National Disaster Housing Task Force
                             Concept of Operations
                               11-17-2010 Draft

Introduction	4
Purpose	4
Goals	4
Background	5
Scope	5
Audience	5
Roles and Responsibilities	6
Introduction	6
The National Disaster Housing Task Force	7
Organizational Chart	8
Partner Agencies	9
The CONOPS and the National Response Framework	19
Guiding Principles	19
Phases of Disaster Housing	20
Phase I:  Preparedness	23
Phase II: Sheltering	24
Phase III: Interim Housing	26
Phase IV: Permanent Housing	28
Phase V:  Mitigation	29
Tiered Approach	30
Characteristics of Disasters	31
Catastrophic Disasters and the NDHTF	34
Planning Assumptions	37
Sequence of Disaster Housing Assistance Delivery	40
Overview	40
Federal Programs	40
Preparedness Programs	43
Sheltering Programs	45
Interim Housing Programs	45
Permanent Housing Programs	48
Mitigation Programs	49
Next Steps	50
Holistic Approach	50
Identifying Innovations	51
NDHTF Action Items	52
Annexes	54
Definitions	54
Acronyms and Abbreviations	60

Introduction
Purpose

This Concept of Operations (CONOPS) describes the Federal coordination of disaster housing assistance in preparation for response to and recovery from, all levels of disasters, including catastrophic events.  This CONOPS explains the Federal Government's normal disaster housing support role in operational terms, along with the Federal Government's responsibility to maintain readiness to assume a greater role in housing disaster survivors when required.  It conveys national guidance, operating principles, and a vision for public (Federal, State, Tribal, local), and individual coordination.  It defines the roles, programs, authorities, and responsibilities of all entities, emphasizing the cooperative efforts required for disaster survivors and affected communities to recover from disasters.

Additionally, this CONOPS outlines the national activities that will be pursued in moving toward accomplishing the goals of the National Disaster Housing Strategy (Strategy).  Implementing the Strategy strengthens the Nation's collective capability and resolve to fulfill all partner responsibilities to the American people in times of disaster or emergency, regardless of cause, scope, or complexity.  This CONOPS describes how the National Disaster Housing Task Force (NDHTF) intends to connect critical programs, based in a wide variety of authorities, to facilitate a unified response.
Goals

Partner agencies and entities from the Federal, State, Tribal, and local governments have combined strengths to embark on this effort to develop comprehensive tools to ensure that communities have access to the full range of disaster assistance programs, and that the best possible level of service is provided to applicants through the administration of these programs.  This CONOPS outlines the framework for pre-event planning by Federal agencies and entities with roles or responsibilities in disaster sheltering and/or housing.

This CONOPS is a "living document" that will be regularly and routinely updated to maintain a comprehensive housing management resource for all disasters.  It serves as a tool to facilitate the goals presented in the Strategy, which include:

                        1.      Evaluate and determine improvements to the disaster housing framework to support individuals, households, and communities in returning to their previous level of self - sufficiency as quickly as possible.
                        2.      Affirm and meet fundamental disaster housing responsibilities and roles.
                        3.      Increase our collective understanding and capacity to meet the needs of disaster survivors and affected communities.
                        4.      Develop tools to aid State and local governments in providing a broad range of flexible housing including sheltering, interim housing and permanent housing.
                        5.      Better integrate disaster housing assistance with related community support services and long - term recovery efforts.
                        6.      Improve disaster housing planning to better address housing needs resulting from disasters of all sizes, including catastrophic events.

Background

Congress called for the Federal Emergency Management Agency (FEMA) to create the Strategy in the Post-Katrina Emergency Management Reform Act.  The Strategy, published in January 2009, frames the full range of options available to disaster responders to better meet the needs of disaster survivors and affected communities.  The Strategy calls for the establishment of the NDHTF to provide a full-time, multi-agency focus on disaster housing related issues, to elevate the significance of disaster housing preparedness in all jurisdictions, and to oversee implementation of the Strategy.  Additionally, the Strategy sets the goal of the NDHTF to create this CONOPS through a collaborative process among the various local, State, Tribal, and Federal partners, nongovernmental organizations, and the private sector to meet the needs of all disaster survivors.
Scope

The Strategy encompasses a national housing effort that engages all levels of government and the nonprofit and private sectors, so when a disaster strikes our Nation we can collectively meet the urgent housing needs of disaster survivors and facilitate the ability of individuals, households, and communities to recover.  While the Strategy summarizes in a single document the main sheltering and housing capabilities, principles, and policies that guide and inform disaster housing, the CONOPS provides information on programs that may be used and processes that may be followed at the Federal level in the implementation of disaster housing strategies.  Building disaster housing capacity through pre-disaster planning is a key theme of the CONOPS.

Audience

The CONOPS is intended for use by Federal departments and agencies that are part of the NDHTF.  However, it will be of interest to individuals in the public (e.g., State, Tribe, Territory, local governments) and private (e.g., private-for-profit businesses, private-non-profits, faith-based organizations) sectors responsible for developing, improving, managing and delivering disaster housing assistance to impacted communities and affected households.  The CONOPS is intended to improve emergency managers' understanding of Federal housing assistance available following a disaster, and how and when this assistance may be provided.
Roles and Responsibilities
Introduction

The focus of this section is primarily the roles and responsibilities of the Federal partners in disaster housing.  Federal disaster housing programs complement the efforts of State, Tribal and local governments, who are most familiar with the populations they serve.  State, Tribal and local governments will ultimately lead the effort and shape the implementation of the recovery programs; the Federal government plays an important role by providing funds, coordination, and technical support.  The CONOPS describes this integrated approach and goes beyond simply looking at one agency's authorities.
Disaster housing responsibilities, capabilities, and resources cross a diverse array of organizations that have varied missions and vested interests in providing disaster housing assistance.  This is important to note because one agency's programs may not be the best suited to meet some or all of the housing needs following a disaster.  It is also important to consider that some non-FEMA programs can be made available without a major disaster declaration.  Such programs include State assistance, aid from voluntary organizations or other non-disaster dependent Federal agency programs.

Lessons learned from Hurricane Katrina, and other disasters, include the importance of coordination prior to an event, and developing an understanding of the capabilities of disaster assistance providers that may be utilized to prepare for, protect and mitigate against, and respond to disasters.  The NDHTF seeks to identify and foster collaboration among these entities in order to better coordinate the delivery of disaster housing.  The authorities invoked by Federal government departments and agencies in providing disaster housing are provided below.
The National Disaster Housing Task Force

The NDHTF serves as an advisory body to provide leadership, advocacy and multi-agency focus and coordination to address national disaster housing-related issues.  The NDHTF has two primary roles, to provide a non-incident focused approach for addressing strategic activities and planning efforts, and when requested, to support disaster housing planning activities after an event.  This document is a concept of operations for the NDHTF, which will be expanded upon as best practices are identified and disaster housing programs are improved as a result of lessons learned.

Non-incident strategic activities include overseeing implementation of the Strategy; supporting and building disaster housing preparedness, response, and recovery capabilities; advising senior leadership of partner agencies and departments on disaster housing; and collecting and organizing best practices and lessons learned.

The NDHTF will also anticipate interagency coordination issues that may arise in a disaster and provide a forum for their resolution.  During catastrophic events, the NDHTF may engage stakeholders to develop and coordinate strategic, policy and procedural recommendations.  This role is discussed further in the section titled "Catastrophic Disasters and the NDHTF."

Organizational Chart

Partner Agencies
Department of Homeland Security's Federal Emergency Management Agency

FEMA dedicates much of its resources to disaster preparation, helping individuals and households determine their risk, plan for emergencies, and ultimately reduce future loss of life and property.  When a disaster strikes that exceeds local, State, and Tribal capabilities and a Federal disaster declaration is made, FEMA is responsible for mobilizing and integrating the full range of Federal capabilities to support individual and community needs for housing assistance.  The primary mission of FEMA is to support our citizens and first responders to ensure that as a nation we work together to build, sustain, and improve our capability to prepare for, protect against, respond to, recover from, and mitigate all hazards.
FEMA serves as the lead Federal agency for emergency management, coordinating response and recovery with the State under the authority of the Stafford Act.  This broad and robust authority ensures that FEMA is able to lead the Federal component of a unified Federal and State response.  Among other duties, FEMA regional offices work with States on an ongoing basis to assist in planning and SLDHTF development.  Additionally, FEMA serves as the lead agency in coordinating ESF# 6.  FEMA integrates strategies and coordinates service delivery.  It coordinates Federal sheltering assistance, provides financial and direct temporary housing assistance and may partner with the Department of Housing and Urban Development (HUD) to provide additional interim housing if the Disaster Housing Assistance Program (DHAP) is implemented.  FEMA also supports HUD's role in permanent housing.
Department of Housing and Urban Development

HUD's mission includes providing a decent, affordable and suitable living environment, and expanding economic opportunities, free from discrimination.  HUD also serves as one of the primary agencies that support ESF #14, Long-Term Community Recovery.  Immediately after a disaster, HUD will survey the entire HUD-assisted inventory to assess the availability of vacant units and vouchers for temporary housing for displaced families.  It will also provide guidance to HUD field offices, owners, agents, and residents in multi-family housing regarding any established policies.  Through reprogramming annual funding allocations or through supplemental appropriations, the HUD Community Development Block Grant program provides a resource to disaster-affected States and units of general local government to address disaster recovery needs, including housing needs.  HUD's annual HOME Investment Partnerships program allocations may also be reprogrammed for housing recovery.

HUD's national network of Public Housing Agencies (PHA) provide over a million units of subsidized housing and approximately two million housing vouchers to persons of low and moderate income nationwide.  The PHA network gives HUD the ability to efficiently mobilize available housing in response to large-scale disasters.  Moreover, using flexibilities allowed under its existing authorities, HUD can provide waivers to facilitate the provision of temporary housing assistance.  For example, it can provide PHAs with additional time to submit tenant verification, flexibility in assessments and cost limitations, and waivers to broaden the scope of existing grant programs.

Through HUD's Federal Housing Administration (FHA), mortgage insurance is provided on loans made by FHA-approved lenders through the United States and its territories.  It protects lenders against losses as a result of homeowners defaulting on their mortgage loans, thus encouraging lenders to make mortgage credit available to borrowers who would not otherwise qualify for conventional loans on affordable terms.  In response to major disasters, HUD may encourage servicers to temporarily halt foreclosure on homes with FHA-insured mortgages and explore all available loss mitigation options.  The foreclosure relief provides servicers with additional time to confirm the mortgagor's intention and ability to repair the home, resume regular mortgage payments, and retain ownership.

As a sister agency to the FHA, the Government National Mortgage Association, or Ginnie Mae, is a U.S. government-owned corporation within HUD that provides guarantees on mortgage-backed securities backed by Federally insured or guaranteed loans.  After a major disaster, it issues a memo, encouraging single-family, manufactured housing, and multi-family Ginnie Mae issuers to provide forbearance to mortgagors in areas affected by a Presidential disaster declaration.

Department of Agriculture
The Department of Agriculture (USDA) is responsible for providing emergency housing loans, grants, and other forms of relief to individuals and households living in rural America.  In providing disaster assistance, USDA is a support agency under the National Response Framework for ESF #6  -  Mass Care, Emergency Assistance, Housing, and Human Services and is a primary agency for ESF #14  -  Long-Term Community Recovery.  Title V of the Housing Act of 1949, as amended, authorizes USDA and its Rural Housing Service (RHS) to administer various programs to provide housing assistance opportunities to rural Americans.

When disasters occur, the USDA can leverage its existing housing programs and adjust provisions as needed to assist residents in the affected areas, including those who are already in various USDA rural housing programs.  In general, the USDA housing assistance programs listed below are only available if funds from FEMA, SBA, other agencies, or insurers are inadequate to meet the housing needs of affected rural residents.  Assistance is available to homeowners, homebuyers, renters, and multi-family property owners.

USDA housing programs fall under one of two broad categories: single-family or multi-family.  The programs related to the purchase or repair of single-family housing are referred to as Section 502 and Section 504 programs, while the Section 514 and Section 515 programs assist owners and tenants of multi-family housing.  Section 502 loans are primarily used to help low-income individuals or households purchase homes in rural areas.  Section 504 loans and grants assist current homeowners with improvements and repairs, and are available to any rural person with a very low income but most program beneficiaries are elderly.

Rural Americans who participate in the Section 514 or 515 multi-family housing programs and are made homeless as a result of a Presidentially-declared disaster are eligible for occupancy nationwide as "displaced tenants" at any USDA-financed multi-family housing project.  They are given a letter of priority eligibility (LOPE), moving the disaster survivors to the top of waiting lists for vacancies in other properties.  The LOPE is good for 120 days, after which time the family may remain on the waiting list, but without priority.  The expedited placement process waives maximum income limits, security deposits, and credit checks, streamlines month-to-month leasing procedures, and institutes telephone background checks.
Department of Veterans Affairs
Although the Department of Veterans Affairs (VA) does not have a direct disaster related housing  program, the National Response Framework's ESF #6  -  Mass Care, Emergency Assistance, Housing, and Human Services  -  outlines how the VA may assign representatives to FEMA Disaster Assistance Centers to counsel eligible disaster survivors on VA housing, and may assign single-family and multiple housing units for the purpose of providing interim housing options to eligible disaster survivors who are veterans, certain dependents, or beneficiaries of veterans.
Department of Health and Human Services
The Department of Health and Human Services (DHHS) supports disaster-housing activities primarily through its roles and responsibilities under the National Response Framework's ESF # 6-Mass Care, Emergency Assistance, Housing, and Human Services.  DHHS plays an integral role in facilitating the housing recovery process through the administration of grant and wrap-around services that promote the delivery of human services and programs to assist individuals and households impacted by disasters.  Wrap-around services encompass a variety of human and social support that may be required to accompany temporary housing community sites during a disaster, such as healthcare, schools and daycare, security, social services, maintenance and repair, public transportation, and employment counseling.  DHHS resources can be particularly helpful in supporting the needs for populations who may require additional housing considerations for disability, access and functional needs, as well as children and elderly persons.
Department of the Interior/Bureau of Indian Affairs
The Department of the Interior (DOI) is responsible for the protection of property and mitigation of damages and impacts to the Department, individuals, and surrounding communities in preparation for, or in support of, response and recovery from a disaster.  This includes evacuation, rescue, emergency medical treatment, emergency debris removal, and restoration of essential public services.  DOI is also able to assist in the safeguarding, collecting, and distributing of food and essential supplies.  When disasters affect land held in trust by the United States for American Indians, Indian tribes, and Alaska Natives, the Bureau of Indian Affairs (BIA) supports the Federal response as a partner through various mechanisms and authorities.  BIA provides resources and staff in response to Tribal government requests for assistance.  BIA does not maintain an emergency or disaster housing program.  Any Tribal government requests for housing are referred to and coordinated by HUD.  One HUD program that particularly benefits Native Americans and tribal areas is the Indian Community Development Block Grant (ICDBG) Imminent Threat (IT) fund.
U.S. Small Business Administration
The U.S. Small Business Administration (SBA) is responsible for providing affordable, timely and accessible financial assistance to home owners, renters, non-profit organizations and businesses of all sizes located in a declared disaster area.  Administered through its Office of Disaster Assistance (ODA), SBA's disaster loans are the primary form of Federal assistance for the repair and rebuilding of non-farm, private sector disaster structures.  The disaster loan program is the only form of SBA assistance not limited to small businesses.  Financial assistance is available in the form of low-interest, long-term loans for losses that are not fully covered by insurance or other recoveries.  As a signatory to the National Response Framework, the SBA is a part of the Federal government's single comprehensive approach to domestic incident management to prevent, prepare for, respond to, and recover from major disasters, terrorist attacks, and other emergencies.  It has one Mission Essential Function (MEF), which is to collect and disseminate disaster-related information from declared disasters and be prepared to process disaster loan applications
Department of Defense/U.S. Army Corps of Engineers
In accordance with Joint Federal Travel Regulations, the Department of Defense ensures that military families, including those living on bases, have appropriate housing upon evacuation.  They are authorized to select an alternate safe haven within the continental United States and receive safe haven benefits.  Safe haven benefits include travel costs, actual costs of lodging, and allowances for meals and incidentals.  Any additional housing provisions are at the discretion of the specific base or area officer.

The United States Army Corps of Engineers (USACE) may be tasked with providing housing inspection, construction, or installation services as part of their lead role in ESF #3  -  Public Works and Engineering.  The USACE sheltering and interim housing support follows the direction of FEMA through Mission Assignments.  With regard to sheltering, the USACE focuses on the planning of base camps mass care shelter site inspections, and construction of temporary shelter facilities.  As for interim housing, USACE may be mission assigned to support FEMA's Direct Housing Operations (DHOPS) with project management support, technical assistance, or turnkey management of temporary housing unit installation missions and design, construction, and/or deactivation of group sites utilizing USACE contracts.

USACE can also conduct or provide technical assistance on the expedited repair of damaged homes, to include temporary roofing or other repairs that facilitate reoccupation of minimally damaged structures.  Through Pre-scripted Mission Assignments, USACE may activate and deploy the Temporary Roofing Planning and Response Team (PRT), as directed by FEMA, and implement the Advanced Contracting Initiative (ACI).  If mission assigned, USACE will coordinate the roofing activities of all organizations performing portions of the roofing mission, including the National Guard and voluntary organizations.  This may include providing supplies, equipment, materials, and logistics support necessary to provide temporary roofing to homes.
General Services Administration
The General Services Administration (GSA) provides essential products and services needed to help prevent, prepare for, and respond to emergency housing situations.  Its assistance to relief workers and disaster survivors includes food, shelter, cleaning supplies, comfort kits, first aid, clothing, personal items, emergency transportation, home repair, household items, and medical supplies.  GSA can utilize the `GSAAdvantage! Disaster Relief' section of its online shopping and ordering system, GSAAdvantage!, to provide Federal, State, and local agencies access to the acquisition of supplies and equipment needed to support requirements for disaster housing relief and emergency preparedness.
Department of the Treasury/Internal Revenue Service
Special tax law provisions may help taxpayers recover financially from the impact of a disaster, especially when the President designates their area to be a major disaster area.  Depending on the circumstances, the Internal Revenue Service (IRS) may grant additional time to file returns and pay taxes.  Both individuals and businesses in a presidentially-declared disaster area can receive a faster refund by claiming losses related to the disaster on the tax return for the previous year, usually by filing an amended return.  In addition, in the wake of a major disaster, the IRS can permit the claim of additional exemptions for homeowners or renters who provide housing in their primary residence to qualifying displaced individuals.

The Federal income tax laws also contain a number of credits designed to provide a long-term financial incentive to increase the supply of low-income housing.  Congress or the Secretary of the Treasury may, at their discretion, extend these credits to persons who are assisting with the long-term response to housing demands created by a disaster.  For instance, the Low-Income Housing Tax Credit Program (LIHTC), administered by IRS and State tax credit allocation agencies, provides developers and investors with eligible affordable housing developments, a dollar-for-dollar reduction in their Federal taxes.  In the wake of Hurricane Katrina, the Department of the Treasury participated in outreach events to help taxpayers take advantage of the Katrina Emergency Tax Relief Act (KETRA) and the Gulf Opportunity Zone (GO Zone) Act, which were new laws that altered the tax code for disaster survivors and made it easier for individuals and companies to engage in charity to benefit those affected by the hurricanes.  These provisions do not apply in all Federal disasters.
Fannie Mae and Freddie Mac
In addition to providing liquidity and stability to the financial housing system, Fannie Mae and Freddie Mac can offer assistance in the days following a major disaster through mortgage payment relief to affected homeowners and helping lenders re-establish their operations.  Fannie Mae and Freddie Mac may offer liberal forbearance policies for affected homeowners, loan workouts for homeowners who wish to stay in their homes, and underwriting flexibilities to make it easier for families to qualify for new mortgages or refinance their existing mortgages.  However, disaster-related assistance generally applies only to mortgages that the corporations own.  Fannie Mae and Freddie Mac support Federal agencies such as HUD, FEMA, and SBA as well as State and local agencies and non-profit organizations, as needed and as requested.

A Presidential-declaration of a major disaster or emergency accompanied by the authorization of FEMA Individual Assistance indicates that the losses sustained by individuals and households in the affected areas may be severe enough for Freddie Mac to consider special coordination to help in recovery efforts.  In the absence of Presidential action, however, it may intervene if local conditions, as reported by local authorities or on-site mortgage sellers or servicers, justify involvement.  Freddie Mac may absorb the cost of special mortgage relief measures and special housing assistance as a normal cost of doing business, albeit under extraordinary circumstances generated by a disaster.

Depending on the circumstances, Freddie Mac may engage in additional forms of housing assistance, including freezing foreclosure actions in affected areas with the intent of minimizing the additional displacement of people, particularly in the midst of what can be a chaotic post-disaster recovery environment.  Moreover, it may facilitate the release of insurance proceeds, such as increasing the amount of insurance proceeds that may initially be disbursed to the borrower.  Freddie Mac may also direct loan servicers to not report delinquencies to credit repositories, thereby ensuring that borrowers without access to mail or other forms of communication are not penalized for failing to make their mortgage payments.  Lastly, Freddie Mac may donate single-family homes and apartment buildings and may also provide labor to help build shelters and assist homeowners.
Corporation for National and Community Service
The Corporation for National and Community Service (CNCS) is an independent agency of the United States government whose mission is to "support the American culture of citizenship, service, and responsibility."  CNCS is the Nation's largest grant maker supporting service and volunteering.  CNCS delivers several programs that are designed to help communities address poverty, the environment, education, and other human needs.  Leveraging its resources, CNCS can be instrumental in meeting the housing needs of individuals and households in the wake of a disaster.

In 2007, CNCS and National Voluntary Organizations Active in Disaster (NVOAD) completed a memorandum of understanding, as many State and local VOADs had benefited from CNCS programs for staff to assist in the formation, implementation, and continued activity of VOAD organizations.  The formal agreement acknowledges the current working relationships between CNCS programs and VOAD members and gives both NVOAD and CNCS a foundation for future endeavors and mutual activities and support.  In 2008, CNCS and FEMA updated their 1999 memorandum of understanding recognizing the contributions of the many and varied programs across all CNCS divisions, and how FEMA can assist them.
Access Board

The Architectural and Transportation Barriers Compliance Board (Access Board) is an independent Federal agency devoted to accessibility for people with disability, functional and access needs.  The Access Board develops and maintains accessibility criteria for the built environment, transportation vehicles, telecommunications equipment, and for electronic and information technology.  The Access Board does not provide accessible housing or other facilities but it does enforce accessibility standards that apply to facilities that are designed, constructed, altered or leased with certain Federal funds, such as temporary housing and related structures that are provided as a result of a disaster.  The Access Board provides technical assistance and training on all its guidelines and standards, including the Americans with Disabilities Act (ADA) and Architectural Barriers Act (ABA) Accessibility Guidelines.
National Council on Disability
The National Council on Disability (NCD) is an independent Federal agency charged with advising the President, Congress, and other Federal officials and entities on all policies, programs, practices and procedures affecting people with disabilities.  NCD's mission is "to further the goals in the Americans with Disabilities Act of 1990: equality of opportunity, full participation, independent living and economic self-sufficiency for all people with disabilities."  As a policy agency, NCD does not have any services or programs.  NCD is currently working under a Congressional mandate, articulated in the Post-Katrina Emergency Management Reform Act of 2006, as enacted by the Department of Homeland Security Appropriations Act, 2007 (P.L. 109-295), involving the coordination of select homeland security policy tasks with FEMA.
National Voluntary Organizations Active in Disaster

National Voluntary Organizations Active in Disaster (NVOAD) is the forum where organizations share knowledge and resources throughout the disaster cycle -- preparation, response and recovery -- to help disaster survivors and their communities.  Members of NVOAD form a coalition of nonprofit organizations that respond to disasters as part of their overall mission, with each member having its own specific area of expertise.

For example, the American Red Cross (Red Cross) utilizes a nationwide system of disaster planning, preparedness, and response to assist with post-disaster housing crises.  Red Cross chapters form the most immediate response when a disaster occurs.  If the disaster is so large that it exceeds the capacity of a chapter and its community, the Red Cross activates its broader network of people and resources available through its national headquarters structure.  Red Cross relief services are provided to minimize the immediate, suffering of people affected by a disaster through the provision of services that includes sheltering (individual or congregate temporary shelters).  The Red Cross serves as a co-lead with FEMA for the Mass Care component of ESF #6  -  Mass Care, Housing and Human Services.

Working together, the members of NVOAD foster service that is more effective by providing convening mechanisms and outreach for all people and organizations involved in disasters.

Authorities
Various Federal statutory authorities and policies provide the basis for Federal actions and activities in the context of domestic incident management.  The National Disaster Housing Strategy uses the foundation provided by the Homeland Security Act of 2002 (6 U.S.C. § 101, et seq.), Homeland Security Presidential Directive #5 (HSPD-5), and the Robert T. Stafford Disaster Relief and Emergency Assistance Act, as amended, ("Stafford Act," 42 U.S.C. § 5121, et seq.) to provide a comprehensive, all-hazards approach to domestic incident management.

Neither the Strategy nor the CONOPS alter the existing authorities of individual Federal departments and agencies.  The Strategy and CONOPS do not convey new authorities upon the Secretary of Homeland Security, Administrator of FEMA, or any other Federal official.  Rather, the CONOPS identifies the coordinating structures, processes, and protocols required to integrate the specific statutory and policy authorities of various Federal departments and agencies in a collective framework for action to include prevention, preparedness, response, and recovery activities.  The CONOPS may be used in conjunction with other Federal incident management and emergency operations plans developed under these and other authorities as well as memorandums of understanding (MOUs) among various Federal agencies.

Existing authorities invoked by the NDHTF include:
   * Homeland Security Act of 2002, as amended, 6 U.S.C. § 101, et seq.
   * Homeland Security Presidential Directive/HSPD-5
   * Robert T. Stafford Disaster Relief and Emergency Assistance Act, as amended, 42 U.S.C.  § 5121, et seq.
   * The Post-Katrina Emergency Management Reform Act (PKEMRA), P.L. 109-295
   * Americans With Disabilities Act (ADA), 42 U.S.C. § 12101, 47 U.S.C. §§ 225 and 611
   * Pets Evacuation and Transportation Standards Act (PETSA), P.L. 109-308
   * Title VIII of the Civil Rights Act of 1968 (Fair Housing Act), 42 U.S.C. §§ 3601- 3631
   * Title VI of the Civil Rights Act of 1964, 42 U.S.C. § 2000d, et seq.
   * The Rehabilitation Act of 1973, as amended, P.L. 93-112
   * Section 109 of Title I of the Housing and Community Development Act of 1974, 42 U.S.C. § 5309
   * The Architectural Barriers Act of 1968, as amended, 42 U.S.C. § 4151, et seq.
   * The Communications Act of 1934, as amended, 47 U.S.C. §§ 255 and 251(a)(2).
   * Age Discrimination Act of 1975, 29 U.S.C. § 621 et seq.
   * Title IX of the Education Amendments Act of 1972, as amended, 20 U.S.C. § 1681, et seq.
   * The Individuals with Disabilities Education Act of 1975, as amended, 20 U.S.C. § 1400, et seq., 34 C.F.R. Pt. 300
   * The Developmental Disabilities Assistance act of 2000, 42 U.S.C. § 15001, et seq.
   * The Privacy Act of 1974, as amended, 5 U.S.C. § 552a

Other Resources
   * The National Response Framework (NRF)
   * National Disaster Housing Strategy

The CONOPS and the National Response Framework

The NDHTF CONOPS integrates the principles developed in the NRF, which establishes a comprehensive, national approach to domestic incident response.  These principles include engaged partnership; tiered response; scalable, flexible, and adaptable operational capabilities; and unity of effort.  The themes outlined in the NRF as they apply to disaster housing, such as the identification of the Federal Government's supporting role to State, Tribal and local governments when there is a housing need to be filled whether the need is for sheltering, interim housing, or permanent housing, are reinforced by the CONOPS.  The CONOPS provides guidance for disaster housing response in support of key NRF Emergency Support Functions (ESFs), including ESF #6 (Mass Care, Emergency Assistance, Housing, and Human Services) and ESF #14 (Long Term Community Recovery).

The focus of the CONOPS is on disaster housing coordination, strategy and its implementation, whereas the ESFs are concerned with operational aspects of the disaster-housing mission.  For example, ESF #6 includes housing assistance, repair assistance, replacement assistance, permanent and semi permanent housing construction, and direct assistance under FEMA's Individuals and Households Program, which includes rental assistance.  ESF #6 is coordinated by FEMA with support from other Federal agencies, while the CONOPS is part of the Task Force's multi-agency effort to integrate various Federal disaster-housing programs across the housing continuum.  Similarly, FEMA's Disaster Temporary Housing Operational Guide describes FEMA's sequence of delivery of potential housing assistance, while the CONOPS outlines a multi-agency approach to better allow for strategic planning.  More specific information on the ESFs can be found in the NRF and in the related CONOPS and Standard Operating Procedures documents of each supporting Federal agency.
Guiding Principles

This CONOPS uses guiding principles developed in the NRF as well as key planning concepts, such as the importance of building housing capability through advance partner coordination to increase response capacity.  By following these principles and concepts, the NDHTF goal of identifying the essential components of successful housing recovery can be met and the information used to provide housing for the maximum number of disaster survivors.  The following are general principles that should guide disaster housing recovery, followed by more detailed information on the various phases of disaster recovery.

The Federal government is part of the team responsible for preparing for, responding to, recovering from, and mitigating against disasters.  The team also includes all jurisdictional levels of government, individuals, communities, and the private and non-profit sectors.

* Investing in the planning process will be directly proportional to the quality of communities' recovery.
* Collaboration and cooperation are vital to the success of a recovery plan.  All partners and stakeholders must work in close coordination to successfully detail and implement the recommended options.
* Roles and responsibilities must be reinforced at every opportunity  -  Federal, State, Tribal, local, private sector, non-profit sector and individual.
* A fundamental competency must be built and maintained across all partners to accomplish housing capability assessments and exercise disaster housing preparedness.
* Ensuring sheltering and interim housing options are identified will facilitate long term housing solutions.  In developing program guidelines, ensure a transition strategy exists for sheltering and interim housing to assist disaster survivors in returning to self-sufficiency.
* Housing options must be available to accommodate individuals with disability, access and functional needs.
* Options should promote individual choice within the scope of available programs, and meet or exceed minimum standards of safety, physical accessibility and comfort while being cost effective and timely.
* Planners and responders need to maximize use of existing authorities and resources of all partners and stakeholders, including Federal agencies, States, local governments and/or the private sector.
*    It is critical that housing programs and operations have clear guidance and requirements yet remain adaptable to disaster situations as they unfold.  Existing programs serve as building blocks for innovation as circumstances require.
Phases of Disaster Housing

Disaster housing issues are best explained in the form of a variable housing continuum including sheltering, interim housing, and permanent solutions.  Individuals, households, and communities have particularly important roles to play in two additional housing phases, preparedness and mitigation, both of which lessen the impact of disaster-related damages.  Because these activities are crucial to addressing disaster housing, this document describes the housing continuum as occurring in five phases rather than three: Phase I  -  pre-disaster preparedness; Phase II (post disaster)  -  sheltering; Phase III  -  interim housing; Phase IV  -  permanent housing; Phase V  -  mitigation.  Mitigation activities are included here as the fifth phase to emphasize that mitigation strategies enable communities to rebuild better and stronger, making them less vulnerable when a disaster strikes in the future.  Although mitigation is listed as the last phase, mitigation efforts, as with preparedness, should be ongoing and sustained throughout the continuum.

The phases are a descriptive tool, and are not meant to imply that an individual or household must progress through the three middle phases after a disaster, or that a community would progress through five stages consecutively.  Depending on the type and scope of the disaster, the availability of resources in the community or surrounding communities, and the unique needs of the disaster survivors, some phases may occur simultaneously or overlap.  Despite these variations, all phases usually occur in some form in every event where residents are displaced from their homes.

The path from sheltering to permanent housing is not the same for all disaster survivors; however, a description of the overall process provides the framework for establishing and evaluating how individual housing situations are addressed, and it delineates the actions necessary to provide a permanent and sustainable housing solution.

Following is a brief summary of each of the five phases of disaster housing:
Phase I:  Preparedness

The National Incident Management System (NIMS) defines preparedness as "a continuous cycle of planning, organizing, training, equipping, exercising, evaluating, and taking corrective action in an effort to ensure effective coordination during incident response."  Disaster preparedness refers to measures taken to prepare for and reduce the effects of disasters.  Pre-disaster planning can enable communities and individuals to reduce a disaster's impact, especially on the most vulnerable populations.  It can also better enable them to respond to and effectively cope with the consequences of a disaster.

Disaster preparedness is a continuous and integrated process resulting from a wide range of activities and resources.  General preparedness plans will identify emergency shelter sites, plan and publicize evacuation routes, determine chains of command and communication procedures, and educate individuals and families about what to do in case of an emergency.  Pre-disaster planning also involves identifying organizational resources, determining roles and responsibilities, developing policies and procedures, and engaging in activities that ensure a timely and effective response.  The aim is to identify assignments and specific activities that cover organizational and technical issues in order to ensure that disaster housing recovery will function successfully in the event of a disaster.  Disaster preparedness also includes planning against risks to post-disaster recovery by looking at land use options, reviewing building codes to make sure they will accommodate envisioned housing scenarios, and planning to staff recovery activities, (e.g., performing building inspections, permitting the use of force account labor or mutual aid agreements).  Disaster preparedness includes incorporating recognition of risks, risk mitigation measures, and disaster recovery plans into everyday decisions that are made by governments, the private and nonprofit sectors, as well as families and individuals.

Successful disaster housing planning requires organizational groups dedicated to achieving planning goals.  At the operational level, all levels of government have a critical role in developing effective plans for housing disaster survivors.  For this reason, the Strategy proposes the formation of several collaborative groups to address contingency planning and incident specific needs.  The work of a SLDHTF is a key part of this disaster housing preparedness process.  The Strategy calls for the NDHTF to build State, Tribal, and local disaster housing preparedness, response, and recovery efforts through SLDHTFs.

A primary purpose for establishing a SLDHTF is to ensure total and timely focus can be systematically, simultaneously and strategically given to all areas of disaster housing needs from pre-disaster through recovery.  Another is to promote participation and coordination of the wide range of stakeholders whose involvement and ability to work in concert is critical to maximizing housing solutions for disaster survivors.  Stakeholders participating on the SLDHTF would include the Governor's representative, as well as representatives of State agencies involved in disaster housing, representatives from applicable private non-profits, and advocates for those with functional and access needs.  Representatives from the Regional, State, or field offices of Federal government departments and agencies that are tasked with implementing Federal programs could also be invited to participate and would provide a direct link to the NDHTF.

Strengthening community-based disaster preparedness through Federal, State, and Tribal programs and through a community's own activities is important to being able to achieve disaster housing recovery in a timely manner.  This includes educating, preparing and supporting individuals, families, and communities in their everyday efforts to reduce risks, such as ensuring adequate amounts of insurance are maintained.  Identifying and developing resources and activities that address and mitigate risks and enable effective response to disaster situations are crucial components to disaster housing recovery Several Federal agencies make a variety of grants available to State, Tribal and local governments that can be used to enable better preparedness for the housing needs arising from a disaster.
Phase II: Sheltering

Sheltering is the provision of immediate, temporary housing in a congregate or transitional setting, generally in public or private facilities, to individuals and households displaced by a disaster or emergency.  This life-sustaining service may be required as a protective action prior to an impact or in the post-impact environment.

In non-catastrophic disasters, the majority of those seeking immediate refuge are able to identify and secure temporary accommodations without assistance.  These accommodations commonly include motels, hotels, or the homes of friends and family.  In many cases, individuals and households may choose to "shelter" in their damaged homes.  For those individuals who lack the means or opportunity to secure immediate temporary accommodations, emergency shelters are provided at the local/Tribal level in coordination with local/Tribal emergency management.  These shelters are designed to afford immediate safety and refuge from a threatened or actual incident.  State, local, and Tribal governments are responsible for providing public information on pre-identified shelter locations.

Private nonprofit organizations, such as the Salvation Army and the American Red Cross, provide sheltering and feeding services and generally have pre-existing agreements with owners of public or private facilities that allow them to establish shelters quickly.  These shelters offer basic services (e.g., food, first aid, space to sleep, emotional support, restroom/shower facilities) but often have a limited ability to accommodate those with acute medical needs.

Although private nonprofit organizations may be the direct service providers, the State is still principally responsible for the well-being of its citizens.  To ensure coordination and compliance with State and Federal regulations, local governments and the shelter providers inspect facilities to determine their suitability as a shelter and, if necessary, perform modifications to bring building to acceptable standards for sheltering.  The Department of Justice, OSHA, State building and health departments together with shelter providers determine appropriate guidelines for sheltering.  All primary shelters must be ADA/ABA compliant.

The NRF outlines an integrated process of support for emergencies and disasters.  When the sheltering capability of local, Tribal, and State governments is overwhelmed, the Federal government may provide appropriate support and resources to augment local, Tribal, and State government response.  FEMA serves as the lead for the emergency assistance, housing and human services responsibilities within ESF#6, with FEMA and the Red Cross jointly leading the planning and coordination of mass care services.  Sheltering support, operation, and management are provided through partner agencies and organizations such as the Red Cross, members of the NVOAD, and other Federal agencies.  When there are requirements beyond the scope of the capability of ESF # 6 partners, FEMA uses Individual Assistance-Technical Assistance Contractors (IA-TAC) to supplement Federal support and resources.

FEMA's National Shelter System (NSS) is a comprehensive database that has been developed in coordination with the American Red Cross.  During disaster operations, the NSS provides a mechanism to identify available facilities (by location), track population counts and shelter status, and report shelter data for analysis.  It allows users to gather information to support the declaration process, make informed shelter management decisions, and match available locations with affected geographical areas to aid the coordination of evacuation and relocation efforts.  The NSS identifies key information about each shelter, including address, capacity, physical accessibility, managing agency, and details for Geospatial Information Systems (GIS).  The NSS captures additional data on pet shelters, points of distribution, and evacuation centers.  Specific steps have been taken to improve mass care services for individuals with disability, access and functional needs in two key areas:  providing information to help States plan to meet these needs, and increasing the participation of people with disability, access and functional needs, as well as subject matter experts, in the planning processes.  To help with State planning efforts, FEMA has developed Functional Needs Support System guidance and training as a reference for how to accommodate individuals with access or functional needs in general population shelters.  In addition, FEMA has appointed a Disability Coordinator to integrate disability issues into Federal emergency planning and preparedness efforts.

Sheltering provisions are also required for people with acute medical needs.  Local/Tribal/State governments, in coordination with the appropriate health and social service agencies, should pre-identify these shelters.  Private nonprofit organizations operating general population congregate shelters generally do not focus on acute medical care.  Although these organizations accept individuals with disabilities, access and functional needs, local/Tribal/State governments should ensure medical needs are addressed for those needing assistance beyond the scope of private nonprofit organizations.  When local/Tribal/State governments are unable to meet these needs, Federal assistance could be requested and provided through ESF #6  -  Mass Care, Emergency Assistance, Housing, and Human Services and/or ESF #8  -  Public Health and Medical Services.
Phase III: Interim Housing

Following sheltering operations, those who cannot return to their pre-disaster dwellings must seek other housing options.  This document refers to post-shelter housing, which generally lasts up to 18 months from the disaster declaration, as "Interim Housing."  Interim housing options offer more privacy and amenities than most congregate shelters, and are intended as longer-term solutions where families can be housed together.  Efforts in this phase are focused on reestablishing the household or family, and enabling them to work towards their permanent housing solution.

Examples of interim housing options include rental resources and temporary housing units (which are typically used only as a last resort).  The goal is to provide safe, sanitary, functional, and physically accessible temporary housing while repairs and rebuilding are in progress, or while disaster survivors seek another form of suitable permanent housing.  Unlike sheltering options, which essentially require only that participating individuals were affected by the disaster, interim housing programs have more stringent eligibility requirements.  At a minimum, most programs require some form of identity verification and pre-disaster proof of occupancy and demonstration of a disaster related housing need.  Continued assistance may require proof that the household is not yet able to transition to permanent housing on their own.  [See 42 U.S.C. § 5174 and 44 C.F.R. §§ 206.113 and 206.117.]

In response to a major disaster, the Federal government can provide a range of interim housing options based on Federal authorities and capabilities.  Federal officials tailor options, within the constraints of law, regulation, and policy, to meet State-specified requirements.  The State reviews the various options and works through FEMA to request the Federal support that best meets residents' needs.  FEMA then coordinates with other Federal departments and agencies to provide the necessary support.  When Federal assistance is provided, FEMA and the States share in responsibility for the oversight and management of the resources, and must administer emergency management housing programs in full compliance with Federal civil rights law requirements, including the Americans with Disabilities Act (ADA) and Section 504 of the Rehabilitation Act.  Pursuant Section 312 of the Stafford Act (42 U.S.C. § 5155), Federal agencies providing financial assistance to individuals and families are required to ensure the Federal assistance does not duplicate other sources, including insurance proceeds.  When there is no Federal declaration issued or when Federal assistance ends, the State assumes full responsibility for interim housing.

During the interim housing phase, households should be able to access essential support services, such as social services or community support groups.  In addition, as authorized by 42 U.S.C. § 5189d, Disaster Case Management may be deployed in a major disaster.  Case management services can help link households to these services through referrals.  Individuals with disability, functional and access needs must have equal access and an equal opportunity to participate in any program, service, or activity provided by a State or local government entity, including interim housing programs (See 44 C.F.R § 206.11).  Per the same regulation, and the ADA, private non-profit groups and other organizations must also provide individuals with disability, functional and access needs with an equal opportunity to benefit from these programs.  This support can help individuals and households make more informed choices about interim housing and connect them to services provided in the community which may meet needs not fully met by Federal or State programs.

Prior to a disaster, States can establish databases of potential rental resources.  Existing commercial site pads for manufactured housing units can also be incorporated into a database and availability maintained based on permits issued to occupy.  Each potential housing site should be surveyed by knowledgeable professionals to determine whether it provides physical accessibility to individuals with disability, functional and access needs, and the database should include such information.  States can then use that information to help identify enough accessible interim housing options in each area to meet the anticipated need.  Pre-identifying locations for group sites and verifying building codes for group and commercial sites will expedite the process, should the use of temporary housing units be necessary.  Pre-identification of sites is also important from a Federal environmental/historic preservation compliance standpoint.

It is important to consider that while interim housing is intended to provide temporary housing beyond the emergency sheltering phase, some households may not need to move from their interim housing solution in order to achieve permanent housing.  For example, many households who receive disaster related rental assistance may continue to reside in those rental resources as a permanent housing solution.  Additionally, under some circumstances, selling a manufactured or modular temporary home to a homeowner with the unit on their property or in a commercial site can serve as a permanent housing solution.  Finally, repair assistance, through FEMA and SBA loans, is the preferred method for moving people out of interim housing.

Phase IV: Permanent Housing

The goal of this phase is to provide long-term permanent housing solutions that are suitable and self-sustainable and address the disaster-related housing needs of the individual or household.  Solutions in this phase typically are focused on rejoining the household to the community, but    many households may choose to relocate to a different community due to lack of work, fear of similar disasters in the future, and other personal or socio-economic factors.

State, Tribal, and local governments have the primary responsibility in the permanent housing phase.  They should determine appropriate housing options and support residents in their return to their pre-disaster communities whenever feasible.  Land use decisions, infrastructure restoration, and the provision of vital community services and other long-range needs significantly affect housing decisions throughout this process.  Schools, congregate care facilities, home health services, medical facilities, and other essential community, behavioral health, and human services must be re-established for people to return.  Successful permanent housing is thus related to overall long-term community planning for recovery and redevelopment.  In major disasters, ESF #14 can be deployed to assist in long-term community recovery planning efforts and the coordination of resources from Federal departments and agencies, such as HUD.

Effective planning focuses on long-term needs with an acute awareness of obstacles that often thwart the achievement of larger goals.  Some tools for this approach are already built into the emergency management system.  Emergency managers generally have priority lists for the restoration of vital public facilities that local/Tribal planning departments, working with other city departments responsible for infrastructure development and maintenance, can review to determine areas of potential concern and prioritization.  In addition, damage assessments performed during previous disaster housing phases provide opportunities to assess the effectiveness of existing building codes for possible revision.

The permanent housing phase encompasses a wide range of elements based on partnerships among all levels of government and the private and non-profit sectors.  Persons of low and moderate income and many pre-disaster renters, particularly those who may have lost their jobs or homes in a disaster, may require additional case work to aid in successful transition from interim to permanent housing as affordable housing options may be limited.  Additionally, the Department of Labor (DOL) has discretionary funds to assist those who lose their jobs due to the disaster.  Local or county DOL offices may want to request assistance from the U.S. DOL on applying for these funds.  Permanent housing must also address the needs of those with disability, access and functional needs, and individuals with medical conditions that may affect their housing environment.  The U.S. Department of Health and Human Services (HHS) may have Social Services Block Grant (SSBG) funds for longer term recovery and unmet needs.  States may want to contact HHS for information on the availability of these funds.

The decisions of local employers will also heavily influence the rehabilitation, reconstruction, and replacement of permanent housing.  Not all pre-disaster jobs may remain in the area, though new jobs may be created.  Augmenting local construction capabilities with assistance from outside the disaster area may be required to achieve an acceptable rate of reconstruction.  Construction resources in some areas will be overwhelmed, and various aspects of the construction industry, such as materials, labor and equipment, may be impacted by the disaster and affect the pace of recovery.

Disasters have varying impact on different communities, or sectors within communities.  Some communities made up primarily of families and individuals of low and moderate income may, for instance, suffer disproportionate damage due to the relative age and condition of low-income housing stock.  There may be limited financial capacity for many residents to undertake, or, in the case of tenants, even influence effective mitigation measures or post-disaster repairs.  Recovery thus becomes more difficult and prolonged than might be the case in a more affluent neighborhood.

Phase V:  Mitigation

Disaster mitigation is the term used to refer to actions taken to reduce the impact of future disasters.  This includes long-term risk reduction measures that are implemented after a disaster when a community decides to build back stronger in order to reduce repeat losses.  The State and local hazard mitigation plans provide a clear path to plan and implement strategies to reduce risks from known hazards, which should be reflected in the specific FEMA-State Mitigation plan for a declared disaster.

Communities and States have found that mitigation measures, including appropriate land use and adopting and enforcing model building codes greatly reduces damages from future events.  For damages that are not prevented, insurance (such as available for floods through NFIP policies) allows the community to be more resilient - that is both communities and individuals have financial resources to more quickly recover.  Use of mitigation plans created before a disaster, and considering mitigation up-front during the initial recovery phase, allows both for expedited construction and repairs, as well as appropriate building locations and construction that will be safer from future events.  Incorporating mitigation into improved land-use policy and new, upgraded building standards is an important focus of a long-term recovery plan.

Most local communities have adopted hazard mitigation plans based on guidance developed by FEMA.  Some specific items that are addressed by this plan include identifying the hazards in the community, inventorying the buildings and facilities that are at risk from these hazards, and identifying specific steps to address these risks.

Understanding the mitigation opportunity requires an understanding of the nature of the hazards which may be faced and their causes; the geographical distribution, magnitude or severity, and probable frequency of occurrence; the physical mechanisms of destruction; the elements and activities most vulnerable to destruction; and the possible economic and social consequences of the disaster, including the effects on housing.  Where resources for mitigation are limited, they should be targeted where they will be most effective, which is typically in support of existing community level activities that aim at the most vulnerable elements.  Vulnerability assessment is a crucial aspect of planning effective mitigation, and implies both susceptibility to physical and economic damage and lack of resources for rapid recovery.  To reduce physical vulnerability, structures may be protected or strengthened.  To reduce the vulnerability of social institutions and economic activities, infrastructure may need to be modified or strengthened.

Comprehensive mitigation strategies that strive to minimize economic and housing impacts in any future disasters are an important part of post-disaster plans that address permanent housing.  Plans should not just focus on repairing, rebuilding, and rehabilitating homes.  Mitigation activities may include relocating some buildings and facilities to areas of less risk in the community.  In other cases, where the hazard covers a wider geographic area, such as hurricanes, retrofitting and adopting and enforcing better design and construction practices may be an effective approach.
Tiered Approach

The sheltering, interim housing and permanent housing needs of disaster survivors vary based on the type and the scope of an event.  Housing approaches must be adaptable and capable of effectively responding to disasters of many types or magnitudes, including catastrophic disasters.  Disaster housing strategies should be scalable and flexible to respond to a variety of events, and will ultimately be implemented through a "three-tiered" assistance delivery approach.  Major disasters may need to rely upon all three approaches simultaneously, depending on the unique needs and characteristics of the individual households impacted by the event.

The first tier will be to maximize the use of all surviving housing resources, typically within a reasonable commuting distance from the impacted community.  Housing needs resulting from most disasters can be met through rental and home repair assistance and existing programs of various Federal agencies.  This approach is most commonly used to house disaster survivors and is preferable because of its relative low cost and the ability of households to stay in their communities.

In the second tier, if needed and feasible, FEMA may supplement the existing housing resources inside the community by bringing in temporary "outside" housing resources for the interim housing phase.  This strategy includes the provision of temporary housing units via the direct housing assistance program.  This option relies heavily on the community's ability to accommodate these resources.  As with the first approach, households are able to stay in their community and rebuild.

The third part of the three-tiered assistance delivery approach involves relocation.  This should be considered when the post-disaster housing needs reach a critical level where housing needs become too large or too urgent for existing and outside resources to adequately, promptly and appropriately meet them.  In this case, support may be provided for the relocation of displaced households to other areas where interim and/or permanent housing is available.

Because a catastrophic disaster may overwhelm existing disaster housing methodologies, the NDHTF may be called upon to coordinate a strategic approach to providing housing solutions in a catastrophic situation.  The possible role the NDHTF might have in such an event is discussed below, following a description of the different characteristics of catastrophic and non-catastrophic events.
Characteristics of Disasters

The NRF defines a catastrophic event as "any natural or manmade incident, including terrorism, that results in extraordinary levels of mass casualties, damage, or destruction severely affecting the population, infrastructure, environment, economy, national morale, and/or government functions."  The Catastrophic Incident Annex to the NRF further adds, "A catastrophic event could result in sustained national impacts over a prolonged period of time; almost immediately exceeds resources normally available to State, local, Tribal, and private-sector authorities in the impacted area; and significantly interrupts governmental operations and emergency services to such an extent that national security could be threatened."  One aspect of a catastrophic event is that a modification of standard Federal and State housing programs may be required to accommodate the extraordinary needs of the event.  The characteristics and assumptions associated with particular events are likely to result in different types of housing challenges, as outlined in the following chart.

Characteristics
                                Characteristics
                            Non-Catastrophic Events
                              Catastrophic Events
Impact
The event causes localized damage and impacts the local economy.  While large population centers may be affected, utility disruption and higher degrees of damage are localized such that the entire population center is not affected.  The number of destroyed housing units is small in comparison to the population of the region.
A large population center is affected to such a degree that it results in massive property destruction, fatalities, injuries, and long-term displacement of people from their homes.  It significantly disrupts the economy of the region, and ultimately may affect the commerce and economy of the entire nation.
Magnitude
Includes events such as river flooding, minor-to-moderate earthquakes, or hurricanes where the majority of damage can be addressed within a relatively short period.
Involves events such that State, Tribal and local response and recovery capabilities are immediately and profoundly overwhelmed and Federal response and recovery capabilities are severely stressed.
Recovery Timeframe
Months; occasionally years in cases where there is substantial infrastructure damage.
Likely to take several years, at minimum.
Housing Needs
Standard disaster housing programs and processes are sufficient to meet the needs of the event.  In many cases, impacted housing can be repaired, replaced, or made livable in a short amount of time.  Destroyed or heavily damaged homes are concentrated and sufficient resources exist in proximity to the damaged area, allowing most individuals to be temporarily housed within their community while rebuilding and repairs are completed.
This event causes the destruction of tens or hundreds of thousands of homes.  Mass shelters are so overloaded and evacuation routes so impassable that exposure to the elements or the disaster itself creates the distinct possibility of many more injuries and fatalities.  The lack of interim housing resources is so acute that stays in mass shelters, relocations to distant communities, and other extreme forms of dislocation are expected to last many months, causing long-term loss of employment, prolonged disruption of schooling, and other socioeconomic issues.  Permanent resettlement into old neighborhoods will take years; many residents may permanently relocate.
Resource Availability
Most agencies and organizations have adequate resources.  Existing programs and processes are sufficient to address the majority of the needs of the affected population.
The event taxes the limits of the entire Federal government, affected States, Tribes, and localities.  Appropriate response involves the combined efforts of individuals and the nation's public, private and non-profit sectors.

Catastrophic Disasters and the NDHTF

In a catastrophic disaster, upon request from the FEMA Regional office, the NDHTF and/or its member agencies can work with the Regional office to assist the SLDHTF in developing a disaster housing plan.  NDHTF members may be invited to have field or regional office representatives from its member agencies participate on the SLDHTFs.  These field office representatives could participate in the formation of a disaster-housing plan and help coordinate applicable Federal programs and resources to meet the needs of the impacted communities and populations.

Once convened, the SLDHTF will identify the specific needs of an affected population and the availability of housing resources in the impacted area.  This information will affect decisions       made on the appropriate forms of housing necessary for the specific event.  The SLDHTF, with support of the NDHTF as necessary, will design an event-specific and comprehensive housing plan that is appropriate to the disaster and to the affected population.  At a minimum, the plan should consider and address the following factors:

   * What role will representatives of the public play in the development of the SLDHTF and its work?
   * Which emergency shelter options are already in place and are they adequate and appropriate?
   * Will interim or permanent housing be available within a reasonable time period from the incident for the majority of the impacted population?
   * What accommodations are required to meet the interim and permanent housing needs of populations with disability, access and functional needs?  Are the needs for accessible housing being met? Is there a need to exceed DOJ minimum standards?
   * What institutional residential settings exist in the affected community(ies), and are interim housing solutions for individuals with access and functional needs adequate to meet "surge" capacity in event of structural damage to and/or evacuation of institutional settings?
   * Which interim housing options are the most cost-effective, efficient, and timely based on the geography, climate, and available or rehabilitated infrastructure?  Can any of the sheltering measures be transitioned into interim housing options?
   * What public messaging strategy will be used in initiating the interim housing phase and the closure of organized emergency shelters?  How will the goals of interim housing  -  that it will allow individuals and households to remain sheltered with privacy while they develop a permanent housing solution  -  be conveyed?
   * Will the Blue Roof program be implemented?
   * What options will cost-effectively meet the interim need and further long-term community recovery?  Can any of the sheltering measures or interim housing options be transitioned into permanent housing solutions?
   * Which permanent housing solutions are the most appropriate and sustainable in the affected community(ies)?
   * How will the housing timeline be affected by local/Tribal codes and permitting procedures, availability and access to contractors and supplies, and suitable land for site development?
   * What mitigation measures should be incorporated?
   * Will relocation be necessary for part of the population, and if yes, how will it be implemented?
   * How will the housing strategy be communicated to all parties to ensure reasonable expectations? Are any special formats or additional translations needed?
   * What supportive health, behavioral health, and social services are needed to ensure survivors will be able to safely and successfully accept and access disaster housing?
   * How will duplication of benefits and services between FEMA and other agencies and organizations be dealt with?
   * How often will the SLDHTF reconvene to review the housing progress and to determine if any aspects of the plan need to be adapted or changed?

Federal members of the NDHTF will coordinate with the FEMA Regional office to assist the SLDHTF regarding the availability of resources and the implementation of their housing programs.  Based on the scope of the disaster, members of the NDHTF can determine which specific programs and resources they can offer for the current situation, and whether further event-specific resources need to be provided.  The following questions should be used to guide decisions:

   * Which Federal departments and agencies have currently funded disaster and non-disaster housing programs that could assist the impacted population?
   * If the existing programs are insufficient, which Federal departments and agencies have other non-funded, non-disaster housing programs that could be implemented, if funded?
   * If all standard disaster and non-disaster housing programs are insufficient, which Federal departments and agencies have housing programs that can be modified or resources that can be diverted to augment the current disaster housing requirements?
   * Are any additional mission assignments or interagency agreements needed to meet the disaster housing needs?
   * Are there additional tools or resources that are not already in use that need to be considered?
   * If emergency legislation is determined to be necessary, what needs to be included to be able to address housing needs resulting from this disaster?

The NDHTF can be a forum for discussing the resources available to address complex housing needs resulting from a catastrophic disaster.  The NDHTF seeks to ensure open, accurate, and accessible communication between all parties involved.  The NDHTF will participate in the identification of housing ideas, innovations, strategies, solutions, and resources from all levels of government, voluntary organizations, the private sector, and the affected population, within the guidance outlined by the Federal Advisory Committee Act (FACA).

In a catastrophic event, NDHTF member agencies would be available to provide expert knowledge, analysis, professional experience and guidance to senior leadership on solutions to urgent disaster-specific housing challenges.  These challenges may include the brokering of resources when resources are limited, establishing priorities and triage procedures, developing service level formulas to determine how many applicants can get housed in difficult timeframes, and presenting decision makers with difficult options.

Reporting protocols, communication standards, and data sharing opportunities will continue to be established and standardized for both disaster and non-disaster periods of activity to ensure an appropriate state of readiness.  In addition, pre-scripted mission assignments and interagency agreements will continue to be developed during non-disaster times whenever possible to further enhance the Federal response and recovery capabilities.

Planning Assumptions

The NDHTF holds that concerted planning efforts and effective cooperation are vital for successful disaster response and recovery, regardless of the scale of the disaster.  The CONOPS was developed to improve these efforts by developing national disaster housing guidance that includes clear planning assumptions and guidelines.  By articulating these assumptions, we will be better able to identify disaster housing needs and programs to meet these needs.  Following are planning assumptions that will need to be taken into consideration based on whether an event is catastrophic or non-catastrophic.

Planning Assumptions
                                   Category
                            Non-Catastrophic Events
                              Catastrophic Events
Sheltering
Many affected households are typically able to shelter with family and friends in the immediate area or use loss-of-use funds from their personal insurance to meet their own sheltering needs.  State, Tribal, and local agencies and voluntary organizations are capable of addressing the remaining immediate sheltering needs of households who may require assistance.
In the immediate response phase, existing sheltering resources are not sufficient.  There may be a need for creative measures to shelter individuals and households to be identified, considered, and employed as expeditiously as possible.  There may be a need for evacuation of large numbers of people out of the affected area to safe shelters in other states requiring significant transportation coordination and resources.  Large, congregate shelters that provide wrap-around services (i.e. mega-shelters) may be the primary source of sheltering due to logistical and resource constraints.
Rebuilding and Employment
While a temporary shortage of building supplies may occur, generally the supply stock is readily replenished through normal area supply chains, and any housing construction is completed in accordance with current building codes.  Insurance companies are able to settle claims and provide funds to address losses within a reasonable amount of time.  Needs not met by insurance are met through SBA loans, FEMA assistance, and other Federal agency housing assistance programs.  Local businesses and employers, while affected, are able to reestablish services and job bases through available assistance programs and/or insurance proceeds.  Disaster Unemployment Assistance is sufficient to meet remaining joblessness resulting from the event.
Local supplies of construction materials, labor, and interim housing resources fall far short of meeting the needs.  Drawing on nearby supplies and resources is inadequate or infeasible.  Financing is extremely problematic as survivors cannot return to work quickly and subsequently cannot secure traditional loans.  Conventional disaster grants and contributions from non-governmental sources also fall far short of meeting the needs.
Anticipated Registrations
Resources are sufficient to address the number of registrations from affected households.
Call volume immediately exceeds daily resources.  Call centers need to be provided 24 hours, 7 days a week.  Contracts with the private industry and the IRS call centers need to be brought online immediately at the maximum level possible to support the surge activity.
Public Messaging
Public messaging focuses on identifying available assistance, the processes for accessing that assistance and the sources for help with completing the processes, as well as providing the information in a variety of languages and formats.  Timeframes fall within assistance/processing averages for response and recovery agencies.
Repairing and replacing homes takes time and in the midst of an area with massive damage to its infrastructure, the process will be lengthy.  The span of the impacted area may be larger.  Communication infrastructure may have been damaged.
Ability to Support Relief Workers
The impacted area is able to support the influx of assistance providers, as unaffected services are still available in proximity to the affected area.  In some large-scale events, a need for support for assistance workers may be required in specific areas.  At the same time, the majority of these workers can still be supported through normal area services.
The influx of relief workers, insurance adjusters, construction workers, and volunteers creates additional, potentially overwhelming demands for housing and basic human services.  To ensure timely response and recovery efforts, Federal, State, Tribal, and local coordination is needed to plan and implement alternate, temporary measures to meet these essential needs (e.g., shelters, food services, access to medical care).
Physical Accessibility Issues
Pre-planned accommodations for persons with disability, functional and access needs are generally sufficient to meet the physical accessibility needs of the impacted population.
Pre-planned physically accessible accommodations may be inadequate.  Non-traditional, temporary approaches may be required to ensure that persons with physical disability, functional and access needs are accommodated.
Housing Programs and Methods
Housing needs are met through traditional housing programs and resources (e.g., rental assistance, home repairs).
Requires innovative approaches beyond traditional housing methods to provide sufficient resources to meet the large-scale housing needs.
Sequence of Disaster Housing Assistance Delivery
Overview

This CONOPS expands upon the Strategy and its supporting annexes by setting forth a range of program options to guide decision-making across disaster housing phases.  Throughout the planning process, it is critical to acknowledge that actions and planning decisions undertaken in the sheltering phase will have major implications for interim and permanent housing options, and may influence the scope of solutions available to address long-term sustainable housing solutions.  It should also be noted that the five phases may overlap, vary in duration, character, and scope, but all phases are present in some form in all large-scale incidents, as well as in many smaller incidents.  The CONOPS provides an assessment of options and programs for providing disaster housing in all phases.
Federal Programs

Most disasters require an approach consisting of multiple programs and activities that are well integrated in order to ensure seamless delivery of disaster housing assistance.  National disaster housing programs are most effective when they complement State, Tribal, and local government efforts and when they consider the resources and capabilities of communities, individuals and the private sector.  The Federal government plays a role by providing funds, coordination, and technical support, but State, Tribal and local governments should lead the effort and implement many of the recovery programs.

The following graphic illustrates a timeline of Federal disaster housing programs and how these programs sequence through the stages of housing recovery.  It breaks the sequence of delivery into four periods that span from pre-disaster preparedness to long-term recovery.  The first period includes Federal programs that can be utilized to strengthen a State/local/Tribal government's capacity to mitigate damage from future disasters.  The next stage, which extends from the disaster to one-to-two months post-disaster, illustrates Federal emergency programs that can be activated in the immediate aftermath of a disaster.  The three-to-eighteen month period follows, and shows programs that can be used during the interim stage.  Finally, the last section, titled eighteen months and beyond, includes long-term programs that communities can use to recover from disasters.

Some programs span different periods as they may be initiated during an early stage and continue for months or years.  Not all of the programs represented are available for each disaster, and some programs are available during non-disaster times.  The availability of programs may be dependent on the size of the event and the scope of each Federal agency's role in the recovery mission.  The Federal programs in the diagram are described in more detail in the following section.  For additional assistance with this graphic, contact the National Disaster Housing Task Force at NDHTF@DHS.  gov.

The programs that a jurisdiction will use will vary depending on the specific characteristics of the communities affected and the scope of the disaster.  Program availability is often determined by the type of event and the characteristics of the area where the event has occurred, and not all programs are available for all disasters.  For example, in an event such as a localized flood or storm where abundant rental resources are available within a reasonable distance of the impacted area, FEMA would not offer direct housing assistance through the use of temporary housing units.

Upon determination of relevancy to the jurisdiction and disaster, planners must determine if the options available will be efficient and cost effective for their communities.  It should be acknowledged that there is often a trade-off between time, cost, and quality in the delivery of programs; the fastest disaster housing solutions may be either very costly or could be poorly built.  Ultimately, local planners will have to rely on a variety of interdependent programs to create a comprehensive solution.  The descriptions of programs in this section provide guidance as to the applicability of a program relative to the phase of disaster response or recovery.

Programs selected for inclusion here will directly provide, or help to provide, sheltering, interim, or permanent housing for individuals or households affected by a major disaster.  Included are programs that can be used prior to a disaster, and those that can be applied after a disaster, to help a community rebuild safer and stronger.  These Federal programs help individuals and households return to their pre-disaster state of sustainable, self-sufficient housing.  A detailed description of the housing programs, as well as examples used by some States and Counties, can be found in the online NDHTF database which is linked through the National Disaster Housing Strategy Resource Center website at www.fema.gov/emergency/disasterhousing.  In addition, Annex 1 of the Strategy, and the Catalogue of Federal Domestic Assistance (CFDA) further elaborate on current program procedures and the responsibilities of each Federal housing stakeholder under statutory authorities.
Preparedness Programs

A variety of programs are available that enable citizens and communities to prepare for disasters.  FEMA offers several grant programs providing funding mechanisms for reducing risk to property from natural hazards while reducing reliance on Federal disaster funds.  These grants provide for a diverse set of needs ranging from developing intra- and inter-state emergency management systems, including State-led Disaster Housing Task Forces, to bringing community and government leaders together to coordinate community involvement in emergency preparedness, planning, mitigation, response and recovery, and finally, to further enhance catastrophic incident preparedness.  Information on some preparedness programs may be found below, and additional relevant programs are detailed in the Mitigation Programs section.  Information may also be found at www.grants.gov.

FEMA's Emergency Management Program Grant (EMPG) gives States the flexibility to develop intra- and inter-State emergency management systems that encourage building partnerships across all levels of government and with non-governmental organizations.  These funds may be used for a range of emergency management planning activities including disaster housing plans.  This may involve the establishment of a standing State-led Disaster Housing Task Force; conducting a hazard analysis and risk assessment prior to mitigation plan development; and developing large-scale and catastrophic event incident plans, among others.

Bringing community and government leaders together to coordinate community involvement in emergency preparedness, planning, mitigation, response and recovery is the mission of the Citizen Corps Program (CCP).  Funds are anticipated in FY 2011 to provide resources for States, local, and territorial communities to bring together the appropriate leadership to form a Citizen Corps Council; implement plans to achieve and expand citizen preparedness and participation; conduct public education and outreach; and conduct evaluations of programs and activities.

The Regional Catastrophic Preparedness Grant Program (RCPGP) is a FEMA grant program that focuses on further enhancing catastrophic incident preparedness in eleven pre-designated high-risk, high-consequence urban areas and their surrounding regions.  The RCPGP is intended to support coordination of regional all-hazard planning for catastrophic events, including the development of integrated planning communities, plans, protocols and procedures to manage a catastrophic event.  In past years, this grant was focused on the development of regionally-coordinated plans focused on scenarios.  In FY 2010, the RCPGP changed from developing plans to focusing on elements of the preparedness cycle.

The State Homeland Security Grant Program (HSGP) provides funds to States to build and sustain national preparedness capabilities and fund a range of preparedness activities, including planning, organization, equipment purchase, training, exercises, and management and administration.  While the primary focus is terrorism, most capabilities specific to terrorism are also applicable to large-scale natural disasters.  The HSGP is made up of interconnected grant programs that can potentially be used for disaster housing planning or preparedness activities, such as improving readiness for response to and recovery from disasters; community preparedness; and strengthening planning and citizen capabilities.

DHS grants are also available for courses in disaster housing preparedness such as "Disaster Recovery in Rural Communities" that addresses short- and long-term recovery needs and priorities, including housing.  This proposed course would be designed to teach community leaders and emergency managers in rural communities how to plan for and execute disaster recovery efforts and ensure the long term economic success of their communities.
Sheltering Programs

FEMA coordinates and leads Federal resources to support State, local, Tribal government, private non-profits and private for profits by providing assistance for emergency shelters, mass care, and emergency assistance in recovering from disasters.  Funds are allocated from the Disaster Relief Fund for States to provide shelters in a designated emergency or major disaster.  Additionally, FEMA's Transitional Sheltering Assistance (TSA) may be used to provide lodging for disaster survivors by paying hotels and motels directly for rooms to be used by pre-qualified individuals from designated disaster areas.  This program is intended to support and augment State and local sheltering resources for the affected population, and is funded through the Disaster Relief Fund under Section 403 of the Stafford Act (42 U.S.C. § 5170b).  For additional information on sheltering assistance as authorized by the Stafford Act, reference Annex 7 of the National Disaster Housing Strategy.

Interim Housing Programs

When housing needs continue beyond the sheltering phase, those providing interim housing will focus on how to maximize the use of available resources while meeting each person's need, including individuals with disability, access or functional needs.  If a damaged home is destroyed or cannot be repaired quickly, FEMA can provide financial rental assistance to eligible disaster survivors.  This assistance, which is based on the HUD Fair Market Rental rate (FMR) in the affected locale, can be used to rent an apartment or other temporary housing while repairs are underway or disaster survivors look for permanent housing.  Individuals and households may locate rental resources on their own, or if unable to locate available rental resources, seek referrals by calling the FEMA Helpline.  In addition to FEMA assistance, the HUD operates a Housing Portal to track available rental properties, and several States have established rental assistance programs which may be able to provide referrals to available resources.

This support also includes rapidly cataloging rental property that has not been damaged and could be used to house disaster survivors.  Both FEMA and HUD maintain and support a direct link to the National Housing Locator (NHL) system on their web sites to assist individuals in locating rental resources.  This portal provides individuals and families with a consolidated listing of rental resources identified by Federal agencies, including HUD, USDA, and VA, as well as private organizations and State Housing Authorities.  The NHL also provides housing assistance by rapidly locating rental housing and available government-owned, foreclosed homes for sale during an emergency.  When there is a shortage of rental property in the affected area or in the aftermath of a catastrophic disaster, transportation assistance may be provided by FEMA to help households relocate temporarily or permanently to another area where a rental resource has been located.

In response to four catastrophic disasters, FEMA and HUD have provided rental assistance and Disaster Housing Assistance Program (DHAP) service connector services to eligible disaster survivors.  DHAP may be established at the request of FEMA's Assistant Administrator for Recovery and the HUD Assistant Secretary for Public and Indian Housing under an Inter Agency Agreement.  The program was established and implemented for Hurricanes Katrina, Rita, Ike and Gustav.  Under this program, rental assistance, which is based on the Fair Market Rent in the affected locale, is provided directly to participating landlords so that disaster survivors can rent an apartment or other temporary housing while repairs are underway or disaster survivors look for permanent housing.  Payment of the rental subsidy is made pursuant to a Disaster Rent Subsidy Contract between HUD's Public Housing Agencies (PHAs) and the owner.  HUD utilizes its existing network of local PHAs to administer DHAP.  Under the program, the PHAs not only make a monthly rental assistance payment on behalf of participants directly to the owner of the rental unit, but also provide DHAP service connector services to assist families in achieving housing self-sufficiency.

HUD's national network of PHAs administers several subsidized housing programs, most notably Housing Choice Vouchers (HCV).  Assistance can be provided under the HCV program if the PHAs existing waiting list is open, the assistance is available, and the family applies and is found eligible based on income, criminal background check, and citizenship.

If necessary, HUD can sell or lease homes it owns at a discount to evacuees displaced by disasters.  The homes are sold at a discount from their fair market value and HUD funds a repair and maintenance escrow equal to a percentage of the discounted purchase price to help pay for any repairs that may be needed to fix the home and to pay delinquent utility accounts.  The program is funded with a set annual budget and may or may not be able to meet size or frequency needs.

In addition to rental assistance, FEMA's Individual and Household Program (IHP) can provide repair or replacement financial assistance.  Following inspection and verification of damages, FEMA may provide eligible homeowners with a grant to rent alternative housing, repair their home, or to replace their destroyed or condemned home.  The maximum grant amount is evaluated annually and for disasters declared between October 1, 2010 and September 30, 2011 is set at $30,200.  This assistance may include more than one type of assistance such as rent, repair or other needs.  In 2006, Section 408 of the Stafford Act was amended to allow applicants to receive up to the maximum IHP grant for repair assistance, even when their home is not destroyed (See 42 U.S.C. § 5174).

In response to a disaster, the USDA Housing and Community Facilities Programs provide information (e.g., location, type, owners, management service) on USDA-financed, currently available, habitable housing units.  USDA may also provide Letters of Priority Entitlement for placement in USDA-financed housing, and assist eligible recipients to meet emergency housing assistance needs resulting from events that receive Presidential emergency or major disaster declarations.

The VA may offer special forbearance for VA guaranteed loans closed on or before the date of a disaster declaration.  Upon receiving a request from FEMA for housing, the VA will provide FEMA with a list of all VA-owned habitable housing units in the areas requested.  These units can be made available for use as interim housing for up to 18 months.  The VA and FEMA have a Memorandum of Understanding where Modifications Number 1 and 2 describe this process.

FEMA provides direct assistance in the form of temporary housing units to address disaster-related housing needs when all other forms of disaster assistance are unable to address the needs of displaced disaster survivors.  Direct Housing Assistance is provided as the option of last resort when there is a shortage of available affordable housing resources for individuals or households displaced as a result of the disaster, rendering financial assistance inadequate.

The most common forms of direct temporary housing units are manufactured homes, park models, and travel trailers.  Selection of disaster temporary housing units is based on many factors, but units provided to disaster survivors must meet or exceed all applicable construction, accessibility, and safety standards.  All units provided must comply with applicable State and local codes and ordinances, as well as Federal Environmental and Historic Preservation, Floodplain Management, and Protection of Wetlands regulations (See 44 C.F.R. 206.117 (b)(ii)(c)).

Depending on the magnitude and severity of the event, relocation of disaster survivors may be the most appropriate option.  Though most FEMA financial assistance is transportable (e.g., rental assistance can be used outside the impacted area if desired), FEMA may authorize additional relocation assistance in response to events requiring a large number of disaster survivors to relocate from the disaster-affected area.  In catastrophic events, it may be years before the infrastructure recovers to the extent necessary to sustain services and employment.  In chemical, biological, radiological, nuclear, or high-yield explosives events, relocation may be necessary for the health and welfare of disaster survivors.

Permanent Housing Programs

Several Federal agencies provide permanent housing assistance through grants, loans, and other programs targeting the re-establishment of individuals and households back into the community following a disaster.  As the Nation's leading housing authority, HUD offers a wide variety of housing and community programs, grants and loans to assist disaster survivors and local governments with their efforts to return to normalcy after a devastating disaster.

HUD addresses both the rebuilding of homes and communities through its management of the Community Development Block Grant (CDBG) program.  HUD's CDBG program funds local community development activities such as affordable housing, economic revitalization, public services, and infrastructure restoration.  CDBG Disaster Recovery grants have the capacity to fund a broader range of recovery activities than most other Federal programs, and thus may help communities and neighborhoods that might not otherwise recover due to limits on other resources.   These grants are intended for permanent housing and other community development and economic revitalization activities, but may not be available immediately after a disaster.

HUD's HOME Investment Partnership program provides formula grants to States and localities to fund a wide range of activities that build, buy, and/or rehabilitate affordable housing or provide direct rental assistance to persons of low and moderate income.  The objectives are to offer decent affordable housing to lower-income households, expand the capacity of non-profit housing providers, strengthen the ability of State and local governments to provide affordable housing, and leverage private-sector participation.  Much like CDBG funds, HUD may suspend a number of HOME regulatory requirements to facilitate the use of HOME funds for disaster recovery.

Through lenders approved by HUD's FHA, mortgages are insured for disaster survivors to rebuild substantially damaged or destroyed homes or to rehabilitate less damaged homes.  FHA also may provide homeownership opportunities through discounted home sales programs.  For homeowners facing foreclosure as a result of a disaster, there are FHA-approved options to help survivors retain their homes including special forbearance, mortgage modifications, partial FHA insurance claims, pre-foreclosure sale of property, and a deed-in-lieu of foreclosure.  Access to HUD-assisted housing counseling agencies is available through the HUD web site at www.hud.gov/offices/hsg/sfh/hcc/hcs.cfm.

SBA offers loans to homeowners or renters to repair or replace disaster damaged real estate or personal property owned by the disaster survivor.  Renters may be eligible for their personal property losses, including automobiles.  Physical Disaster Loans are loans to businesses to repair or replace disaster-damaged property owned by the business, including real estate, inventories, supplies, machinery and equipment.  Businesses of any size are eligible.  Private, non-profit organizations such as charities, churches, private universities, etc., are also eligible.  Economic Injury Disaster Loans (EIDL) are working capital loans to help small businesses, small agricultural cooperatives and most private, non-profit organizations of all sizes meet their ordinary and necessary financial obligations that cannot be met as a direct result of the disaster.  These loans are intended to provide assistance through the disaster recovery period.  EIDL assistance is available only to entities and their owners who cannot provide for their own recovery from non-government sources, as determined by SBA.

Individuals and households living in rural areas may benefit from grant and loan programs offered by the USDA.  These programs provide qualified applicants the opportunity to acquire, build, rehabilitate, improve, or relocate dwellings in rural areas.  Special programs are also offered for low-income individuals and households and owners of multi-family dwellings in rural areas.

The Federal income tax laws also contain a number of credits designed to provide a long-term financial incentive to increase the supply of low-income housing.  The Low-Income Housing Tax Credit Program (LIHTC), administered by the IRS and State tax credit allocation agencies, provides developers and investors with eligible affordable housing developments, and a dollar-for-dollar reduction in their Federal taxes.

The DHHS has two flexible block grant programs that can be used to assist disaster survivors with housing-related needs.  Programs can be used towards housing services that assist individuals or families in locating, obtaining, or retaining suitable housing, including traditional case management for the homeless, advice on securing rental assistance, or help with the process of becoming a homeowner.
Mitigation Programs

The reduction of risk from future events through well planned mitigation measures is a key element that can significantly lessen the loss of life and property due to natural disasters.  FEMA can contribute up to 20 percent of a Federally-declared disaster's cost to the affected State to prioritize mitigation programs with input from local communities (see 44 C.F.R. § 201.5).  Guidance is also available to homeowners and businesses on measures they can take to reduce potential damage to structures, equipment and personal property.

Hazard Mitigation Assistance (HMA) grants are available through FEMA for reducing the risk to individuals and property from natural hazards as well as reducing reliance on Federal disaster funds.  HMA is made up of five different grant programs, two of which allow for planning activities such as developing hazard mitigation plans, as well as a number of preemptive hazard reduction activities.  The Pre-Disaster Mitigation (PDM) program is designed to assist States, Territories, Tribal governments, and local communities to implement pre-disaster natural hazard mitigation measures to reduce overall risk to the population and structures.

The National Flood Insurance Program (NFIP) enables individuals to buy insurance for loss of buildings and/or personal property.  The NFIP makes Federally-backed flood insurance available to homeowners, renters, and business owners.  Flood insurance is designed to provide an alternative to disaster assistance by reducing the escalating costs of repairing the damage to buildings and their contents that is caused by floods or mudflows.  This program is proactive in nature as there is typically a 30-day waiting period from date of purchase before a new flood policy goes into effect.

It is not possible to precisely define each phase in the process of resolving the permanent housing needs of disaster survivors in the aftermath of major disasters.  Nor is it possible to precisely define when one phase of the process ends and the next begins, or to assign a specific timeline to the completion of one or all phases.  Some options or programs may span multiple phases.  The duration of the implementation of each housing option will depend on the housing needs of displaced individuals, the availability of housing, and the circumstances of the disaster.
Next Steps
Holistic Approach

While a crucial part of disaster recovery, housing is just one of many concerns the disaster survivor will have to address.  Disaster housing strategies must consider other factors that are important to the disaster survivor's ability to recover in a timely manner.  Identifying housing options that promote self-sufficiency, and linking survivors to job training and employment programs and health, behavioral health, and social services, are of vital importance.  Providing these and other critical resources for disaster survivors in areas far from their previous residence is a challenging task.  Without a detailed plan, dependence on governmental and nongovernmental assistance can be prolonged and delay the recovery of individuals and communities.

Annex 2 of the Strategy presents planners with both an operating framework and an array of governmental and non-governmental methods to provide an appropriate level of assistance to survivors of disasters and emergencies of all sizes and scopes.  Annex 2 presents planners with key considerations for determining adequate temporary housing, employment options for mass relocations, and also permanent housing options when relocating disaster survivors.  In addition, this Annex explores and considers methods for additional necessary services to support the overall recovery effort.  Refer to Annex 2 of the Strategy for additional information on how disaster housing programs can be incorporated into a holistic approach to recovery.
Identifying Innovations

The identification and sharing of innovative approaches for disaster housing assistance is important to build the capacity of States and the Nation.  The coordination and facilitation of these efforts will be most effective through a centralized entity on a national level.  Recognizing this, the NDHTF will act as a central national level repository and catalyst for the collection, evaluation, sharing and encouragement of innovative approaches to disaster housing assistance delivery.  It will consider innovations based on three overarching principles:
   * Innovative approaches should add value to the existing delivery process, assistance program or quality of the assistance (e.g., increasing timeliness, cost-effectiveness, the range of assistance).
   * Innovations should contribute to the long-term disaster recovery of the impacted households and communities.
   * Innovation for the sake of novelty will be avoided.  An approach that is merely new does not necessarily add value or represent an innovation.
The NDHTF will establish a process to collect, evaluate, share and stimulate innovative approaches to deliver disaster housing, through both active and passive means.  The Task Force has established an internet-based database, the National Disaster Recovery Program Database (NDRPD), where organizations and individuals can voluntarily submit their approaches.  It can be accessed through the National Disaster Housing Resource Center website alongside all NDHTF documents at www.fema.gov/emergency/disasterhousing.  The Task Force will also actively reach out and conduct research for innovations from partners, subject matter experts, State, Tribal and local organizations, and others involved with disaster housing through email communications, notices in professional journals, and participation in conferences and advertising in trade magazines.  The research component will also rely on internet-based searches, after action reports, and emails with experts within the public and private sectors identified through partnerships.  The NDHTF will also leverage the research and development work on alternative disaster units and programs carried out by the Joint Housing Solutions Group, the FEMA Alternative Housing Pilot Program (AHPP), and HUD-funded programs used in disaster recovery, as well as those by other organizations and programs.

The NDHTF staff will conduct an initial review to evaluate innovative approaches for their applicability and usefulness, after the information on a particular innovative approach has been collected.  Staff members will identify key characteristics of the approach using an NDHTF developed template and attempt to determine if the approach meets the three overarching principles cited above.

The NDHTF will facilitate the distribution of information via the collection and review of innovations and best practices in a compendium.  This compendium of innovative disaster housing approaches will be made accessible and more user-friendly via a web-accessible repository and a dedicated group of technical staff that can support disaster housing practitioners' usage.  The NDHTF will continue to foster new ideas and facilitate constructive dialogue by sharing online targeted issues or shortcomings that have been determined by the evaluation panel and NDHTF leadership as significant and urgent.

NDHTF Action Items

This CONOPS focuses on the actions of those Federal government agencies that make up the Task Force.  The NDHTF has as a priority a national disaster housing effort that engages all partners to better meet the needs of disaster survivors.  The NDHTF will continue to seek to expand the dialogue with all those involved in this effort, holding forums to both exchange ideas and to educate the public and decision makers on disaster housing planning.

The NDHTF will coordinate with the FEMA Regional Offices to provide assistance to States in creating State-specific Disaster Housing Strategies.  These strategies foster the development of operational plans for disaster housing across all jurisdictions.  The NDHTF is collaborating with FEMA's National Preparedness Directorate to offer grants and training to States to establish task forces and prepare disaster housing strategies prior to an event so these can be quickly implemented in a disaster.

The NDHTF will emphasize the importance of integrating disaster housing capabilities into the standard response and recovery operations.  It will continue to evaluate the ability of current housing options and practices in order to best meet the housing, community and environmental needs of disaster survivors.  A review of regulatory and statutory authorities will determine if existing operational frameworks combined are adequate to fulfill the requirements of the National Disaster Housing Strategy, and whether additional authorities are necessary, such as for State-managed, Federally supported interim housing programs.

The NDHTF will further coordinate with other Federal agencies, States, Tribal governments, local governments, private non-profits and private for-profits to determine the necessary capabilities necessary to implement a scalable disaster housing strategy.  With our stakeholders we will research, develop, and employ assessment tools to provide a common scheme for measuring preparedness and resiliency in the area of disaster housing.  Among these tools will be after-action reports that detail the performance of disaster housing operations so improvements can be proposed to better provide resources in the future.  By studying lessons learned and collecting best practices, we can work together to identify gaps in current policies and practices that prevent full implementation of existing options, and develop additional innovative housing options, techniques, and strategies.  The NDHTF will serve as a resource and provide guidance to determine when alternative approaches are required, especially in the event of a catastrophic disaster.  The Task Force will continue to strive to implement, coordinate, or monitor disaster housing strategies to ensure that the housing needs of displaced individuals are effectively met in future disasters.

Annexes
Definitions

Access:  The term "access" means the ability to fully use and enjoy the benefits of any programs, services, activities, goods, facilities, privileges, advantages, or accommodations provided by a public or private (for-profit or not-for-profit) entity, or to any entity to which it contracts, which provides emergency services, including, but not limited to:
               * preparation
               * notification
               * evacuation and transportation
               * sheltering
               * first aid and medical services
               * temporary lodging and housing
               * transition back to the community
               * clean up
for individuals with disabilities as defined by the ADA Amendments Act of 2008, P.L. 110-325, and those associated with them.  Access may include modifications to programs, policies, procedures, architecture, equipment, services, supplies, and communication methods.

Access and Functional Needs:  The term "access and functional needs" means those actions, services, accommodations, and programmatic, architectural, and communication modifications that a covered entity must undertake or provide to afford individuals with disabilities a full and equal opportunity to use and enjoy programs, services, activities, goods, facilities, privileges, advantages, and accommodations in the most integrated setting, in light of the exigent circumstances of the emergency and the legal obligation to undertake advance planning and prepare to meet the disability-related needs of individuals who have disabilities as defined by the ADA Amendments Act of 2008, P.L. 110-325, and those associated with them.  Access and functional needs may include modifications to programs, policies, procedures, architecture, equipment, services, supplies, and communication methods.  Examples of "access and functional needs" services may include a reasonable modification of a policy, practice, or procedure or the provision of auxiliary aids and services to achieve effective communication, such as, among many others: (1) an exception for service and emotional support animals in an emergency shelter where there is a no-pets policy; (2) the provision of way-finding assistance to someone who is visually impaired to orient to new surroundings; (3) the provision of transferring and toileting assistance to an individual with a mobility disability; and (4) the provision of an interpreter to someone who is deaf and seeks to fill out paperwork for public benefits.

Individuals with "access and functional needs" are children and adults who may have physical, sensory, mental health, cognitive and/or intellectual disabilities affecting their ability to function independently without assistance.  Others who may have access and functional needs include women in late stages of pregnancy, elders and those needing bariatric equipment or communications assistance.

Behavioral health: A term that is inclusive of emotional, mental health, addictions, and substance use/abuse concerns.

Direct Housing Assistance:  Temporary housing units, acquired by purchase or lease, provided directly to individuals or households who, because of a lack of available housing resources, would be unable to make use of temporary housing financial assistance.

Disability/ Individual with a Disability:  The term "individual with a disability" refers to "a person who has a physical or mental impairment that substantially limits one or more major life activities, a person who has a history or record of such impairment, or a person who is regarded by others as having such an impairment."  This definition was established by the Americans with Disabilities Act (ADA).  The term "disability" has the same meaning as that used in the ADA Amendments Act of 2008, P.L. 110-325, as incorporated into the ADA. See www.ada.gov for the definition and specific changes to the text of the ADA.  State laws and local ordinances may also include individuals outside the Federal definition.
Disaster Case Management (DCM): The Federally funded DCM program may be deployed following an event that has been declared a Major Disaster by the President, where Individual Assistance (IA) has been authorized, and the State's request for Disaster Case Management has been approved by FEMA, to provide disaster case management assistance to disaster survivors.

DCM is a two phase process.  The State has the option of choosing Phase One, Phase Two, or both.  Phase One is the rapid deployment of the Administration for Children and Families (ACF) program which consists of a National and Regional Team that begins assessing and organizing DCM within 72 hours of notification and for the duration of  (30) thirty to one-hundred-eighty (180) days (depending on State capability).  ACF will assists with transition of DCM to existing State resources or the FEMA funded State DCM program.

Phase Two is the longer term state run program that is administered by FEMA in which grant funding is be given to the designated State agency and the State has fiscal and programmatic oversight responsibilities.  Both phases include local DCM providers working with disaster survivors in a comprehensive, holistic manner.  Case managers are trained to assist the impacted household in the development of a long term Recovery Plan which includes an assessment of needs, identification of recovery goals and formation of the a plan to achieve those goals.  Case managers can help support survivors in meeting recovery goals through information, referral, and/or advocacy, when needed.

Disaster Housing Assistance Program (DHAP):  A Federal disaster housing assistance pilot program funded by FEMA whereby HUD's PHAs implement and administer a form of rental assistance directly to a landlord, including security and utility deposits, lease termination payments and DHAP service connector services pursuant to a Presidential declaration of a major disaster under the Stafford Act where Individual Assistance programs have been authorized.  HUD administers this program on behalf of FEMA.  The FEMA Assistant Administrator for the Recovery Directorate will determine when the scope of the disaster requires leveraging the PHAs to help applicants meet their permanent housing needs.

Disaster Housing Assistance Program (DHAP) Service Connectors:  DHAP service connectors are Public Housing Authority Service Connectors that focus on service connections for families related to housing self-sufficiency goals.  Because DHAP is a temporary program, DHAP service connectors work with families on an exit strategy from DHAP assistance to permanent housing.  DHAP service connectors establish a needs assessment for each family, an Individual Development Plan (IDP) with service connections related to needs and IDP goals, with non-disaster funded housing being the ultimate goal.  DHAP service connectors monitor progress across IDPs, ensure compliance with the DHAP service connectors requirement, serve as the primary liaison between the PHA and other social services providers assisting the family, collect and report data to HUD on the family across needs assessments, IDPs, and service connections.  DHAP service connectors also ensure that families are referred to FEMA supported case management providers for post disaster assistance that require specialized case management, if applicable.

Essential Services:  Services necessary to a basic standard of living and the general welfare of society.  Services may include any of the following: electricity services, gas services, water and sewerage services, schools, child care etc.

Household Composition:  Household composition is all persons (adults and children) who lived in the pre-disaster residence, as well as any persons, such as infants, spouse, or part-time residents who were not present at the time of the disaster, but who are expected to return during the assistance period.

Household Pet:  A domesticated animal, such as a dog, cat, bird, rabbit, rodent, or turtle that is traditionally kept in the home for pleasure rather than for commercial purposes, can travel in commercial carriers, and be housed in temporary facilities.  Household pets do not include reptiles (except turtles), amphibians, fish, insects/arachnids, farm animals (including horses), and animals kept for racing purposes.  (FEMA DAP9523.19)

Housing Continuum: The full timeline of disaster housing from sheltering to permanent housing.

Inter-Agency Agreement (IAA):  A written agreement entered into pursuant to 31 U.S.C.  1535 between two Federal Agencies, or major organizational units within an agency, which specifies the goods to be furnished or tasks to be accomplished by one agency (the servicing agency) in support of the other (the requesting agency).

Interim Housing:  Safe and secure temporary housing that meets the physical accessibility needs of the household and includes essential utilities, access to areas for food preparation, and bath facilities in a context that allows a family to live together with a reasonable amount of privacy for a period generally up to 18 months.

Low Income:  Federal agencies and programs may -- within the boundaries set by Federal law -- establish their own guidelines for defining low-income populations.  For the purposes of this document, low-income populations are defined as such by the agencies determining program eligibility:
   *    HUD:  HUD defines a low-income household as a household whose total income does not exceed 80 percent of the median income for the area, as determined by HUD, with adjustments for smaller and larger families, except that HUD may establish income ceilings higher or lower than 80 percent of the median for the area on the basis of HUD's findings that such variations are necessary because of prevailing levels of construction costs or fair market rents, or unusually high or low family incomes.  HUD income limits are updated annually and are available from local HUD offices for the appropriate jurisdictions.
   *    DHHS:  The Department of Health and Human Services (DHHS) does not define "low-income," but it issues poverty guidelines in the Federal Register each year for use in determining eligibility for certain of its means-tested programs.  These guidelines simplify poverty thresholds issued by the Census Bureau for use for administrative purposes such as determining financial eligibility for certain Federal programs.  For example, the 2008 DHHS poverty guidelines indicate that the poverty level for a family of four in the 48 contiguous States and the District of Columbia was $21,200.
Long Term Housing:  Safe, sanitary, and secure housing that can be sustained without continued disaster-related assistance.