Post Disaster Recovery Planning Toolkit

Step 3: Identify Recovery Sectors and Build Partnerships

 

 

 
 

Step 3: Identify Recovery Sectors and Build Partnerships

 
 

Step 1

Get Started

Step 2

Establish Post-Disaster Recovery Coordination

Step 3

Identify Recovery Sectors and Build Partnerships

Step 4

Communicate and Engage with Community Stakeholders

Step 5

Formulate Recovery Projects and Draft Plan

Step 6

Implement and Monitor Recovery

 

Step 3

In this step, you will learn how to identify recovery sectors, establish or activate Recovery Support Functions, build partnerships, and establish donations and volunteer management capabilities.

Guiding Questions

Determine who: What long-term recovery needs require the support of local government and/or the long-term community recovery organization?
Get organized: How should the stakeholders, resources, and activities needed to address your community’s long-term disaster recovery requirements be organized?

Checklist for Step 3

  • Activity 1: Identify Recovery Sectors and establish or activate Recovery Support Functions (RSFs)
  • Activity 2: Build Partnerships
  • Activity 3: Establish Donations and Volunteer Management Capabilities

 

Step 3, Activity 1: Identify Recovery Sectors and Establish or activate recovery support functions (rSFs)

The purpose of this activity is to identify the sectors or aspects of community life and economy that will require the support of long-term recovery planning and operations while separating recovery needs, people, resources, and activities into logical functioning groups, coordination, and clarity of purpose.

Tips

  • Your community’s disaster assessment methodologies should structure data collection to support a sectoring process.
  • If disaster recovery plans or frameworks are in place before a disaster, and RSFs have been established, then assessment checklists or guidelines should structure information accordingly.
  • Build off the sectors identified in your community emergency operations or recovery plans.
  • Even if your community does not have an existing RSF construct in place (such as in a pre-disaster recovery plan), recovery activity can be coordinated according to the functions outlined in the State Emergency Operations Plan.
  • Consider your community’s own needs, preferences, capabilities, and resources and determine what structuring makes the most sense to you.

Why?

Disasters come with varying levels of impact throughout multiple sectors of the community. There is no telling how one disaster will impact a community versus another. More information on the State EOC Public Information Status Report. Coordinating disaster recovery support is an “all hands on deck” endeavor that involves support from both government and non-governmental organizations and entities. 

Many states and communities align recovery assistance with sectors using a Recovery Support Function (RSF) construct. The RSFs address both sectoral and functional recovery support needs. It can be inefficient and even counterproductive to group all activities and issues under a single coordination structure because the scope and nature of these can differ markedly between sectors. The use of RSFs:

  • Helps ensure that recovery planning is scalable and flexible.

  • Allows for a high degree of activity and resources only where they are needed. 

  • Creates chains of command wherein leaders or coordinators have the knowledge, skills, and backgrounds relevant to the needs that will be addressed.

When?

Your community recovery planners begin to identify recovery sectors during the disaster assessment process. These sectors are reflected in the activation of Emergency Support Functions (ESF) within the Emergency Operations Center (EOC). RSFs are identified and activated by the recovery leader at (or before) the deactivation of the EOC and transition from response to recovery. (Days 31-60)

How does my community do this?

  1. Identify which societal and economic sectors will require recovery support. Be sure to obtain input from sector partners, stakeholders, and subject matter experts. Ensure that recovery sector representatives, or RSF stakeholders if RSFs have been previously established, are actively engaged in the disaster damage and needs assessment efforts (ultimately determining RSFs activation). Consider prioritizing by the following factors:

    • The nature of losses and damages, including their long-term implications to your community.

    • The vulnerability drivers that enabled or contributed to the damage and/or destruction, and how those vulnerabilities differ between different community groups or geographic areas.

    • The options and opportunities exist to address vulnerabilities, risk, and resilience.

    • The associated short- and long-term recovery timelines.

  2. Determine which RSFs, if any, require activation, and inform RSF lead and support agencies. The Colorado State Emergency Operations Plan (SEOP) (Pages 23-24) has incorporated a system of sectoring that is aligned with the National Disaster Response Framework (NDRF) (Pages 24-32). The NDRF utilizes 6 RSFs, and Colorado SEOP further segments these into 13 State RSFs. Upon deciding that one or more RSFs require activation, RSF lead, and support agencies are notified and mobilized. The recovery manager, in consultation with the recovery organization, will determine the meeting frequency of activated RSFs and outline expectations. Establish sector-specific coordination mechanisms as a component of post-disaster recovery planning. 

  3. Activate appropriate and needed RSFs. The RSFs (or their equivalent) will be activated or established at the discretion of the recovery manager. Depending on the size and scope of the disaster, the RSF stakeholders may report directly to the recovery manager, the recovery committee, or an Operations Section Chief, if one has been designated for recovery efforts. Certain RSFs have subcategories that may also be activated as needed. The following table illustrates how the State segments RSFs at the local level in a Colorado recovery plan.

Community Call Out: Douglas County

Douglas County’s pre-disaster recovery plan organizes recovery efforts according to seven RSFs. One of those RSFs is the Economic RSF and illustrates how sectoring through an RSF construct helps to better group stakeholders, resources, and activities around a defined mission. In the case of the Economic RSF, its mission is to sustain and/or rebuild businesses and employment and develop economic opportunities that result in a sustainable and economically resilient county after large-scale and catastrophic incidents. The RSF provides structure to the specific recovery functions that may be needed should this sector be impacted. They include Supply Chain Recovery,  Employment Recovery, and Business Restoration Recovery. 

This RSF is led by several agencies (Douglas County Economic Development, City and Town Managers, and  County Admin & Finance),

indicative of the activities that would be addressed by those agencies. RSF support agencies, which are indicative of the ‘whole community’ nature of recovery, include: 

  • Douglas County Governments 

  • Douglas County Treasurer Support Organizations

  • Local large businesses Support Organizations

  • Local Chambers of Commerce 

  • Colorado Department of Local Affairs (DOLA)

  • Colorado Department of Agriculture Support Agencies

  • The Federal Emergency Management Agency (FEMA)

 

Step 3, Activity 2: Build Partnerships

The purpose of this activity is to formalize the relationships that exist with different stakeholders as individual entities, and across entire sectors.

Tips

  • Engage with all partners: Coordinate, collaborate, communicate, and cooperate with all partners to maximize the utilization of available resources, avoid duplication of benefits and/or services, generate financial material and personnel resources, and enhance community confidence.
  • Keep the economy in mind: Partnerships with local businesses and organizations can help to revitalize the local economy. Where possible, recovery efforts should utilize grant funding, philanthropic support, or other recovery funding to support local partners.
  • Consider the key community sectors (e.g., housing, healthcare, social services, businesses, etc.) and other communities that need to be addressed by local agencies and organizations.
  • Purposes of partnerships can vary: Some can be advisory only while some partnerships include more direct involvement in the recovery. The purpose of some partnerships can also evolve.
  • Keep funding in mind: Establishing partnerships with the various state, federal, and non-governmental (non-profit and business) agencies is the most important aspect of preparing a funding strategy. Communities will be more effective and garner greater support over a longer duration if they first develop relationships with potential partnership (and funding) agencies. This relationship allows your community to fully understand the policies, timelines, limitations, and parameters of the partnering agency. It also allows your community to communicate and "sell" the project and the scope of redevelopment to the partnering agency.

Why?

Short and long-term disaster recovery is possible only through the broad support of this wider community of stakeholders. Disaster impacts are felt beyond political boundaries, across county lines, and even across multiple states. Therefore, communities must expand their capabilities to address what is needed to operationalize recovery plans. A robust recovery system that includes different stakeholder organizations and agencies helps to ensure a streamlined recovery process for all involved. The partnerships that are built often represent one of the most significant positive outcomes of a successful recovery planning effort given the enduring resilience benefits that result.

When?

Partnerships can be established at any point, but ideally before a disaster strikes. In planning for recovery in the aftermath of a disaster, many partnerships are formed to tackle recovery needs. (Days 1 - Ongoing)

How does my community do this?

  1. Scope potential partners for recovery planning and operations. The community recovery organization is in and of itself a partnership of recovery stakeholders, and so community recovery partnership efforts typically begin here if pre-disaster recovery planning has not occurred. The sectoral and organizational representatives that are engaged through this group, and which draw from the faith-based, non-profit, governmental, business, and other stakeholder communities, are the first tier of partners available to address operational recovery needs. These members are also a link to additional partners when resource and staffing needs become clear. 

  2. Engage and recruit potential recovery partners. Organizations and agencies are often eager to assist with a disaster but need to be invited to become involved. Recovery leaders and elected officials can encourage the participation of all potential partners, both in the planning and coordination of disaster recovery and in carrying out the activities required to operationalize those plans, through communications and networking.

  3. Formalize partnerships through the use of appropriate partnering agreements. To be effective, partnerships require structure. An effective partnership agreement represents the end-product of a successful partnership-building effort and the beginning of a strong partnership. Reaching that point requires several steps. Formalize partnerships through written agreements, including interagency agreements, partnership agreements, memoranda of understanding, and mutual aid compacts that detail commitments to authorities, timelines, roles, responsibilities, relationships, and resources.

  4. Recognize partners for their contributions to community recovery and resilience. It is important to celebrate success and recognize the people and organizations that help contribute to positive outcomes for the community. Recognizing partners for their contributions will help strengthen the partnerships and ensure that those people and organizations will continue to be involved in both pre-disaster planning and post-disaster recovery in the future.

Community Call Out: City of Boulder

The City of Boulder fostered partnerships with several local and regional organizations in the aftermath of the 2013 floods to support long-term community recovery efforts.

 

Step 3, Activity 3: Establish Donations and Volunteer Management

The purpose of this activity is to develop a plan and system to manage donations and volunteers.

Why?

The need for people, supplies, and cash resources to support recovery is significant. If systems are not in place to properly manage spontaneous volunteers and donations, several problems can arise:

  • Resources may not be appropriate. Poorly matched donations can stall recovery when staff must sort, store, and dispose of unneeded or unusable donations. 

  • Unmanaged volunteers and donations are unlikely to be efficiently allocated. Volunteers and donors often have preferences regarding the use of their time or donations, but what is most important is matching resources to unmet needs. Self-selection often leads to both gaps and duplication or redundancy. 

  • The administrative needs of volunteers and donations can present a significant challenge if insufficiently managed. 

To be effective, volunteer coordination and donations management must not be ad-hoc. Formalized processes allow the matching of resources, human and otherwise, with identified needs. Proper structures and procedures allow recovery organizations to ensure that only those volunteer skills and abilities that are needed are accepted, and that donated materials are appropriate for unmet needs.

When?

Donations and volunteer management activities begin with the activation of the EOC. Procedures are determined by your community emergency operations plan. (Days 1-30).

How does my community do this?

  1. Work with the news media and social media outlets to communicate volunteer and donation needs and processes to the public. Frame your specific needs, and develop a single, centralized, and well-publicized call center to receive and process donations or volunteer offers.  

  2. Set up a 211 system:  2-1-1 Colorado streamlines services and provides one central location where people can get connected to the resources they need. 2-1-1 can be called or an online searchable database can be used. It can be used to support volunteer and donations intake and referral. 

  3. Establish volunteer and donations management intake and processing capabilities. Recruit a volunteer and donations coordinator. This may be managed by community partners such as the Colorado Voluntary Organizations Active in Disaster (COVOAD), the American Red Cross, the Salvation Army, the United Way, or other local community foundations that are common partners.  Create a volunteer and/or donations reception center or facilities that can be established to process large numbers of volunteers or to receive large amounts of donated goods in larger disasters.  

  4. Track volunteer and donation resources according to FEMA local match reporting requirements should the event rise to the level of a Presidential major disaster declaration. Because volunteer hours worked and the cash value of donated resources can often be used to satisfy local match requirements of federal disaster programs, each must be closely tracked and accounted for per the requirements of these programs. Access a Volunteer Management Intake Form Template.

 

Additional Guidance for Step 3

Click on the question to expand the answer.

+ What are some Key Resources I could read to learn more?

+ How should our long-term community recovery organization solicit donations for the disaster recovery effort?

Access to recovery resources is typically greatest in the early days and weeks of the disaster response even though these resources are required for long-term activities. The National Voluntary Organizations Active in Disasters (NVOAD) Long-Term Recovery Planning guide states that the most effective guidelines for soliciting donations include:

  • Identifying immediate needs and projecting future needs to ensure that solicitations enable materials to arrive when they are best used.
  • Determining exactly what is needed and the circumstances under which donations will be received.
  • Communicating information about how and when to donate funds or materials to the public clearly and concisely.
  • Educating the media, churches, and civic groups as to the exact nature of materials, funds, or skills needed.
  • Identifying an organization to manage the receipt, warehousing, and distribution of material or professional service donations.
  • Cash resources are always best; feel confident in requesting monetary contributions if that is an identified need. Cash allows the recovery organization to purchase exactly what is most urgently needed and helps to stimulate the local economy.

+ Who should our community consider partnering with?

Partners to consider engaging include:

  • Government agencies (all levels and disciplines)
  • Community councils (e.g. Local Planning Councils (e.g., Citizen Corps Councils, Local Emergency Planning Committees), chambers of commerce, etc.)
  • Community volunteer centers that are active during non-disaster times are valuable partners in disaster-related volunteer and donation management efforts because they are already recognized by community members.
  • The Colorado Donations and Volunteer Coordination Teams (DCT and VCT, together with the DVCT), through DHSEM, can provide state-level coordinating and facilitating of unaffiliated volunteers and unsolicited or undesignated in-kind donations from the general public and private sector.
  • The Colorado Donations and Volunteer Management Network (CDVMN), consisting of potential donors, credible relief groups/organizations, and government emergency management agencies, can help to connect potential donors/volunteers with relief agencies through the CDVMN Portal (also known as ‘Aidmatrix’).
  • Faith-based organizations
  • Individual citizens
  • Community leaders (e.g., representatives from specific segments of the community, including seniors, minority populations, individuals with functional and access needs, and non-English speakers)
  • Disability services
  • School boards and higher education institutions
  • Local Cooperative Extension System offices
  • Animal control agencies and animal welfare organizations
  • Surplus, hardware, and big-box stores
  • Small, local retailers
  • Supply chain components, such as manufacturers, distributors, suppliers, and logistics providers
  • Home care services
  • Medical facilities
  • Advocacy groups
  • Media outlets
  • Public transportation systems and airports
  • Utility providers

+ What are common responsibilities for RSFs?

Although each RSF has individual and unique responsibilities, several responsibilities are common among all RSFs. These include:

  • Identifying critical areas;
  • Prioritizing projects within their respective area of responsibility;
  • Supporting vulnerable populations;
  • Sharing information with other RSFs and the EOC;
  • Maintaining situational awareness across RSFs;
  • Tracking and managing resources assigned to them;
  • Providing safety information to assigned resources;
  • Data collection and tracking; and
  • Maintaining effective internal communication.

+ What are some RSF leadership tasks?

RSF leadership should ensure the following is done:

  • Inventory resources and capabilities and identify outstanding needs;
  • Identify, and address, resource procurement challenges;
  • Train staff in recovery roles and responsibilities in coordination with the OEM;
  • Brief supporting agencies and organizations to ensure that mobilized Supporting Agency staff within each RSF have up-to-date situational information and assignments;
  • Identify additional or extraordinary funding needs;
  • Maintain documentation in coordination with the Finance/Admin Section;
  • Provide information and updates through the recovery planning cycle established by the recovery manager;
  • Maintain compliance with applicable legal requirements; and
  • Ensure the health safety and welfare of recovery staff through communication with the safety officer and logistics staff.

+ What are some RSF guiding principles?

RSFs can establish guiding principles to address how recovery objectives are managed within the RSFs. Examples include:

  • RSFs and other sectoral groupings of stakeholders operate according to Incident Command System (ICS) principles inclusive of unity of command; chain of command; management by objectives; an appropriate span of control; common terminology; and proper accountability of resources.
  • To the degree applicable, participating stakeholders employ normal day-to-day operating and reporting procedures.
  • Lead and supporting agencies establish internal communications and information exchange protocols to ensure awareness and transparency.
  • Assets available to any recovery function will be made available to support city- or county-wide recovery activities in coordination with overall recovery management structures.