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Unit Three: Overview of Federal Disaster Assistance
Unit Three
Overview of Federal
Disaster Assistance
ederal assistance is available to
supplement the resources of
State, local, and voluntary
agencies in major disasters.
Some forms of Federal
assistance could be available without a
Presidential declaration. Others would
become available only following a
declaration by the President at the request
of the State’s Governor. FEMA uses the
Federal Response Plan (FRP) to
coordinate the government response to
disasters or emergencies. The FRP
describes the mechanisms by which the
F
In this unit, you will learn about:
X The role of the Federal government in disaster
assistance
X Types of Federal assistance available in disasters
through the Federal Response Plan (FRP).
X The disaster response and recovery cycle.
X Eligibility criteria for major types of assistance.
X The purpose and function of an Emergency
Response Team.
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A CITIZEN’S GUIDE TO DISASTER ASSISTANCE
Federal government mobilizes resources and conducts activities to augment State and local
response efforts.
THE ROLE OF THE FEDERAL GOVERNMENT IN
DISASTER ASSISTANCE
To understand the role of the Federal government in disaster relief, it is worthwhile to briefly
review the history of its involvement.
During the period from 1803 to 1950, Congress passed 128 separate laws dealing with
disaster relief. Because there was no comprehensive legislation covering disaster relief,
Congress had to pass a separate law to provide Federal funds for each major disaster that
occurred. The system was a cumbersome one.
In 1950, Congress passed the Federal Disaster Relief Act (Public Law 81-875), authorizing
the President to provide supplementary Federal assistance when a Governor requested help
and the President approved the request by declaring a major disaster.
A critical statement in the act established the philosophy of the nation’s disaster response and
recovery program. Federal disaster assistance would “supplement the efforts and available
resources of the State and local governments.” In other words, the act made it clear that the
Federal government would not function as the first-line provider of emergency assistance and
disaster response and recovery. It would support State and local governments—not supplant
them. To further underline this philosophy, the act required that Federal assistance be
supplied when, and only when, State and local governments had themselves committed “a
reasonable amount of the funds” needed.
In 1968, the Federal government took another step aimed at benefiting communities; but
again, it was linked to steps that had to be taken by communities. This was the year that the
National Flood Insurance Act was signed into law. Community participation requires
adoption and enforcement of prudent, flood-resistant construction techniques for all new,
substantially improved, and substantially damaged structures located within identified
floodplain areas. The Act gave individuals and communities a way to reduce their reliance on
the Federal government and take personal responsibility for their own recovery.
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Unit Three: Overview of Federal Disaster Assistance
When Hurricane Agnes swept through the eastern part of the United States in 1972, it caused
unprecedented levels of damage. The effects of this hurricane led the Federal government to
reexamine existing legislation and address weaknesses, particularly in the area of assistance
to individuals. The hurricane was the most costly natural disaster that had occurred to date in
the country. It caused disastrous floods and flash floods almost simultaneously over the
eastern seaboard—a feat unique in the country’s abundant experience of natural disasters.
One result of the disaster was that it motivated Congress to strengthen certain provisions of
the National Flood Insurance Act. Among other changes, the Act was revised to require
Federally insured lending institutions to require flood insurance on new loans for homes and
other property in designated floodplains (areas vulnerable to flooding).
A second major disaster in 1974 again spurred the Federal government to action. On
“Terrible Tuesday”—April 3—tornadoes struck across 10 states, resulting in six Federal
disaster declarations. As a result, the Federal government passed the Disaster Relief Act of
1974, which consolidated many changes that had been initiated in the period following
Hurricane Agnes.
During President Carter’s administration (1976-1980), the Federal government undertook an
extensive evaluation of its disaster response and recovery programs to determine which of
them could be combined to increase efficiency and save money. The Federal Emergency
Management Agency (FEMA) was created in 1979, combining under its roof a number of
emergency management programs that had been administered by different agencies.
The first disaster to be funded on a cost-sharing basis—75 percent Federal and 25 percent
non-Federal—was the 1980 eruption of Mount St. Helens, which deposited a blanket of ash
throughout Washington State and in other parts of the West. In 1988, the Robert T. Stafford
Disaster Relief and Emergency Assistance Act (Public Law 93-288, as amended) legislated
cost-sharing requirements for public assistance programs. It also provided funds for states and
local governments to manage public assistance projects, encouraged hazard mitigation
through a new grant program, and gave the Federal government the authority to provide
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A CITIZEN’S GUIDE TO DISASTER ASSISTANCE
assistance for disasters regardless of cause. Cost-sharing requirements continue to be a
cornerstone of Federal disaster assistance policy.
AUTHORITY FOR DISASTER ASSISTANCE
Today, the Robert T. Stafford Act gives the Federal government its authority to provide
response and recovery assistance in a major disaster. The Stafford Act identifies and defines
the types of occurrences and conditions under which disaster assistance may be provided.
Under the law, the declaration process remains a flexible tool for providing relief where it is
needed.
The Federal Response Plan (FRP), created in 1992, describes how the Federal government
will mobilize Federal resources and conduct activities to assist State and local governments in
responding to disasters. The Plan relies on the personnel, equipment, and technical expertise
of 27 Federal agencies and departments, including the American Red Cross, in the delivery of
supplemental assistance. FEMA is responsible for the Plan’s overall coordination.
The Department of Homeland Security (DHS) Act of 2002 (Public Law 107-296) transferred
FEMA and a number of other Executive Branch components and functions to the new
Department. Subsequently, the Interim FRP dated January, 2003, was published to reflect the
provisions of the law impacting the FRP.
Of course, the State does not always request Federal assistance. A great many disasters are
handled successfully at the State and local levels with the assistance of voluntary agencies
and private agencies. Although the exact number of disasters successfully handled without
requests for Federal assistance is not known, it is estimated at 3,500 to 3,700 annually.
A Presidential disaster declaration is the result of a legal process involving specific steps and
actions taken by local, State, and Federal governments. These steps are depicted in the
graphic on page 3-8, which shows an overview of the declaration process.
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Unit Three: Overview of Federal Disaster Assistance
In the flood scenario presented at the beginning of this course, local officials declared a State
of Emergency, acting in accordance with the local emergency operations plan. As the flood
waters rose and spread and essential buildings suffered major damage, local officials
determined that they did not have adequate resources to respond effectively to a flood of this
size and asked the State for assistance. To support their request, local officials described the
extent and types of damage caused by the flood. They asked for specific kinds of assistance,
including help in evacuating persons from affected areas and in keeping people from
entering unsafe highways or other restricted areas.
Typically, when a disaster as
serious as that in the scenario
occurs, it is apparent from an early
stage that not only State but also
Federal assistance may be needed.
State and FEMA officials would
continually monitor the progress of
the incident. Under the FRP, the
Federal governments is prepared to
provide supplemental assistance to
State and local government in 12
major areas known as emergency
support functions, or ESFs. Each
ESF is assigned to a primary agency, supported by as many as 17 other support agencies
with similar missions and responsibilities. These include the following:
ESF# 1 Transportation
2 Communications
3 Public Works and Engineering
4 Firefighting
5 Information and Planning
6 Mass Care
7 Resource Support
8 Health and Medical Services
9 Urban Search and Rescue
10 Hazardous Materials
11 Food
12 Energy
Most emergencies are handled at the local level, without assistance
from the State or the Federal government. Only a small number
result in a re
q
uest
f
or Federal assistance.
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A CITIZEN’S GUIDE TO DISASTER ASSISTANCE
In some instances, Federal personnel
representing some or all the ESFs may be
activated even before a disaster occurs. The
advance element of the Emergency Response
Team, called the ERT-A, is headed by a
FEMA team leader and is composed of
FEMA program support staff and ESF
representatives. In predictable disasters, such
as hurricanes, ERT-A teams may be sent into
the area before the storm strikes to set up
emergency communications equipment and
help coordinate early response efforts. An important role of the ERT-A is to obtain
information on the impact of the event and identify the types of short and long-term
assistance that may be needed.
When a major disaster occurs (or before, for predictable events), the Regional Support Team
(RST) staff is activated to the ROC by the Regional Director of the FEMA regional office.
The RST staff is the initial coordination organization for Federal activity. Other elements of
the initial Federal response may include the Emergency Support Team (EST) and the
Emergency Response Team (ERT).
The ERT is the Federal interagency team which is activated following a Presidential disaster
or emergency declaration. The ERT coordinates the overall Federal response and recovery
activities and provides assistance and support to the affected State and local governments.
The ERT is headed by a Federal Coordinating Officer (FCO) and operates from a Disaster
Field Office (DFO). The size and composition of the ERT can range from one that includes
only FEMA regional staff, to an interagency team with representation from ESF primary and
support agencies.
The EST is an interagency group that operates from the National Interagency Emergency
Operations Center (NIEOC) located at FEMA Headquarters. Its role is to coordinate and
support the Federal response by serving as an information source and by helping access and
coordinate needed resources.
Meanwhile, local and State responders are fully committed as they attempt to respond to a
major disaster. Local first responders work closely with voluntary agencies; the Mayor or
County Executive activates the local EOC. Upon a request from the local executives, the
TERM TO REMEMBER
Emergency Support Function
(ESF)
One of the 12 areas in which the
Federal government is organized
to provide support to State and
local responders in a disaster.
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Unit Three: Overview of Federal Disaster Assistance
Governor activates the State EOC, declares a
State emergency or disaster, and activates the
State Emergency Operations Plan.
If early damage reports lead the State to
conclude that effective response may exceed
both the State’s resources and those of the
community, the State can request that FEMA
regional officials join them in conducting joint
preliminary damage assessments—known as
PDAs—in areas designated by the State
officials. FEMA has 10 regional offices, each
responsible for specified states. Appendix A
(page A-1) shows the FEMA regional structure.
The data gathered in these joint assessments are used for several important purposes in the
Presidential disaster declaration process:
X Determine the impact and magnitude of damage incurred.
X Determine resulting unmet needs of individuals, families, and businesses, as well as the
impact to public property.
X Document that the disaster is beyond local and State capabilities and support the
Governor’s request for Federal assistance.
X Provide the basis for FEMA’s recommendation to the President.
X Determine the types of assistance needed and the areas where assistance should be
offered.
X Determine the extent of the Federal government’s commitment (including staff,
equipment, and funding).
X Provide essential management information to State and Federal disaster officials.
TERM TO REMEMBER
Preliminary Damage
Assessment (PDA)
The joint local, State, and Federal
analysis of damage that has occurred as
a result of an incident, and that may
result in a Presidential declaration of
disaster. The PDA is documented
through surveys, photographs, and other
written information.
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A CITIZEN’S GUIDE TO DISASTER ASSISTANCE
The Presidential disaster declaration process begins with a request from the Governor of the
affected State; the response is ultimately determined by the President.
Federal Emergency Response
Team (Advance Element)
State Preparedness Activities
Initial Federal Response Initial State and Local Response
Joint Preliminary Damage
Assessment (PDA)
Governor reviews PDA data
Governor requests a
Presidential Declaration
FEMA Regional Director makes
Recommendation to FEMA
Directo
r
President decides to declare
disaster; appoints Federal
Coordinating Officer (FCO)
Disaster Field Office (DFO)
established jointly by Federal and
State COs
FEMA/State Agreement signed
State-Federal Meeting
Incident
Occurs
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Unit Three: Overview of Federal Disaster Assistance
The amount of information collected may vary. In general, the larger and more severe the
disaster, the less information is needed initially to support the request. A smaller or less
obvious situation requires a greater amount of information to verify that Federal assistance is
needed. An aerial survey conducted by FEMA and State officials might be enough to
demonstrate the need for Federal help, although damage assessments would continue after the
declaration to help manage response and recovery measures.
After the PDA teams have documented the damage that has occurred and assessed its impact
on the community, the Governor will determine whether or not to request Federal disaster
assistance. In order to make the request, the State must have implemented its State
Emergency Operations Plan. The request must include specific information required by law,
including the nature and amount of local and State resources that have been or will be
committed to disaster-related work. The request must also guarantee that the cost-sharing
provisions of the Stafford Act will be met. FEMA regulations generally require that the
request be submitted within 30 days of the incident, but a waiver may be granted at the
Governor’s request provided it is made within the 30-day period.
PDA data forms the basis for immediate funding for emergency work under the Public
Assistance Program in communities hit hardest by a disaster. This immediate needs
funding
—up to 50% of the Federal share of PDA estimates for emergency work—provides
funds for applicants to continue emergency protective measures and debris removal without
the burden of extensive documentation and review during the peak of crisis operations.
Basic disaster assistance from the Federal government falls into three categories: assistance
for individuals and businesses, public assistance, and hazard mitigation assistance.
A Governor’s request may seek any or all of these. However, hazard mitigation assistance is
implemented only if one of the other categories is designated available. Mitigation assistance
can be used throughout the affected State, though, rather than just in the declared counties.
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A CITIZEN’S GUIDE TO DISASTER ASSISTANCE
X Assistance for individuals and businesses includes assistance available to individuals,
families, and businesses; it can include disaster housing, unemployment assistance,
individual and family grants, legal services, crisis counseling, tax relief, and
agricultural assistance. Small businesses may apply for low-interest loans for repairs.
X Public Assistance refers to programs that provide funding assistance and technical
expertise to aid State and local governments and certain facilities of private, nonprofit
organizations. Primarily, Public Assistance refers to funds for repairing or replacing
essential public systems and facilities.
X Hazard mitigation
assistance provides Federal
aid in support of measures
that will permanently
eliminate or reduce an area’s
long-term vulnerability to the
loss of human life and
property from a particular
hazard.
A Governor’s request for Federal aid is addressed to the President and forwarded to the
appropriate FEMA Regional Director. This person evaluates the on-scene damage
assessment information and the requirements for supplemental assistance and forwards a
recommendation to the FEMA Director in Washington, D.C. for review. The FEMA
Director’s recommendation is then forwarded to the President.
In developing a recommendation, FEMA considers several factors:
X The amount and type of damage.
X The impact of losses on individuals, businesses, local governments, and the State.
X Available resources of State and local governments and voluntary agencies.
Federal Assistance in Presidentially Declared Disasters
A
ssistance for Individuals
and Businesses
Public
Assistance
Hazard Mitigation
Assistance
Basic disaster assistance from the Federal government falls into three major
categories
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Unit Three: Overview of Federal Disaster Assistance
X The extent and type of insurance in effect to cover losses.
X Assistance available from other Federal agencies without a Presidential declaration.
X Imminent threats to life and safety.
X The recent disaster history in the State.
X Other factors pertinent to a particular incident.
WHEN A DISASTER IS DECLARED
When the President determines that a State requires supplemental Federal assistance, a formal
disaster declaration is made. The Governor, members of Congress from the affected area,
affected Federal departments and agencies, and the media all receive notice of the
declaration.
After the President declares a major disaster, FEMA prepares a document called the FEMA-
State Agreement. This agreement describes the period of the incident (or disaster), the types
of assistance to be provided, the areas eligible for assistance, the agreed-upon cost-share
provisions, and other terms and conditions.
Both FEMA and the State commit to
the terms and conditions of the
document. It may be amended if the
situation changes; for example,
additional counties may be included in
the declaration, or an end date for the
disaster may be specified.
TERM TO REMEMBER
FEMA-State Agreement
A formal, legal document between
FEMA and the affected State that
describes the understandings,
commitments, and binding conditions for
assistance applicable as the result of
the major disaster or emergency
declared by the President. It is signed
by the FEMA Regional Director and the
Governor.
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A CITIZEN’S GUIDE TO DISASTER ASSISTANCE
FEMA’s Role in
Managing Disasters
Once a major disaster declaration has been made, the FEMA Director, under the
authority of the President, will appoint a Federal Coordinating Officer (FCO). The
FCO is responsible for coordinating the overall disaster response and recovery
effort—including local, State, and Federal resources—to ensure that an adequate
quality and quantity of disaster assistance is provided. The FCO also works in
cooperation with voluntary agencies (such as the American Red Cross or Salvation
Army) to avoid duplication of effort and ensure priority needs are efficiently met.
Throughout the Federal disaster response and recovery operation, the FCO serves as
the President’s representative. The FCO’s immediate concern after a major disaster
declaration is to make an initial appraisal
of the types of relief most urgently
needed. The FCO coordinates all Federal
disaster assistance programs to ensure
maximum effectiveness, and takes
appropriate action to help the community
obtain the assistance needed.
A Disaster Field Office (DFO) is
established in the disaster area for State
and Federal staff. The office serves as the
focal point for directing and coordinating
the many different types of disaster
operations underway and for maintaining
the network among the many
participating agencies. Here, the
Emergency Response Team (ERT) is
stationed to carry out the Federal role in
providing the disaster assistance required.
The DFO is not intended to receive the
public; separate facilities are established
for this function.
TERM TO REMEMBER
Federal Coordinating Officer
(FCO)
The person appointed by the FEMA
Director (by delegation of authority from
the President) to coordinate a
Presidentially declared disaster.
TERM TO REMEMBER
Disaster Field Office (DFO)
The office where Federal (and other
State) disaster relief and recovery efforts
are coordinated. It is staffed by the
Emergency Response Team (ERT)
composed of representatives of
responding agencies.
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Unit Three: Overview of Federal Disaster Assistance
At the State level, the State
Coordinating Officer (SCO) has
roles and responsibilities similar
to those of the FCO. The SCO
coordinates State and local
assistance efforts with those at the
Federal level. The SCO is the
principal point of contact for State
and local response and recovery
activities and oversees
implementation of the State
emergency plan.
The Federal, State, private, and voluntary agency response team relationship is established
and fostered at an initial meeting held as soon as possible after the President’s declaration.
All Federal, State, and voluntary agencies that can provide some form of disaster assistance
are invited to be represented at this meeting. Initial relief coordination procedures are
established, especially the details of setting up and staffing sites where disaster victims can
apply for assistance. The FCO and SCO conduct subsequent coordination meetings as often
as needed to establish priorities and objectives, identify problems, and document
achievements.
TYPES OF FEDERAL ASSISTANCE AVAILABLE IN
DISASTERS
The following section reviews some of the types of Federal disaster assistance that may be
available in each of three categories: assistance for individuals and businesses, public
assistance, and hazard mitigation assistance. General procedures for accessing this
assistance will be discussed in the next unit.
TERM TO REMEMBER
State Coordinating Officer
(SCO)
The individual appointed by the
Governor to act in cooperation with
the Federal Coordinating Officer
(FCO) to administer disaster
response and recovery efforts.
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A CITIZEN’S GUIDE TO DISASTER ASSISTANCE
Assistance for Individuals and Businesses
In many disasters, individuals, families, and small businesses suffer the most devastating
damage. The following Federal programs could be made available to assist them.
Providing Food to
Affected Individuals
and Families
The Food and Nutrition Service is an
agency within the U.S. Department of
Agriculture (USDA) that oversees two
major disaster assistance programs: food
coupons and food commodities.
Assistance in purchasing food is available
through the Disaster Food Stamp Program.
After national-level approval by the Food
and Nutrition Service of the USDA, the
responsible State and/or local social
services agency would provide disaster
food stamps to eligible households, who
would apply through the local social
services office.
The Secretary of Agriculture has the authority to donate surplus commodities for the mass
feeding of disaster victims. Eligible applicants are public or voluntary agencies or households
on Indian reservations served by the Needy Families program. Individuals may receive food
assistance through the American Red Cross, Salvation Army, Second Harvest Food Bank
Network, Southern Baptists, and other organizations providing mass care.
Many volunteer agencies are able to help prepare
and distribute food to disaster victims. The
Secretary of Agriculture can assist by donating
surplus commodities.
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Unit Three: Overview of Federal Disaster Assistance
Disaster Housing Assistance
The Federal government can make
funds available to restore homes to a
safe, sanitary, and functional
condition. Homeowners must prove
they owned and occupied the home at
the time of the damage and that
damage was disaster-related. The
Disaster Housing Program can
provide funds to be used in renting a
place to live. Renters must prove that
they lived in the disaster damaged
house. Homeowners or renters who
can prove they suffered financial
hardship as a result of the disaster and
cannot pay their rent or mortgage may
also qualify for financial help to make
those payments.
Disaster Loans for Individuals and Businesses
Disaster victims whose property is damaged or destroyed by a disaster may be able to receive
a loan from the Federal government to help with repairs. Even without a Presidential
declaration of disaster, the Small Business Administration (SBA) may provide disaster
assistance in the form of low interest loans to qualified individuals and businesses. To receive
an SBA loan, applicants must demonstrate their ability to repay the loan. Disaster loans may
be made available to homeowners to repair or replace homes or personal property. Renters
also may be eligible for loans to repair or replace personal property damaged by the disaster.
Businesses may receive SBA physical loss disaster loans intended to repair disaster-related
damage to property owned by the businesses, including inventory and supplies. Economic
injury disaster loans provide working capital to small businesses and to small agriculture
cooperatives to assist them through the disaster recovery period. These are available only if
the business or its owners cannot obtain this type of assistance from non-government sources.
Business may be eligible for physical loss disaster loans
intended to repair disaster-related damage to property
⎯
Including inventory and supplies
⎯
owned by the business.
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A CITIZEN’S GUIDE TO DISASTER ASSISTANCE
Homeowners who live in areas devastated by disaster may be eligible for special loans from
the Farm Service Agency (FSA), an agency of the U.S. Department of Agriculture. These
loans can be used to restore or replace essential property, and are available to established
family farm operators who are unable to receive credit from commercial sources. Real
estate (homes) may be eligible. Those seeking additional information or wishing to apply for
assistance should contact their local FSA county office.
Individuals and
Households Program
The two types of assistance available
under the Individuals and
Households Program are:
X Housing Assistance (HA)
X Other Needs Assistance (ONA)
Housing Assistance
The Federal government can make funds available to homeowners and renters for one or more
of the following types of housing assistance:
X Rental Assistance
X Repair Assistance
X Replacement Assistance
X Permanent Housing Construction
Homeowners must prove they owned and occupied the home at the time of the disaster and that
the damage was disaster related. Renters must prove that they lived in the disaster-damaged house
at the time of the disaster.
Funds from the Individuals and Households
Program could be used to remove debris that
threatens to harm a residence.
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Unit Three: Overview of Federal Disaster Assistance
Housing Assistance provided under IHP can be financial or direct. Financial Assistance is
provided through grant funds and the amount varies with the type of assistance provided:
X Repair Assistance⎯up to $5,000.00 (CPI adjusted annually)
X Replacement Assistance⎯up to $10,000.00 (CPI adjusted annually)
X Permanent Housing Construction⎯mobile home or travel trailer. Assistance provided
directly has no dollar limit, financial assistance is limited to the program maximum of
$25,000.00 (CPI adjusted annually)
X Rental Assistance⎯up to the program limit of $25,000.00 (CPI adjusted annually) or 18
months of assistance, whichever comes first.
Housing assistance under IHP is not SBA dependent.
Other Needs Assistance
Other Needs Assistance is a FEMA/State cooperative venture that assists disaster victims
with disaster-related serious needs and necessary expenses who have no other source of
government, private, or insurance assistance available. Assistance is provided for various
personal property losses when the applicant has been denied by SBA for a disaster assistance
loan or provided a loan insufficient to cover the disaster-related losses. Covered items are:
X Household items, furnishings, and appliances.
X Clothing.
X Tools or specialized clothing and equipment required by an employer.
X Moving and storage of personal items to prevent further damage.
X Privately owned vehicles.
X Flood insurance coverage for a 3-year period.
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A CITIZEN’S GUIDE TO DISASTER ASSISTANCE
Assistance that may be available under the ONA provisions that are not SBA dependent is:
X Public transportation or other transportation needs.
X Medical, dental, and funeral expenses.
X Other eligible miscellaneous expenses (e.g. generator, wet/dry vac, etc.)
Assistance for Farmers and Ranchers
Agencies of the U.S. Department of Agriculture can give assistance to farmers and ranchers
even without a major disaster declaration by the President. The Farm Service Agency (FSA)
Emergency Conservation Program (ECP) helps fund repair of fencing, debris removal, or
restoration of damaged land by grading and shaping. During a drought, ECP also provides
emergency water assistance, both for livestock and for existing irrigation systems for
orchards and vineyards.
The FSA can provide financial assistance to eligible producers affected by natural disasters.
The Noninsured Crop Disaster Assistance Program (NAP) covers noninsurable crop losses
and planning prevented by disasters.
The FSA also can make emergency
management (EM) loans in counties
(or parishes) included in a Presidential
disaster declaration or by the
Secretary of Agriculture as a disaster
area or quarantine area.
The Farm Service Agency can provide emergency loans when a
natural disaster severely impacts a farming, ranching, or
aquaculture operation.
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Unit Three: Overview of Federal Disaster Assistance
EM loans may be made to farmers and ranchers who:
X own or operate land in a designated disaster area
X are established family farm operators with sufficient farming and ranching experience
X are citizens or permanent residents of the U.S.
X have suffered at least a 30% loss in crop production or a physical loss to livestock and
livestock products, real estate, or chattel property
X have an acceptable credit history
X are unable to receive credit from commercial sources
X can provide collateral to secure the loan, and
X have repayment ability.
Disaster Unemployment Assistance
In a disaster such as the flood in Centerville, many businesses may temporarily cease to
operate, and unemployment may be high. The Disaster Unemployment Assistance (DUA)
program provides unemployment benefits and reemployment services to individuals who
have become unemployed because of major disasters and who are not eligible for other
unemployment compensation programs. The Department of Labor is authorized to
administer the program, for which FEMA is responsible, under the Stafford Act. All
unemployed individuals must register with the State’s employment services office before
they can receive DUA benefits.
Internal Revenue Service (IRS)
The IRS provides counseling on how to prepare or amend returns to include casualty loss
deductions. Certain casualty losses may be deducted on Federal income tax returns through
an immediate amendment to the previous year’s return.
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A CITIZEN’S GUIDE TO DISASTER ASSISTANCE
Legal Services
Low-income individuals who need legal assistance due to a disaster may be eligible for free
legal consultation and services. This type of assistance may be provided by the Young
Lawyers Division of the American Bar Association, the State Bar Association, or the State’s
Attorney, and coordinated through the FEMA Regional Director or the Federal Coordinating
Officer. Assistance may include: insurance claims, lost legal documents, powers of attorney,
and home repair contracts.
Social Security Benefits
The Social Security Administration (SSA) does not offer special disaster benefits. However,
in a disaster, it is important that those who depend on Social Security checks continue to
receive them, even though they may be displaced from their homes. Therefore, the SSA
Regional Commissioner provides support staff to do the following:
X Process Social Security claims.
X Provide advice and assistance in regard to regular and survivor benefits payable through
Social Security programs.
X Process disaster-related death certificates.
X Resolve problems involving lost/destroyed Social Security checks.
X Make address changes.
X Replace Social Security cards.
Assistance to Veterans
The Department of Veteran Affairs (VA) provides a variety of disaster assistance specifically
targeted to veterans and survivors, including the following:
X Medical assistance.
X Burial assistance.
X Priority in acquiring VA-owned properties if you are displaced in a disaster.
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Unit Three: Overview of Federal Disaster Assistance
X Health care supplies and equipment, drugs, medicine, and other
medical items.
X Temporary use of housing units owned by the VA.
Crisis Counseling
In a major disaster, many people become stressed, grief-stricken, or disoriented. Imagine the
grief of those recovering from a flood such as Centerville’s as they return to devastated
homes. The Stafford Act authorizes the President to provide funding for training and services
to alleviate mental health problems caused or exacerbated by major disasters. The training is
designed to supplement the available State and local government resources. There are two
types of grants: immediate services funding and regular program funding.
X Immediate services program provides
screening, diagnostic, and counseling
techniques, as well as outreach services
such as public information and
community networking, to help meet
mental health needs immediately
following a disaster up to 60 days from
date of the declaration.
X Regular services program provides
funding for crisis counseling,
community outreach, and consultation
and education services to assist people
affected by the disaster up to 9 months
from the date of the declaration. These
grants are provided by FEMA through the Center for Mental Health
Services, part of the Department of Health and Human Services (HHS);
they are usually administered by State health departments.
Federal grants may be used to provide funding for
community outreach and education following a
disaster.
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A CITIZEN’S GUIDE TO DISASTER ASSISTANCE
Cora Brown Fund
This fund is used to assist victims/survivors in Presidentially declared disasters with disaster-
related needs not met elsewhere. Potential recipients do not need to apply for this assistance;
rather, they are identified by FEMA representatives with assistance from other Federal, State,
local, and voluntary relief agencies. Assistance that can be provided by the Cora Brown Fund
includes: disaster-related home repair and rebuilding, health and safety measures, assistance
to self-employed persons (with no employees) to reestablish their businesses, and other
services which alleviate human suffering and promote well being of disaster victims.
Public Assistance
The preceding section describes the major types of assistance that could be made available
to eligible persons, families, and private businesses under the declaration of a major disaster.
This section provides information on the major types of assistance designed to meet
community needs.
At the discretion of the President, FEMA can
provide supplemental financial assistance and
technical assistance to State and local
governments, Indian tribes and certain private
nonprofit organizations to help communities
recover from disasters as quickly as possible.
Through the Public Assistance Program, FEMA
provides grants to eligible applicants for
emergency protective measures, repair,
replacement or restoration of damaged facilities
not met by insurance. Eligible applicants
include: State, local governments, Indian tribes
and private non-profit (PNP) organizations that
provide essential services of a governmental
nature, such as medical facilities, emergency facilities, utilities, educational facilities, and
custodial care facilities. Eligible work is classified as either “emergency work” or “permanent
work.”
Federal funds may be used to repair or replace
disaster-damaged public facilities, such as
schools.
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Unit Three: Overview of Federal Disaster Assistance
Emergency Work
Emergency work includes those activities undertaken by a community before, during and
after a disaster to save lives, protect public health and safety, and prevent damage to
improved public and private property.
Examples of emergency work include, but are not limited to:
X Debris removal.
X Emergency protective measures to protect lives or improve property.
X Search and rescue.
X Demolition and removal of damaged public and private buildings and structures that pose
an immediate threat to the safety of the general public.
Permanent Work
Permanent work refers to any activity that must be performed to restore a disaster-damaged
facility to pre-disaster design, function and capacity. Examples of eligible facilities include:
X Roads, bridges, and associated facilities (except those on the Federal aid system).
X Water control facilities such as dams and reservoirs, levees, pumping facilities, and
drainage channels.
X Buildings such as police stations, hospitals, schools, and libraries. Contents of buildings
such as furnishings and interior systems, as well as equipment such as vehicles are also
included.
X Utilities include systems for water treatment and conveyance, power generation and
distribution, sewage collection and treatment, and telecommunications.
X Public parks and recreational facilities, including playground equipment, swimming
pools, bath houses, tennis courts, boat docks, piers, picnic tables, and golf courses.
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A CITIZEN’S GUIDE TO DISASTER ASSISTANCE
In order to be eligible for Public Assistance funding, the work and associated
costs must:
1. Be a result of the declared event and not a pre-disaster condition.
2. Be located within the area designated by FEMA as eligible for Public
Assistance.
3. Be the legal responsibility of an eligible applicant at the time of the
disaster.
4. Not be under the specific authority of another Federal agency.
Additionally, eligible work is subject to applicable codes and standards and other federally
mandated laws. Insurance proceeds and salvage will be deducted from the grant total when
appropriate. Grants are provided to the affected State on a cost-share basis. The non-Federal
contribution is shared by the State and applicant.
Other forms of Federal assistance may be available to State and local governments
recovering from disaster. These programs may be activated by a presidential Major Disaster
approved under the Robert T. Stafford Disaster Relief and Emergency Assistance Act, (42
U.S.C. 5121, et seq.), FEMA’s authorizing legislation, or by a declaration approved under
the law of another Federal agency.
Water and Disposal Systems for Rural Communities
The Farm Service Agency provides loans for installation, repair, improvement, or expansion
of rural water or waste disposal systems. In some cases, grants can also be made to reduce
user rates to a reasonable level for farmers, ranchers, and rural residents. This program
attempts to provide basic human amenities and alleviate health hazards in rural areas,
including towns of up to 10,000 inhabitants.
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Unit Three: Overview of Federal Disaster Assistance
Health and Sanitation
The U.S. Department of Health and Human Services (HHS) may provide assistance to State
and local social service agencies and to State vocational rehabilitation agencies to help them
carry out emergency health and sanitation measures following a disaster. The Food and Drug
Administration may work with State and local governments to establish public health
controls through the decontamination or condemnation of contaminated food and drugs.
Emergency Work by the Department of Defense
During the immediate aftermath of an incident, section 403C of the Stafford Act
authorizes the President to utilize personnel
and equipment of the Department of Defense
in certain circumstances. For instance, its
resources could provide assistance in the
removal of debris or in the temporary
restoration of essential public facilities and
services in the aftermath of a major disaster, in
anticipation of a disaster declaration.
The Governor of a State must request this
special assistance from the Department of
Defense through the FEMA Regional Director
and should support the request with a finding
that such work is essential for the preservation
of life and property. When authorized, the
work may be carried out for not more than 10 days, with the expectation that the President
will issue a major disaster declaration or emergency declaration within that timeframe.
Assistance in Responding to Disasters
The U.S. Army Corps of Engineers offers special expertise in flood fighting and rescue
operations. Even after floodwaters have receded, the Corps can continue to provide
assistance such as debris clearance and help to restore essential public services or facilities,
provided that local resources are being used to the maximum and are inadequate for the task.
It can also help repair damaged flood control works or coastal protection structures.
The Department of Defense can provide personnel
and equipment to help restore essential public
facilities and services.
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A CITIZEN’S GUIDE TO DISASTER ASSISTANCE
In the event of a forest or grassland fire (either on public or private land) that becomes a
major disaster, the President is authorized by the Stafford Act to provide assistance in the
form of fire suppression assistance, grants, supplies, equipment, and personnel to help
suppress the fire.
The U.S. Forest Service may provide personnel and equipment for search and rescue work
in cooperation with State forestry agencies when the Governor requests this assistance.
The agency is, of course, particularly responsible for disasters that could affect the
nation’s forests. The agency would provide fire protection on national forest lands and
assist in controlling fires that could
spread from nearby lands into
national forests. The service
cooperates with State foresters by
providing financial and technical
assistance in rural and wildland fire
protection.
The U.S. Coast Guard or United
States Armed Forces units may assist
in search and rescue operations, in
evacuating disaster victims, and in
transporting supplies and equipment.
Hazard Mitigation Assistance
The Hazard Mitigation Grant Program
The Hazard Mitigation Grant Program (HMGP) can provide grants to State and local
governments after a disaster has been declared. These grants provide funds to assist with the
cost of mitigation measures like strengthening buildings to withstand earthquakes or raising
furnaces, storage areas, or entire buildings above flood elevations. Hazard mitigation refers
to measures that protect lives and property from future damages caused by natural disasters.
In the long term, mitigation measures reduce personal loss, save lives, and reduce the future
difficulty and cost of responding to and recovering from disasters.
The U.S. Coast Guard can provide search and rescue
assistance.
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Unit Three: Overview of Federal Disaster Assistance
Examples of types of mitigation measures eligible for HMGP funding include:
X Acquisition of real property in high hazard areas, demolition or relocation of structures,
and conversion of land to open space use.
X Strengthening existing structures against high winds.
X Seismic rehabilitation and structural improvements to existing structures.
X Elevation of flood-prone structures.
X Implementing vegetation management programs to reduce wildfire hazard
to high-risk structures.
Individuals can work with their communities to identify potential mitigation measures. The
communities in a declared State can apply for HMGP funding for these measures from the
State. The State is responsible for selecting and prioritizing local projects and then
forwarding selected applications to FEMA for approval. The amount of funding available
for the HMGP under a disaster declaration is 15 percent of FEMA’s estimated total grants
for all other categories of assistance from that disaster. The State sets funding priorities and
allocates funds among communities. The HMGP can provide grants to assist with 75
percent of the total cost of mitigation projects. Once a project is approved, the State and
local community are responsible for implementing it and
providing a 25 percent funding
match. This match is from State and local sources.
All mitigation projects must meet
minimum eligibility criteria and comply
with the National Environmental Policy
Act (NEPA) and other applicable laws.
HMGP funds cannot be given for
acquisition or construction purposes if the
project site is in an identified floodplain
and the community is not participating in
the National Flood Insurance Program
(NFIP).
Heating System
One example of an appropriate mitigation measure
used in flood areas is to suspend the heating system at
least 12 feet above base flood elevation.
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A CITIZEN’S GUIDE TO DISASTER ASSISTANCE
ASSISTANCE WITHOUT A PRESIDENTIAL DISASTER
DECLARATION
The preceding sections described the major types of assistance that could be made available
to eligible persons, families, private businesses, and public entities after a Presidentially
declared disaster. Some of this Federal assistance would be available even without a
declaration. For example, assistance from the Small Business Administration, the U.S. Army
Corps of Engineers, and the Department of Agriculture can be provided under the authority of
their own enabling legislation. Those seeking this assistance would apply directly to these
agencies
.
Technical Assistance
The Federal government provides considerable technical assistance to help communities
prepare for disasters and reduce loss of life and property. This assistance includes
information that can help citizens assess their community’s preparedness for, and
vulnerability to, disasters of various types.
Programs to Prevent Floods and
Protect Against Flood-Related Losses
Several Federal and State agencies play a part in providing disaster assistance for flood
prevention and protection, both before and after the occurrence of a flood such as the one
described in the scenario.
FEMA’s Mitigation Directorate publishes maps
and reports identifying flood-prone areas, flood
elevations, floodways, and coastal high-hazard
areas. The U.S. Geological Survey (USGS) also
develops maps identifying flood-prone areas in
virtually all developed and developing sections
of the country. These maps can be easily
obtained by contacting your district office of the
U.S. Geological Survey Water Resources
Division.
The U.S. Geological Survey and FEMA’s Mitigation
Directorate publish maps that identify flood-prone
areas.
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Unit Three: Overview of Federal Disaster Assistance
The U.S. Army Corps of Engineers can help identify areas subject to flooding by
streams, lakes, and oceans. It can also provide guidance and technical services to help
communities develop sound plans for land and water use that integrate knowledge of local
flood hazards. By submitting a letter to the appropriate district engineer documenting the need
for assistance, anyone may obtain available information. The Corps can also help communities
design and construct specialized flood control projects to reduce flood damage. Any State or
local agency is eligible if it has the full authority and ability to undertake the legal and
financial responsibilities required for Federal participation. Applicants must submit a formal
letter to the appropriate district engineer indicating clear intent to fulfill these responsibilities.
Those who live in flood-prone areas will want to know more about FEMA’s National Flood
Insurance Program (NFIP), administered by the Federal Insurance Administration (FIA). Most
homeowners’ insurance policies do not cover flooding. The NFIP enables individuals, as well
as State and local governments, to purchase insurance against losses from physical damage
caused by floods, flood-related mudslides, or flood-related erosion. Flood insurance claims are
paid even if a disaster is not declared by the President. National Flood Insurance is available to
protect buildings and/or contents in communities that have agreed to adopt and enforce sound
floodplain management practices. Homeowners, business owners, and renters in a community
that participates in the NFIP are eligible for flood insurance (except those areas protected by
the Coastal Barrier Resource Act).
If your community is an NFIP participant, you can apply for insurance through any licensed
property or casualty insurance agent or through one of the private insurance companies that are
now writing flood insurance under an arrangement with the FIA. Remember, flood insurance
coverage is required as a condition of receiving any Federally insured mortgage or disaster
assistance for properties located within identified high risk flood-prone areas. The first step in
joining the NFIP is to have a community representative contact the FEMA regional office (see
Appendix A). If you want more information about flood insurance and the NFIP, you may call
their toll-free number (1-800-427-4661).
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A CITIZEN’S GUIDE TO DISASTER ASSISTANCE
Managing Land and Water Resources
The Natural Resource Conservation Service (NRCS) provides technical and financial
assistance to retard runoff and prevent soil erosion. Its goal is to reduce hazards to life and
property from flood, drought, and the products of erosion on any watershed impaired by a
natural disaster. NRCS provides technical assistance to help rehabilitate land and
conservation systems through the
Agricultural Stabilization and
Conservation Service. This assistance
can include cost-sharing, emergency
protection against high water, and
rehabilitation of rural lands damaged
by natural disaster. NRCS provides
information and materials (maps and
reports) on watershed projects, river
basin studies, and resource
conservation and development areas. It
also makes agency equipment available
for emergency use.
The U.S. Forest Service also provides
assistance to retard runoff and prevent
soil erosion. Its goal is to safeguard life and property on, and downstream from, watershed
lands suddenly damaged by fire, flood, and other natural disasters.
SUMMARY
Assistance to supplement the efforts and available resources of State and local governments
is authorized under the Stafford Act when the President declares an area to be a major
disaster. FEMA is authorized by the President to carry out emergency management activities
at the Federal level. In addition to assistance that may be available through FEMA, a number
of other types of assistance may be offered by other agencies. Some forms of Federal
assistance are not dependent on a Presidential declaration. The organization that coordinates
the efforts of FEMA and other agencies during a disaster is the Emergency Response Team
(ERT), which is located in the affected area.
The Natural Resource Conservation Service (NRCS)
provides technical and financial assistance to retard
runoff and prevent soil erosion.
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Unit Three: Overview of Federal Disaster Assistance
A very specific process is followed in requesting the President to declare a major disaster. It
involves the cooperation and ongoing coordination of local, State, and Federal officials. On
the basis of damage assessment reports and the capabilities of the local community and State
to effectively respond to the disaster, the Governor makes a decision whether or not to
request Federal aid. The Governor’s request is submitted to the President through the FEMA
Regional Director.
There are three main categories of Federal assistance—assistance for individuals and
businesses, public assistance, and hazard mitigation assistance. A Presidential declaration
does not guarantee that all forms of assistance will be made available; that depends on the
extent and type of damage caused by the disaster, as well as the specific requests made by
the Governor. X
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A CITIZEN’S GUIDE TO DISASTER ASSISTANCE
Check Your Memory
(Answers on page K-2)
1. Federal assistance ___________________________________.
a. Replaces State assistance.
b. Supports efforts at the State and local level.
c. Is a substitute for private insurance.
d. Is available only under a Presidential disaster declaration.
2. In evaluating a Governor’s request for Presidential disaster declaration,
FEMA considers _______________________.
a. Available resources of State and local governments.
b. Imminent threats to life and safety.
c. The State’s disaster history.
d. All of the above.
3. Other Needs Assistance under the Individuals and Households Program
covers___________________.
a. Household items, furnishings, and appliances.
b. Clothing.
c. Privately owned vehicles.
d. All of the above.
4. To be eligible for funding under FEMA’s Public Assistance Program, disaster
recovery work must _____________________.
a. Be completed within 90 days of the date of declaration.
b. Be performed by contracted labor.
c. Be required as a direct result of a declared event.
5. All hazard mitigation projects must comply with the National
Environmental Policy Act.
a. True.
b. False.
