Community Planning and Capacity Building Recovery Support
Transcript Of Community Planning and Capacity Building Recovery Support
Community Planning and Capacity Building Recovery Support Function
Washington Restoration Framework
Housing
Economic
Natural Resources
Cultural & Historic
Resources
Community Planning & Capacity
Building
Infrastructure Systems
Health Services
Social Services
CPCB Participants Coordinating: Emergency Management Division (EMD)
Supporting: Department of Agriculture Department of Archaeology and Historic Preservation (DAHP) Department of Commerce (COM) Department of Ecology (ECY) Department of Health (DOH)
Department of Social and Health Services (DSHS) Department of Transportation (WSDOT) Governor’s Office of Indian Affairs (GOIA) Recreation and Conservation Office State Conservation Commission Washington State Historical Society (WSHS)
Purpose
The state Community Planning and Capacity Building Recovery Support Function (CPCB RSF) supports governmental capacities of disaster-impacted communities and helps them plan for, manage and implement disaster recovery activities. The CPCB RSF participants provide recovery planning technical assistance, guidance and training to requesting local and tribal governments. Additionally, the CPCB RSF leverages existing programs to support the recovery of the requesting jurisdiction. RSF participants address recovery gaps identified by other RSFs and the impacted community. This is accomplished through coordination and collaboration to identify possible solutions. A common example is an insufficient level of trained, experienced recovery personnel at both the staff and management/decision-making level. The CPCB RSF also coordinates with other state agencies, nongovernmental partners, faith-based communities,
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private sector partners, public and private utilities, nonprofit and philanthropic organizations and the requesting jurisdiction to identify potential resources that support community recovery planning efforts and build capacity. Lastly, the RSF maintains the principles of local primacy and whole community participation throughout the recovery process.
The National Preparedness Goal establishes 32 Core Capabilities to address the greatest risks to the nation. The primary recovery core capability for this RSF is the Planning Core Capability in the Recovery Mission Area. The Planning Core Capability is common across the five Mission Areas (Prevention, Protection, Mitigation, Response and Recovery). This RSF also encompasses two supporting recovery core capabilities represented across the five Mission Areas. These are the Public Information and Warning Core Capability and Operational Coordination Core Capability.
Planning
Primary Core Capability Recovery
Conduct a systematic process engaging the whole community as appropriate in the development of executable strategic, operational, and/or tactical-level approaches to meet defined objectives.
Public Information and Warning
Support Core Capability Recovery
Deliver coordinated, prompt, reliable, and actionable information to the whole community through the use of clear, consistent, accessible, and culturally and linguistically appropriate methods to effectively relay information regarding any threat or hazard and, as appropriate, the actions being taken, and the assistance being made available.
Operational Coordination
Support Core Capability Recovery
Establish and maintain a unified and coordinated operational structure and process that appropriately integrates all critical stakeholders and supports the execution of Core Capabilities.
Authorities & Policies
Revised Code of Washington (RCW)
• 319.27.031, State Building Code. Establishes the requirements for all counties and cities to follow the state’s building code. References which codes must be part of the state building code.
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• 36.70A, Growth Management – Planning by selected counties and cities The Washington State Growth Management Act requires state and local governments to manage the state’s growth by developing comprehensive plans to address urban growth and the conservation of critical areas and natural resource lands.
• 36.70B, Local Project Review This law addresses the many land use permitting and regulatory requirements for projects which often overlap, conflict and hinder the timely implementation of the project. The law allows fundamental land use planning choices made in adopted comprehensive plans and development regulations serve as the foundation for project review.
• 36.70C, Land Use Petition Act This law establishes uniform, expedited appeal procedures and criteria for the judicial review of land use decisions made by local jurisdictions.
• 43.21C, Project review under the growth management act A county, city, or town reviewing a project may make the determination that the requirements for environmental analysis, protection and mitigation measures in their respective development regulations, comprehensive plans and applicable laws, provide an adequate analysis of and mitigation for the specific adverse environmental impacts of the project.
Washington Administrative Code (WAC)
• 365-185, Procedures for management of growth management planning and environmental review fund Outlines the conditions and procedures by which the Washington State Department of Commerce makes available grants to local governments required to plan or have chosen to plan under the state’s Growth Management Act.
• 365-196, Growth Management Act – Procedural criteria for adopting comprehensive plans and development regulations Provides specific details for developing and adopting comprehensive plans and development regulations required by the state’s Growth Management Act.
Federal Laws and Authorities
• 44 CFR, Sections 201.4, Standard State Mitigation Plans. Requires states to have an approved Standard State Mitigation Plan meeting specific requirements in order to receive non-emergency Stafford Act assistance and FEMA mitigation grants.
Situation Overview
The lack of a viable recovery organization or plan within a community can significantly hinder the recovery process. An inclusive pre-disaster recovery plan that addresses funding, finances, procedures and the roles and priorities of a community can make the often complex and daunting task of recovery more effective and efficient. Planning for recovery should take place throughout the disaster cycle including before, during and after a disaster. Pre-disaster recovery planning includes understanding the organizational structures and the roles and responsibilities of the agencies involved. Recovery planning can and should be inclusive of the whole community, involving numerous diverse stakeholders, agencies and organizations. The
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National Disaster Recovery Framework (NDRF) emphasizes the importance of supporting community-based recovery planning efforts and maintaining local primacy throughout the recovery process.
Washington lacks a dedicated state-level funding source for recovery. Furthermore, many disasters occur in the state that are not Presidentially Declared Disasters (PDD) or do not include the Individual Assistance program, which is FEMA’s primary program for helping disaster survivors. This leaves local and tribal communities looking to their government agencies and community organizations for support. Developing a pre-disaster recovery plan creates a better understanding of what potential programs and resources are available to support the recovery need at the jurisdictional level. The planning process also provides an opportunity to identify capacity gaps and to address these issues before a disaster occurs. State agencies provide technical expertise in recovery such as pre- and post-disaster recovery trainings, damage assessments and coordinating state agency recovery assistance programs. State agencies act as a conduit between local governments and federal agencies to coordinate recovery assistance.
The State Growth Management Act (GMA) RCW 36.70A requires certain counties and cities to develop and adopt comprehensive plans and development regulations. The purpose of the GMA is to encourage local governments to identify and protect critical areas, including geologically hazardous or frequently flooded areas and natural resource lands and design urban growth areas in a manner that is sustainable for the economic development, health, safety and high quality of life for Washington residents. The comprehensive plans and development regulations of a jurisdiction play an important role in the post-disaster recovery planning of a community, including the ability to receive federal funds following a PDD. For example, in order for applicants to be considered for federal Hazard Mitigation Grant Program (HMGP) funds, applicants must be jurisdictions that are participating in and in good standing with the National Flood Insurance Program, and in compliance with the State GMA requirements or located in a community that is so located.
The post-disaster planning environment is an opportune time for a community to review and revise their plans and regulations and incorporate principles of hazard mitigation and disaster resilience. A disaster may necessitate a re-evaluation of the growth management goals and strategies based on a new physical landscape with additional or increased geological hazardous areas or frequently flooded areas. Local planning departments can take actions such as updating building codes, issuing building permits, or evaluating whether the disaster has caused or will cause a shift in demographics. The planning department can also issue post-disaster moratoria on repairing or rebuilding structures to provide additional time for the community to assess the new environment and consider changes to their land use and development policies. These actions drive local planning and decision making.
Impacted jurisdictions often face immense political and economic pressure to rebuild as quickly as possible to return a community to normal following a major disaster that causes substantial
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infrastructure damages. A pre-disaster recovery plan with pre-identified projects improves the pace and effectiveness of community recovery following a disaster. Community leaders and planners should provide ample opportunities for all community participants to engage in the recovery planning process. Following a disaster, consider how the displacement of community members might impact access to services or access to the recovery planning process itself. Providing clear communication in accessible formats can help keep community members informed and engaged in the recovery process. The speed of recovery needs to be balanced with the physical and emotional needs of the community. At the same time, an acute awareness of financial assistance deadlines and sequence of assistance is vital to maximize community recovery. The recovery planning process should work toward collaborativelyidentified recovery goals and a common understanding of what a successful recovery looks like for the impacted community. Other planning initiatives, such as community or district master planning, should be considered by and align with those involved in the recovery planning process.
Additional challenges across the state in the recovery process include limited access to capital and competition for funding. Smaller, more rural communities do not have the same staffing capacity to apply for funding programs as urban areas. Another issue is the limited knowledge and experience across the state at all levels of government in dealing directly with disaster recovery. Many elected officials and planning departments, for example, may need assistance in navigating the complex recovery assistance programs that are offered following a PDD. Jurisdictions may need a variety of crash-courses following a disaster on topics such as financial management, federal disaster grant and loan programs, contracting and procurement, staffing for recovery, volunteer and donations management and long-term recovery planning.
Planning Assumptions
This RSF assumes that local and federal entities operate similar plans that stipulate organizing by Core Capability and/or RSF as defined within the Washington Restoration Framework (WRF). In circumstances where this is not the case, the RSF assumes the requesting jurisdiction will identify the appropriate organizations to coordinate with.
Community planning refers to the definition of community-based recovery planning outlined in the Recovery Federal Interagency Operational Plan (FIOP): Community-based recovery planning applies city and community planning principles and processes to assist communities and their whole-community partners and stakeholders in making informed decisions on goals, objectives, policies, priorities and programs that guide the overall community’s recovery1. To the extent possible, the state CPCB RSF adheres to this definition through the support of community planning initiatives and reinforcement of the principle of local primacy in recovery.
1 U.S. Department of Homeland Security (August 2016). Recovery Federal Interagency Operational Plan. (2nd Ed.). Annex B: Planning. Pp. B-2-B-3. https://www.fema.gov/emergency-managers/nationalpreparedness/frameworks/federal-interagency-operational-plans
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Capacity building refers to the definition outlined in the Recovery FIOP: Capacity building refers to strengthening the skills, competencies, resources and abilities of people, governments and communities so they can undertake community recovery planning processes effectively and efficiently1. To the extent possible, the state CPCB RSF adheres to this definition by focusing on improving the capacities of local, tribal, and state governments to better support the disaster recovery activities.
Following a disaster that significantly impacts a community, a broad spectrum of local, state, federal and tribal government agencies, organizations and nonprofits provide assistance in varying manners which require a communicative, collaborative and concerted effort. The state CPCB RSF anticipates working with additional entities offering resources to support recovery beyond those specifically mentioned within this document.
Nothing in this RSF modifies, replaces, or supersedes the recovery activities, roles and responsibilities, authorities, statutes, regulations, or program rules of the CPCB participants. This includes other entities that implement or support the implementation of Emergency Support Functions (ESFs) within the Washington State Comprehensive Emergency Management Plan (CEMP).
Note: “Entities” refers to any private, for-profit organizations, nonprofit organizations, governmental and non-governmental agency.
Concept of Operations
Scenarios where the CPCB RSF is fully engaged in the recovery process is likely to occur only in major and catastrophic disasters. The following Concept of Operations describes the activities and approach for the CPCB RSF following activation in a disaster. However, it should be noted that CPCB RSF participants are most effective in supporting jurisdictions and tribes through their existing programs in a pre-disaster setting. Before a disaster occurs, the CPCB RSF participants provide technical planning assistance and community resources geared toward helping local jurisdictions and tribes build capacity and resilience. While the CPCB RSF may not be activated for all disasters, if resources are available and requested, the state may deliver community planning and capacity building support related to the disaster-caused needs.
If a local entity does not have a CPCB RSF component to their response and/or recovery plan, this RSF coordinates with the closest equivalently functional element, such as the jurisdiction’s recovery lead, branch, recovery task force/group, or planning department. The state CPCB RSF supports recovery planning for impacted tribes and local jurisdictions, at their request, by identifying and leveraging resources and coordinating assistance among federal, state, local, tribal, nonprofit, private sector and other community players. This RSF maintains flexibility and scalability in its operational ability to support the requesting jurisdiction’s needs.
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Every disaster offers opportunities to incorporate the principles of mitigation, resilience and recovery. This RSF aims to identify those opportunities for cross-sector collaboration to increase capacity and build resilience.
Critical Tasks
This RSF is primarily responsible for contributing to the Recovery Mission Area through the Planning Core Capability and the associated Critical Tasks. The RSF contributes to the Critical Tasks under the Public Information and Warning and Operational Coordination Support Core Capabilities.
Critical Task I.D. 1
2
Planning
Critical Task Description
Convene the core of an inclusive planning team (identified pre-disaster), which will oversee disaster recovery planning. Complete an initial recovery plan that provides an overall strategy and timeline, addresses all core capabilities, and integrates socioeconomic, demographic, accessibility, technology, and risk assessment considerations (including projected climate change impacts), which will be implemented in accordance with the timeline contained in the plan.
Critical Task I.D. 1
2
Public Information and Warning
Critical Task Description
Reach all populations within the community with effective actionable recoveryrelated public information messaging and communications that are accessible to people with disabilities and people with limited English proficiency; protect the health and safety of the affected population; help manage expectations; and ensure stakeholders have a clear understanding of available assistance and their roles and responsibilities. Support affected populations and stakeholders with a system that provides appropriate, current information about any continued assistance, steady state resources for long-term impacts, and monitoring programs in an effective and accessible manner.
Critical Task I.D. 1
2
Operational Coordination
Critical Task Description
Establish tiered, integrated leadership and inclusive coordinating organizations that operate with a unity of effort and are supported by sufficient assessment and analysis to provide defined structure and decision-making processes for recovery activities. Define the path and timeline for recovery leadership to achieve the jurisdiction’s objectives that effectively coordinates and uses appropriate local, state, tribal, territorial, insular area, and Federal assistance, as well as nongovernmental and
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Critical Task I.D. 2
Operational Coordination
Critical Task Description private sector resources. This plan is to be implemented within the established timeline.
Objectives
• Identify and leverage available funds and services to meet the recovery needs of the impacted community.
• Apply a unified and cross-jurisdictional coordination approach to develop a recovery strategy, working with federal, state, local and tribal stakeholders.
• Support the capacity of local and tribal governments, nonprofits and the private sector, as requested. o Coordinate with federal and state partners to leverage funds in support of local recovery efforts. o Enhance community resilience at the local and regional level by providing recovery trainings and workshops for elected officials and the general public. o Support recovery programs and assist local jurisdictions in applying for federal disaster assistance programs.
• Support existing recovery organizations and encourage the development of local longterm recovery groups through technical assistance, best-practice identification and sustained community engagement.
• Coordinate the delivery of state allocated or state-administered and federally allocated funds, checking for efficiency and compliance.
• Include opportunities for participation from and coordination with the whole community in recovery planning activities.
• Incorporate principles of mitigation and resilience in recovery planning activities.
Whole Community Involvement
The CPCB RSF supports recovery planning efforts that focus on engaging the Whole Community to develop a network of agencies and organizations that can leverage their resources to collectively support tribes and local governments with their recovery. Suggested stakeholders include aging, disability and limited English proficiency groups, local businesses and their associations, universities, the private sector and non-governmental organizations, advocacy groups, coalitions and commissions representing historically marginalized communities. To support linguistic or cultural outreach needs additional suggested stakeholders include nonprofits and other organizations who serve and/or represent diverse populations. The RSF agencies provide information regarding resources and recovery assistance to support all affected stakeholders, including people with disabilities and other access and functional needs, in the recovery efforts.
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People with disabilities and other access and functional needs may encounter barriers accessing social services and recovery resources for a variety of reasons as a result of the disaster impacts. Entities providing support during the recovery period should work to reduce or eliminate barriers to access (e.g., physical, sensory, or cognitive impairment, location, hours of operation, language). Entities should also increase access to information using media and social media platforms commonly utilized by and effective among historically marginalized groups in relevant languages and mediums.
To achieve the RSF objectives, the CPCB RSF shall identify and execute on opportunities to incorporate disability and other access and functional needs considerations into community planning and decision-making processes during the recovery period. Disability core advisory groups provide additional resources and share their subject matter expertise to facilitate inclusive recovery planning. As allowed by local, state and federal law, CPCB RSF participants share data concerning individuals with disabilities and other access and functional needs to adequately support the recovery of the Whole Community and identify additional opportunities to collaborate with one another.
Post-disaster recovery planning also provides an opportunity to address social inequities. To work toward social equity, the recovery planning process needs to be inclusive of the Whole Community, including, but not limited to, Black, Indigenous and People of Color (BIPOC) communities. Planners need to recognize inequities and biases, identify root causes and create actionable solutions toward eliminating the problem. The role of emergency management is to help all individuals and families prepare, respond to and recover from disasters. Emergency managers can fulfill this role by working with a wide variety of representative community stakeholders throughout the disaster cycle.
Organization
Mobilization
This RSF supports local jurisdictions and tribes, at their request, in developing recovery plans and building community resilience. The CPCB RSF supports the development of a state recovery plan specific to the disaster, if needed, in coordination with the Planning Section within the State Emergency Operations Center (SEOC).
Local jurisdictions and tribes may request recovery planning assistance. The ESF-14 Lead or Recovery Branch Director, if activated, coordinates with the Operations Section Chief and the SEOC Supervisor to determine if the disaster impacts warrant the activation of this RSF. The aforementioned positions determine the activation of this RSF on a case by case basis using all available impact data and the recovery planning needs of other activated RSFs. The state CPCB RSF works with the federal CPCB RSF, when activated, to gather data, identify needs and unify federal and state planning efforts to better coordinate recovery assistance. The RSF partners collaborate with the appropriate partners and resources needed to support the long-term recovery of the jurisdiction requesting assistance. The CPCB RSF activities may take place in a
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Joint Field Office (JFO) or in a separate location (e.g., a Disaster Recovery Office) to coordinate recovery actions of the RSF entities. The RSF deactivation process follows the same procedures as activation (i.e., ESF-14 Lead consults with the Operations Section Chief and the SEOC Supervisor).
Structure
The CPCB RSF conducts its activities initially within the SEOC environment, either operating remotely or in-person. The SEOC Operations Section may establish a Recovery Branch to maintain span of control when other RSFs are also activated. As the incident transitions from response to recovery and out of the SEOC setting, the CPCB RSF may conduct its activities in a JFO setting. A structure with more flexibility may be necessary to carry out the intermediate and long-term recovery efforts in the state, in coordination with, or as part of, the JFO.
SEOC
Operations
Recovery Branch
CPCB RSF
JFO Operations HRuemcoavnerSyeBrvriacnecsh/ CPCB RSF
Direction, Control and Coordination
Horizontal Integration
In addition to the participants outlined in this RSF on Page 1, the RSF remains flexible and scalable to account for additional participants who may participate in this coordination structure. This RSF is a functional recovery operational annex supporting the WRF as part of the CEMP. Other state agencies possess plans that outline their continuity of operations and/or recovery actions following an incident, to include information on executing their assigned responsibilities. The CPCB RSF leverages the existing programs and authorities of state agencies to support community planning and capacity building.
State Agency Planning Integration State agencies shall develop community planning and capacity building recovery plans and strategies commensurate with the agency's requirements and needs. Agency plans should complement the state CEMP through the Washington Restoration Framework (WRF). The following is a list of state agency plans that pertain to the function of the CPCB RSF:
• Comprehensive Emergency Management Plan (CEMP) The CEMP guides the overall emergency management roles, responsibilities and emergency management mission areas (protection, preparedness, response, recovery and mitigation).
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Washington Restoration Framework
Housing
Economic
Natural Resources
Cultural & Historic
Resources
Community Planning & Capacity
Building
Infrastructure Systems
Health Services
Social Services
CPCB Participants Coordinating: Emergency Management Division (EMD)
Supporting: Department of Agriculture Department of Archaeology and Historic Preservation (DAHP) Department of Commerce (COM) Department of Ecology (ECY) Department of Health (DOH)
Department of Social and Health Services (DSHS) Department of Transportation (WSDOT) Governor’s Office of Indian Affairs (GOIA) Recreation and Conservation Office State Conservation Commission Washington State Historical Society (WSHS)
Purpose
The state Community Planning and Capacity Building Recovery Support Function (CPCB RSF) supports governmental capacities of disaster-impacted communities and helps them plan for, manage and implement disaster recovery activities. The CPCB RSF participants provide recovery planning technical assistance, guidance and training to requesting local and tribal governments. Additionally, the CPCB RSF leverages existing programs to support the recovery of the requesting jurisdiction. RSF participants address recovery gaps identified by other RSFs and the impacted community. This is accomplished through coordination and collaboration to identify possible solutions. A common example is an insufficient level of trained, experienced recovery personnel at both the staff and management/decision-making level. The CPCB RSF also coordinates with other state agencies, nongovernmental partners, faith-based communities,
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private sector partners, public and private utilities, nonprofit and philanthropic organizations and the requesting jurisdiction to identify potential resources that support community recovery planning efforts and build capacity. Lastly, the RSF maintains the principles of local primacy and whole community participation throughout the recovery process.
The National Preparedness Goal establishes 32 Core Capabilities to address the greatest risks to the nation. The primary recovery core capability for this RSF is the Planning Core Capability in the Recovery Mission Area. The Planning Core Capability is common across the five Mission Areas (Prevention, Protection, Mitigation, Response and Recovery). This RSF also encompasses two supporting recovery core capabilities represented across the five Mission Areas. These are the Public Information and Warning Core Capability and Operational Coordination Core Capability.
Planning
Primary Core Capability Recovery
Conduct a systematic process engaging the whole community as appropriate in the development of executable strategic, operational, and/or tactical-level approaches to meet defined objectives.
Public Information and Warning
Support Core Capability Recovery
Deliver coordinated, prompt, reliable, and actionable information to the whole community through the use of clear, consistent, accessible, and culturally and linguistically appropriate methods to effectively relay information regarding any threat or hazard and, as appropriate, the actions being taken, and the assistance being made available.
Operational Coordination
Support Core Capability Recovery
Establish and maintain a unified and coordinated operational structure and process that appropriately integrates all critical stakeholders and supports the execution of Core Capabilities.
Authorities & Policies
Revised Code of Washington (RCW)
• 319.27.031, State Building Code. Establishes the requirements for all counties and cities to follow the state’s building code. References which codes must be part of the state building code.
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• 36.70A, Growth Management – Planning by selected counties and cities The Washington State Growth Management Act requires state and local governments to manage the state’s growth by developing comprehensive plans to address urban growth and the conservation of critical areas and natural resource lands.
• 36.70B, Local Project Review This law addresses the many land use permitting and regulatory requirements for projects which often overlap, conflict and hinder the timely implementation of the project. The law allows fundamental land use planning choices made in adopted comprehensive plans and development regulations serve as the foundation for project review.
• 36.70C, Land Use Petition Act This law establishes uniform, expedited appeal procedures and criteria for the judicial review of land use decisions made by local jurisdictions.
• 43.21C, Project review under the growth management act A county, city, or town reviewing a project may make the determination that the requirements for environmental analysis, protection and mitigation measures in their respective development regulations, comprehensive plans and applicable laws, provide an adequate analysis of and mitigation for the specific adverse environmental impacts of the project.
Washington Administrative Code (WAC)
• 365-185, Procedures for management of growth management planning and environmental review fund Outlines the conditions and procedures by which the Washington State Department of Commerce makes available grants to local governments required to plan or have chosen to plan under the state’s Growth Management Act.
• 365-196, Growth Management Act – Procedural criteria for adopting comprehensive plans and development regulations Provides specific details for developing and adopting comprehensive plans and development regulations required by the state’s Growth Management Act.
Federal Laws and Authorities
• 44 CFR, Sections 201.4, Standard State Mitigation Plans. Requires states to have an approved Standard State Mitigation Plan meeting specific requirements in order to receive non-emergency Stafford Act assistance and FEMA mitigation grants.
Situation Overview
The lack of a viable recovery organization or plan within a community can significantly hinder the recovery process. An inclusive pre-disaster recovery plan that addresses funding, finances, procedures and the roles and priorities of a community can make the often complex and daunting task of recovery more effective and efficient. Planning for recovery should take place throughout the disaster cycle including before, during and after a disaster. Pre-disaster recovery planning includes understanding the organizational structures and the roles and responsibilities of the agencies involved. Recovery planning can and should be inclusive of the whole community, involving numerous diverse stakeholders, agencies and organizations. The
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National Disaster Recovery Framework (NDRF) emphasizes the importance of supporting community-based recovery planning efforts and maintaining local primacy throughout the recovery process.
Washington lacks a dedicated state-level funding source for recovery. Furthermore, many disasters occur in the state that are not Presidentially Declared Disasters (PDD) or do not include the Individual Assistance program, which is FEMA’s primary program for helping disaster survivors. This leaves local and tribal communities looking to their government agencies and community organizations for support. Developing a pre-disaster recovery plan creates a better understanding of what potential programs and resources are available to support the recovery need at the jurisdictional level. The planning process also provides an opportunity to identify capacity gaps and to address these issues before a disaster occurs. State agencies provide technical expertise in recovery such as pre- and post-disaster recovery trainings, damage assessments and coordinating state agency recovery assistance programs. State agencies act as a conduit between local governments and federal agencies to coordinate recovery assistance.
The State Growth Management Act (GMA) RCW 36.70A requires certain counties and cities to develop and adopt comprehensive plans and development regulations. The purpose of the GMA is to encourage local governments to identify and protect critical areas, including geologically hazardous or frequently flooded areas and natural resource lands and design urban growth areas in a manner that is sustainable for the economic development, health, safety and high quality of life for Washington residents. The comprehensive plans and development regulations of a jurisdiction play an important role in the post-disaster recovery planning of a community, including the ability to receive federal funds following a PDD. For example, in order for applicants to be considered for federal Hazard Mitigation Grant Program (HMGP) funds, applicants must be jurisdictions that are participating in and in good standing with the National Flood Insurance Program, and in compliance with the State GMA requirements or located in a community that is so located.
The post-disaster planning environment is an opportune time for a community to review and revise their plans and regulations and incorporate principles of hazard mitigation and disaster resilience. A disaster may necessitate a re-evaluation of the growth management goals and strategies based on a new physical landscape with additional or increased geological hazardous areas or frequently flooded areas. Local planning departments can take actions such as updating building codes, issuing building permits, or evaluating whether the disaster has caused or will cause a shift in demographics. The planning department can also issue post-disaster moratoria on repairing or rebuilding structures to provide additional time for the community to assess the new environment and consider changes to their land use and development policies. These actions drive local planning and decision making.
Impacted jurisdictions often face immense political and economic pressure to rebuild as quickly as possible to return a community to normal following a major disaster that causes substantial
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infrastructure damages. A pre-disaster recovery plan with pre-identified projects improves the pace and effectiveness of community recovery following a disaster. Community leaders and planners should provide ample opportunities for all community participants to engage in the recovery planning process. Following a disaster, consider how the displacement of community members might impact access to services or access to the recovery planning process itself. Providing clear communication in accessible formats can help keep community members informed and engaged in the recovery process. The speed of recovery needs to be balanced with the physical and emotional needs of the community. At the same time, an acute awareness of financial assistance deadlines and sequence of assistance is vital to maximize community recovery. The recovery planning process should work toward collaborativelyidentified recovery goals and a common understanding of what a successful recovery looks like for the impacted community. Other planning initiatives, such as community or district master planning, should be considered by and align with those involved in the recovery planning process.
Additional challenges across the state in the recovery process include limited access to capital and competition for funding. Smaller, more rural communities do not have the same staffing capacity to apply for funding programs as urban areas. Another issue is the limited knowledge and experience across the state at all levels of government in dealing directly with disaster recovery. Many elected officials and planning departments, for example, may need assistance in navigating the complex recovery assistance programs that are offered following a PDD. Jurisdictions may need a variety of crash-courses following a disaster on topics such as financial management, federal disaster grant and loan programs, contracting and procurement, staffing for recovery, volunteer and donations management and long-term recovery planning.
Planning Assumptions
This RSF assumes that local and federal entities operate similar plans that stipulate organizing by Core Capability and/or RSF as defined within the Washington Restoration Framework (WRF). In circumstances where this is not the case, the RSF assumes the requesting jurisdiction will identify the appropriate organizations to coordinate with.
Community planning refers to the definition of community-based recovery planning outlined in the Recovery Federal Interagency Operational Plan (FIOP): Community-based recovery planning applies city and community planning principles and processes to assist communities and their whole-community partners and stakeholders in making informed decisions on goals, objectives, policies, priorities and programs that guide the overall community’s recovery1. To the extent possible, the state CPCB RSF adheres to this definition through the support of community planning initiatives and reinforcement of the principle of local primacy in recovery.
1 U.S. Department of Homeland Security (August 2016). Recovery Federal Interagency Operational Plan. (2nd Ed.). Annex B: Planning. Pp. B-2-B-3. https://www.fema.gov/emergency-managers/nationalpreparedness/frameworks/federal-interagency-operational-plans
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Capacity building refers to the definition outlined in the Recovery FIOP: Capacity building refers to strengthening the skills, competencies, resources and abilities of people, governments and communities so they can undertake community recovery planning processes effectively and efficiently1. To the extent possible, the state CPCB RSF adheres to this definition by focusing on improving the capacities of local, tribal, and state governments to better support the disaster recovery activities.
Following a disaster that significantly impacts a community, a broad spectrum of local, state, federal and tribal government agencies, organizations and nonprofits provide assistance in varying manners which require a communicative, collaborative and concerted effort. The state CPCB RSF anticipates working with additional entities offering resources to support recovery beyond those specifically mentioned within this document.
Nothing in this RSF modifies, replaces, or supersedes the recovery activities, roles and responsibilities, authorities, statutes, regulations, or program rules of the CPCB participants. This includes other entities that implement or support the implementation of Emergency Support Functions (ESFs) within the Washington State Comprehensive Emergency Management Plan (CEMP).
Note: “Entities” refers to any private, for-profit organizations, nonprofit organizations, governmental and non-governmental agency.
Concept of Operations
Scenarios where the CPCB RSF is fully engaged in the recovery process is likely to occur only in major and catastrophic disasters. The following Concept of Operations describes the activities and approach for the CPCB RSF following activation in a disaster. However, it should be noted that CPCB RSF participants are most effective in supporting jurisdictions and tribes through their existing programs in a pre-disaster setting. Before a disaster occurs, the CPCB RSF participants provide technical planning assistance and community resources geared toward helping local jurisdictions and tribes build capacity and resilience. While the CPCB RSF may not be activated for all disasters, if resources are available and requested, the state may deliver community planning and capacity building support related to the disaster-caused needs.
If a local entity does not have a CPCB RSF component to their response and/or recovery plan, this RSF coordinates with the closest equivalently functional element, such as the jurisdiction’s recovery lead, branch, recovery task force/group, or planning department. The state CPCB RSF supports recovery planning for impacted tribes and local jurisdictions, at their request, by identifying and leveraging resources and coordinating assistance among federal, state, local, tribal, nonprofit, private sector and other community players. This RSF maintains flexibility and scalability in its operational ability to support the requesting jurisdiction’s needs.
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Every disaster offers opportunities to incorporate the principles of mitigation, resilience and recovery. This RSF aims to identify those opportunities for cross-sector collaboration to increase capacity and build resilience.
Critical Tasks
This RSF is primarily responsible for contributing to the Recovery Mission Area through the Planning Core Capability and the associated Critical Tasks. The RSF contributes to the Critical Tasks under the Public Information and Warning and Operational Coordination Support Core Capabilities.
Critical Task I.D. 1
2
Planning
Critical Task Description
Convene the core of an inclusive planning team (identified pre-disaster), which will oversee disaster recovery planning. Complete an initial recovery plan that provides an overall strategy and timeline, addresses all core capabilities, and integrates socioeconomic, demographic, accessibility, technology, and risk assessment considerations (including projected climate change impacts), which will be implemented in accordance with the timeline contained in the plan.
Critical Task I.D. 1
2
Public Information and Warning
Critical Task Description
Reach all populations within the community with effective actionable recoveryrelated public information messaging and communications that are accessible to people with disabilities and people with limited English proficiency; protect the health and safety of the affected population; help manage expectations; and ensure stakeholders have a clear understanding of available assistance and their roles and responsibilities. Support affected populations and stakeholders with a system that provides appropriate, current information about any continued assistance, steady state resources for long-term impacts, and monitoring programs in an effective and accessible manner.
Critical Task I.D. 1
2
Operational Coordination
Critical Task Description
Establish tiered, integrated leadership and inclusive coordinating organizations that operate with a unity of effort and are supported by sufficient assessment and analysis to provide defined structure and decision-making processes for recovery activities. Define the path and timeline for recovery leadership to achieve the jurisdiction’s objectives that effectively coordinates and uses appropriate local, state, tribal, territorial, insular area, and Federal assistance, as well as nongovernmental and
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Critical Task I.D. 2
Operational Coordination
Critical Task Description private sector resources. This plan is to be implemented within the established timeline.
Objectives
• Identify and leverage available funds and services to meet the recovery needs of the impacted community.
• Apply a unified and cross-jurisdictional coordination approach to develop a recovery strategy, working with federal, state, local and tribal stakeholders.
• Support the capacity of local and tribal governments, nonprofits and the private sector, as requested. o Coordinate with federal and state partners to leverage funds in support of local recovery efforts. o Enhance community resilience at the local and regional level by providing recovery trainings and workshops for elected officials and the general public. o Support recovery programs and assist local jurisdictions in applying for federal disaster assistance programs.
• Support existing recovery organizations and encourage the development of local longterm recovery groups through technical assistance, best-practice identification and sustained community engagement.
• Coordinate the delivery of state allocated or state-administered and federally allocated funds, checking for efficiency and compliance.
• Include opportunities for participation from and coordination with the whole community in recovery planning activities.
• Incorporate principles of mitigation and resilience in recovery planning activities.
Whole Community Involvement
The CPCB RSF supports recovery planning efforts that focus on engaging the Whole Community to develop a network of agencies and organizations that can leverage their resources to collectively support tribes and local governments with their recovery. Suggested stakeholders include aging, disability and limited English proficiency groups, local businesses and their associations, universities, the private sector and non-governmental organizations, advocacy groups, coalitions and commissions representing historically marginalized communities. To support linguistic or cultural outreach needs additional suggested stakeholders include nonprofits and other organizations who serve and/or represent diverse populations. The RSF agencies provide information regarding resources and recovery assistance to support all affected stakeholders, including people with disabilities and other access and functional needs, in the recovery efforts.
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People with disabilities and other access and functional needs may encounter barriers accessing social services and recovery resources for a variety of reasons as a result of the disaster impacts. Entities providing support during the recovery period should work to reduce or eliminate barriers to access (e.g., physical, sensory, or cognitive impairment, location, hours of operation, language). Entities should also increase access to information using media and social media platforms commonly utilized by and effective among historically marginalized groups in relevant languages and mediums.
To achieve the RSF objectives, the CPCB RSF shall identify and execute on opportunities to incorporate disability and other access and functional needs considerations into community planning and decision-making processes during the recovery period. Disability core advisory groups provide additional resources and share their subject matter expertise to facilitate inclusive recovery planning. As allowed by local, state and federal law, CPCB RSF participants share data concerning individuals with disabilities and other access and functional needs to adequately support the recovery of the Whole Community and identify additional opportunities to collaborate with one another.
Post-disaster recovery planning also provides an opportunity to address social inequities. To work toward social equity, the recovery planning process needs to be inclusive of the Whole Community, including, but not limited to, Black, Indigenous and People of Color (BIPOC) communities. Planners need to recognize inequities and biases, identify root causes and create actionable solutions toward eliminating the problem. The role of emergency management is to help all individuals and families prepare, respond to and recover from disasters. Emergency managers can fulfill this role by working with a wide variety of representative community stakeholders throughout the disaster cycle.
Organization
Mobilization
This RSF supports local jurisdictions and tribes, at their request, in developing recovery plans and building community resilience. The CPCB RSF supports the development of a state recovery plan specific to the disaster, if needed, in coordination with the Planning Section within the State Emergency Operations Center (SEOC).
Local jurisdictions and tribes may request recovery planning assistance. The ESF-14 Lead or Recovery Branch Director, if activated, coordinates with the Operations Section Chief and the SEOC Supervisor to determine if the disaster impacts warrant the activation of this RSF. The aforementioned positions determine the activation of this RSF on a case by case basis using all available impact data and the recovery planning needs of other activated RSFs. The state CPCB RSF works with the federal CPCB RSF, when activated, to gather data, identify needs and unify federal and state planning efforts to better coordinate recovery assistance. The RSF partners collaborate with the appropriate partners and resources needed to support the long-term recovery of the jurisdiction requesting assistance. The CPCB RSF activities may take place in a
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Joint Field Office (JFO) or in a separate location (e.g., a Disaster Recovery Office) to coordinate recovery actions of the RSF entities. The RSF deactivation process follows the same procedures as activation (i.e., ESF-14 Lead consults with the Operations Section Chief and the SEOC Supervisor).
Structure
The CPCB RSF conducts its activities initially within the SEOC environment, either operating remotely or in-person. The SEOC Operations Section may establish a Recovery Branch to maintain span of control when other RSFs are also activated. As the incident transitions from response to recovery and out of the SEOC setting, the CPCB RSF may conduct its activities in a JFO setting. A structure with more flexibility may be necessary to carry out the intermediate and long-term recovery efforts in the state, in coordination with, or as part of, the JFO.
SEOC
Operations
Recovery Branch
CPCB RSF
JFO Operations HRuemcoavnerSyeBrvriacnecsh/ CPCB RSF
Direction, Control and Coordination
Horizontal Integration
In addition to the participants outlined in this RSF on Page 1, the RSF remains flexible and scalable to account for additional participants who may participate in this coordination structure. This RSF is a functional recovery operational annex supporting the WRF as part of the CEMP. Other state agencies possess plans that outline their continuity of operations and/or recovery actions following an incident, to include information on executing their assigned responsibilities. The CPCB RSF leverages the existing programs and authorities of state agencies to support community planning and capacity building.
State Agency Planning Integration State agencies shall develop community planning and capacity building recovery plans and strategies commensurate with the agency's requirements and needs. Agency plans should complement the state CEMP through the Washington Restoration Framework (WRF). The following is a list of state agency plans that pertain to the function of the CPCB RSF:
• Comprehensive Emergency Management Plan (CEMP) The CEMP guides the overall emergency management roles, responsibilities and emergency management mission areas (protection, preparedness, response, recovery and mitigation).
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