areas? 1113 Are threatened or endangered species or other protected wildlife or plants present in any 1114

proposed locations where land-clearing activities may be required? 1115

• Infrastructure: Key Considerations 1116 What critical infrastructure (e.g., water/wastewater plants, health care systems, schools), 1117

if damaged, could impact ability of individuals to return to their homes? 1118 What are the specific building codes to which structures need to be rebuilt? 1119 Do planners have access to a list of key public and private infrastructure partners (e.g., 1120

power providers, utility companies) on which the jurisdiction relies? 1121

• Population: Key Considerations 1122 What are the most densely populated areas in the jurisdiction? 1123 Does the population for the jurisdiction fluctuate throughout the year (e.g., periods of the 1124

year where the tourist population increases)? 1125

What is the demographic breakdown of the jurisdiction? How current are the statistics? 1126 Which agencies within the jurisdiction provide services to the population with access and 1127

functional needs? 1128 What is the homeless population in the jurisdiction? Are there plans for sheltering or 1129

housing them following a disaster? 1130



What portion of the community receives pre-disaster housing assistance? 1131 What are the estimated numbers of the community’s homeowners and renters? 1132 How many hospitals or medical centers are in the jurisdiction? Do they have evacuation 1133

plans in place? 1134 Does the planning team have copies of evacuation plans for jails/prisons and medical 1135

centers? 1136

• Housing Availability: Key Considerations 1137 What is the composition of the current housing stock (e.g., rentals, single-family, multi-1138

family, short term occupancy)? 1139 What percentage of the housing inventory is accessible for people with access and 1140

functional needs? 1141 Does the jurisdiction have temporary housing resources (e.g., temporary housing units, 1142

trailers)? 1143

What is the percentage of homeowners and renters in the area? 1144 What percentage of the housing inventory is non-primary residences? 1145 Are agreements in place for temporary housing solutions (e.g., with neighboring 1146

jurisdiction, colleges, hotels)? 1147 Can building codes or zoning ordinances be waivered to create additional temporary 1148

housing solutions? If so, what is the process for that? 1149

Is there an inventory of potential areas that could support group sites? 1150 Is there an inventory of available pads for lease? 1151

• Contracting: Key Considerations 1152 What, if any, pre-positioned contracts exist in the jurisdiction for housing-related 1153

services? 1154 If any exist, have they recently been reviewed for accuracy and currency? 1155

If none exist, are there resource gaps where a contract should be considered? 1156 What is the contract process that would be used to address housing needs? 1157

Does the planning team understand the requirements for Federal acquisitions? 1158

• Host State Agreements: Key Considerations 1159 Are there any host state agreements already in place at the state or territory level? 1160

If not, should host state agreements be established? 1161 Does the agreement specifically address relocation of displaced individuals? 1162 Does the agreement specify procedures or limits to sharing information on displaced 1163

individuals (e.g., personally identifiable information)? 1164



• Wrap-Around Services: Key Considerations 1165 Have the wrap-around services and the agencies or organizations responsible for 1166

providing them been identified within the jurisdiction? 1167

Are wrap-around service providers part of relevant planning efforts? 1168 What community organizations and partners can provide support and resources? 1169

• Housing Inspections: Key Considerations 1170 What entity is responsible for occupation and safety inspections? 1171

What are the available housing inspection resources within the jurisdiction? 1172 Does the state recognize certifications and licenses from other states? 1173

Are mutual aid agreements in place for additional housing inspectors? 1174 What ways can inspections be expedited (e.g., waivers)? 1175 What is the current waiting time to receive a certification of occupancy? Can this be 1176

expedited post incident? 1177

• Public Information, Outreach, and Preparedness: Key Considerations 1178 What communication channels will communicate relevant information to the 1179

community? 1180

Has disaster-housing-related messaging already been developed within the jurisdiction? 1181 Who is responsible for releasing information to the public within a jurisdiction? 1182

What community organizations can help amplify housing-related messaging? 1183 Will a website be established to convey disaster-housing information? How would it be 1184

established and who will sustain it? 1185 What is the protocol to synchronize messages between local, state, and Federal entities? 1186

Step 3: Determine Housing Goals and Objectives 1187

Review the goals from the National Disaster Housing Strategy. 1188 Verify with senior officials (elected or appointed) any additional housing goals that are 1189

unique to the jurisdiction. 1190 Conduct a working session with the collaborative planning team to map out a framework 1191

for each goal (goal; objective; actions). 1192

Develop COAs for each objective. 1193 Determine the measure(s) of success for each objective. 1194 Discuss the jurisdiction’s capability to achieve the objectives – including discussing 1195

strengths and weaknesses of staffing, funding, and resources. 1196

Identify housing capability gaps and solutions for closing them. 1197



Step 4: Housing Plan Development 1198

Purpose, Scope, Situation Overview, and Planning Assumptions 1199

• Purpose1200 Indicate the reason a disaster housing plan is necessary in context of the jurisdiction or1201

state.1202

State what the plan is intended to accomplish.1203

• Scope1204 Clearly indicate when housing phases are anticipated to transition from sheltering to1205

interim housing to permanent housing.1206

• Situation Overview1207 Describe the unique characteristics of the jurisdiction or state (e.g., population,1208

demographics, geography, socioeconomic factors, infrastructure) and what impact they1209 have on its ability to provide disaster housing.1210

Explain the roles and responsibilities of key organizations (from research in Step 2).1211

• Planning Assumptions1212 Include the list of planning assumptions specific to sheltering, interim housing, or1213

permanent housing.1214

Concept of Operations 1215

• Sheltering1216 Identify and describe the agencies and their actions to identify, open, and staff emergency1217

shelters, including the temporary use of reception centers while waiting for shelters to1218 officially open.1219

Describe mutual aid agreements in place with other jurisdictions for receiving sheltering1220 assistance, including providing shelters when it is not practical to do so locally.1221

Describe the conditions under which in-place and non-congregate sheltering (e.g. trailer,1222 hotel) will be used (e.g., snow emergencies, chemical incidents, pandemics). Identify1223 which agencies will support these operations and how they will determine when to1224 implement these operations.1225

Describe how the jurisdiction will ensure the physical and programmatic accessibility of1226 shelter facilities, effective communication using multiple methods, full access to1227 emergency services, and reasonable modification of programs or policies where needed.1228

Describe how shelters will coordinate their operations with on-site and off-site support1229 agencies.1230

Identify and describe the agencies and their actions to inform the public about sheltering-1231 in-place (e.g., implementation, updates, and termination).1232

Describe the plans, methods, and agencies/organizations responsible for distributing1233 emergency relief items (e.g., hygiene kits, cleanup items, infant care supplies).1234



Identify and describe the agencies/organizations and their methods to provide feeding 1235 services, both within the shelter facilities and at other identified feeding sites or mobile 1236 feeding operations. 1237

Identify and describe the agencies and their actions to provide short-term lodging and 1238 other mass care needs (beds/cots, food/water, crisis counseling, phones, clergy support, 1239 household pets/service animals support). 1240

Identify and describe the agencies and their methods to provide care and support for 1241 institutionalized populations, children, and individuals with access and functional needs, 1242 including their caregivers. 1243

Identify and describe the actions to ensure that ADA Accessibility Guidelines govern 1244 shelter site selection and operation. 1245

Describe the method to provide necessary developmentally appropriate supplies (e.g., 1246 diapers, formula, age-appropriate foods), staff, medicines, durable medical equipment, 1247 and supplies needed during an emergency for children and those with access and 1248 functional needs. 1249

Describe the mechanisms or processes for handling and providing services for 1250 unaccompanied minors in shelters. 1251

Describe the method to provide guidance on the admission and treatment of service 1252 animals. 1253

Identify and describe the agencies and their actions to identify, screen, and handle 1254 evacuees exposed to hazards from a disaster (e.g., infectious waste, polluted floodwaters, 1255 chemical hazards) and to keep the shelter free of contamination. 1256

Describe how shelters inform evacuees about incident status, including actions that 1257 shelter residents may need to take when they return home. 1258

Identify and describe the agencies and their actions to notify and inform the public about 1259 the status of injured or missing relatives. 1260

Identify and describe the agencies and their actions to care for household pets and service 1261 animals that are brought to shelters. 1262

Describe the method for household pet registration (including identification of a current 1263 rabies vaccination for all animals). 1264

Describe the method to reunite rescued animals with their owners. 1265 Identify and describe the actions to address the long-term care, permanent relocation, or 1266

disposal of unclaimed pets. 1267

• Interim Housing 1268 Identify and describe the agencies/organizations who have the lead for interim housing. 1269 Identify the wrap-around services that need to be in place to enable interim housing 1270

solutions (varies by jurisdiction). 1271

Identify utility connection processes and the responsible party for each step. 1272



Identify potential waivers or payment plans for utility connections for applicants with 1273 past-due accounts. 1274

Identify and coordinate with private sector utility companies to expedite inspections and 1275 connections. 1276

List the inventory of potential interim housing solutions. Include those within the 1277 jurisdiction and within neighboring jurisdictions or states (within a reasonable 1278 commuting time). 1279

Include a list of programs that can provide rental assistance. 1280 Address a surge plan for building inspectors/permit officials. Explore mechanisms to 1281

increase staffing/capability for local code enforcements and inspections. 1282 Determine the need for any post-disaster expedited approval processes for waiving 1283

ordinances to accommodate temporary housing. 1284 Develop a contract template to use should emergency repairs be needed to public 1285

facilities necessary for housing. 1286 Determine whether the state currently inventories rental properties. If yes, ensure that 1287

buildings can accommodate people with access and functional needs in accordance with 1288 the Architectural Barriers Act/ADA. 1289

Identify the number of houses and housing units in the special flood hazard area. 1290 Determine if the state has agreements with other states to host evacuees on an interim 1291

basis and provide health, social services, education and child‐care access if need exceeds 1292 capacity. 1293

Create an inventory of commercial recreational vehicle and manufactured housing pads 1294 and parks, including availability status. 1295

Describe the plan to compile damage assessments. 1296 Identified what types of temporary housing units can be used within the jurisdiction or 1297

state and communicate that to FEMA. 1298 Determine if a communications plan in place to distribute information on housing 1299

assistance. 1300

• Permanent Housing 1301 Identify permanent housing vacancy rates and fair market rates for a range of housing 1302

sizes across the jurisdiction. 1303

Identify sites where interim housing can be converted to permanent housing. 1304 Consider ordinances that: 1305

Allow temporary housing units such as manufactured housing units on private 1306 property. 1307

Allow or temporarily remove restrictions on auxiliary housing units in single-family 1308 neighborhoods. 1309



Specify how environmental and historic resources will be protected when 1310 permanent housing is placed on private and/or public property. 1311

Permit electrical connection in the absence of a building permit so that repair work 1312 can begin; the electrical connection permit might indicate that all work must be 1313 brought into compliance with existing codes. 1314

Establish a limited building permit that will allow limited repairs to prevent further 1315 damage to a structure. 1316

Plan to make accommodations for individuals with access and functional needs. 1317

Direction, Control, and Coordination 1318 Describe plan leadership and oversight. 1319 If a Housing Task Force will execute the plan, describe the composition, roles and 1320

responsibilities, and triggers for activating and deactivating it. 1321 Provide a clear unity of command when involving multiple organizations and multiple 1322

incident scenes. 1323

Communications 1324

• Operational Communication 1325 Identify a mechanism to ensure timely, accurate, and consistent disaster housing 1326

messaging across disciplines and jurisdictions. 1327 Identify support organizations, capabilities, and teams to establish an effective and 1328

continuous interoperable communication, including cellular communications. 1329

• Public Information and Warning 1330 Provide a coordinated joint approach to deliver timely, accurate, accessible, and 1331

consistent messaging in alternative formats on disaster housing. 1332 Address messaging and distribution mechanisms to account for the demographics and 1333

resources of the jurisdiction. 1334 Address the use of social media to distribute public information rapidly to prevent 1335

inaccurate or misleading information. 1336

Administration, Finance, and Logistics 1337 Identify administrative controls to provide resource and expenditure accountability. 1338

Preparedness, Mitigation, and Recovery 1339 Incorporate short-term, interim, and long-term recovery strategies/objectives. 1340

Address how to implement support plans for survivors and families of the deceased. 1341 Include strategies to implement the RSFs after the incident. 1342

Include how to provide mental health assistance and support in recovery efforts. 1343 Outline remediation procedures for damaged or hazardous sites. 1344



Implementation, Maintenance, and Training 1345 Identify the agency responsible for updating and maintaining the plan.1346

Identify applicable, available disaster housing training and exercises.1347 Identify/summarize how and to whom the plan is distributed; indicate whether it is shared1348

with the public.1349 Include a schedule to review and revise the plan.1350

Identify the process used to review and revise the plan.1351 Include all partners involved in the annex development in the plan’s maintenance and1352

training schedule.1353 Outline the responsibility of partners to review and provide changes to the plan; identify1354

the process to provide feedback.1355

Authorities and References 1356

Include a list of the relevant authorities.1357 Include links to applicable references and guidance.1358

Step 5: Housing Plan Preparation, Review, and Approval 1359

Release the document for at least one formal comment period.1360 Conduct adjudication session(s) with the housing collaborative planning team.1361

Ensure concurrence of agencies/organizations on the collaborative planning team1362 Obtain approval of senior leaders of agencies with primary responsibilities for housing.1363

Step 6: Housing Plan Implementation and Maintenance 1364

Execute roll-out strategy communicating the release and availability of the plan to key1365 stakeholders.1366

Conduct training on housing plan.1367

Identify opportunities to exercise the housing plan.1368 Identify and address training gaps identified through real-world events, exercises, and1369

routine plan reviews.1370 Update the plan based on lessons learned.1371

Conduct periodic review as identified within housing plan1372



Appendix D: Other Resources 1373

• FEMA Disaster Housing Resource Center. Provides resource information, such as links to1374 housing strategic documents, interim housing resources, and permanent housing resources. 1375 https://www.fema.gov/housing-resources 1376

• HUD Disaster Resources Website. https://www.hud.gov/info/disasterresources1377 • SBA Disaster Assistance Website. https://www.sba.gov/funding-programs/disaster-1378

assistance 1379

https://www.fema.gov/housing-resources

https://www.hud.gov/info/disasterresources

https://www.sba.gov/funding-programs/disaster-assistance

https://www.sba.gov/funding-programs/disaster-assistance