Approaches to Working with Disaster Relief Organizations

6.1 Chapter Summary

When the impact of a disaster is beyond what local authorities can manage, communities may need to seek assistance from the State or Federal Emergency Management Agencies (SEMA and FEMA, respectively). Impacted areas may be declared a State or Federal major disaster or emergency. The declaration process follows the pattern of local authorities contacting SEMAs, the SEMA contacting the Regional FEMA offices, and Regional FEMA offices contacting the National FEMA office, which ultimately will contact the President.

After an area has been declared a major disaster or emergency, all appropriate parties are notified the kinds of assistance available are identified, and the areas included in the declaration are established.

A number of multi-agency teams work together to assess the impact and needs of the disaster. One team consisting of Federal, State and local representatives, completes a Damage Survey Report (DSR). It is critical that the local arborist or forester is involved on this team so that the impact on the tree resource is identified. The Interagency Hazard Mitigation Team (IHMT) studies the disaster area and recommends hazard mitigation options to be implemented to reduce future disaster impacts.

For a community to receive any funding for tree care activities, it must demonstrate a commitment to the tree resource. This commitment may be shown by having a tree ordinance, a community forest management plan or inventory, a staff forester, or by having Tree City USA status. Funding that comes as a result of a declaration is sought for a variety of uses. To obtain funding for the tree resource, it is important to be prepared.

6.2 Chapter Outline

     I. Introduction
     II. The Declaration Process
     III. Federal Disaster Declaration and Activities
     IV. FEMA Disaster Assistance Program
     V. Dealing with the FEMA for Public Assistance
     VI. Developing a Disaster Survey Report
     VII. Disaster Survey Report Example
     VIII. Hazard Mitigation
     IX. For More Information

6.3 Introduction

When a disaster occurs, the initial response and recovery activities are emphasized at the local level. Local police, fire and public works departments work cooperatively to get the situation under control. Under certain circumstances, additional help will be needed. Local authorities may contact their State Emergency Management Agency (SEMA) for this assistance. SEMA will then determine, either through an actual site visit or a phone call, whether the area needs to be declared a disaster. if the area needs to be declared a disaster, SEMA will go to the Governor for such a declaration. In some cases, the disaster situation may exceed the capabilities of state and local forces, and the Governor may request that the President declare a "major disaster" or an "emergency."

A "major disaster" is defined as "any natural catastrophe (including any hurricane, tornado, storm, high water, wind-driven water, tidal wave, tsunami, earthquake, volcanic eruption, landslide, mudslide, snowstorm, or drought), or, regardless of cause, any fire, flood, or explosion in any part of the United States, which, in the determination of the President causes damage of sufficient severity and magnitude to warrant major disaster assistance under this Act to supplement the efforts and available resources of states, local governments, and disaster relief organizations in alleviating the damage, loss, hardship, or suffering caused thereby." (FEMA, 1990).

An "emergency" is defined as "any occasion or instance for which, in the determination of the President, federal assistance is needed to supplement state and local efforts and capabilities to save lives and to protect property and public health and safety, or to lessen or avert the threat of a catastrophe in any part of the United States." (FEMA, 1990).

6.4 The Declaration Process

The actual process of declaring an area to be a major disaster or an emergency involves a number of steps. A declaration request may be denied at the state or federal level, the usual reason being that there is not enough damage. Note: Denials can be appealed. The following is a listing of the steps involved after a disaster has occurred when an area seeks state or federal disaster assistance, or both (Personal communication, Powers and Ogan, 1992):

A. Event occurs.

B. Local response. Local authorities (city, county, police, fire, etc.) respond to the disaster with activities such as clearing debris, searching for victims, and immediate repairs. If local authorities can handle the disaster with their own resources, they will not seek further assistance (process ends here). If not,

C. Local authorities contact SEMA. (See Chapter 9, Section 9.7, "State Offices Responsible for Disaster Operations.") SEMA will respond in person or by phone and complete a preliminary damage assessment (PDA). A PDA usually occurs as soon as possible. (Note: If damage is so severe and obvious, a PDA may not be necessary and the area may be declared a disaster automatically. The damage left behind by Hurricane Andrew, of 1992, is an example of an area that was automatically declared.) if a state declaration is warranted, SEMA will go to the Governor with a request. The request may or may not be accepted by the Governor. If it is not accepted, the local area may appeal and submit another request. If the request is accepted, the Governor will declare the area a State disaster and the area will receive State relief. In certain cases, the damage may exceed what the State can do to assist, and the State will seek Federal assistance. If so,

D. SEMA authorities contact regional Federal Emergency Management Agency (FEMA) offices (see Chapter 9, Section 9.6, FEMA Offices). The SEMA inspectors will share their findings with the regional Federal Emergency Management Agency (FEMA) office, and that regional FEMA office will submit a recommendation to the National FEMA office for a declaration. The National office may or may not support the recommendation. If they do not support the recommendation, the State may appeal. The appeal will usually indicate damage figures that support the fact that there is more damage than initially reported. If this appeal is again denied, the State can appeal directly to the President. If the National FEMA officials support the recommendation, they will then go to the President and recommend that the area be declared a major disaster or an emergency.

6.5 Federal Disaster Declaration and Activities

After the President declares an area to be a major disaster or an emergency, all appropriate involved parties are notified (governor(s), members of Congress and Federal departments or agencies). The kinds of assistance that will be made available and the counties or other political subdivisions that are eligible to receive assistance will then be identified.

A FEMA official will be appointed as the Federal Coordinating Officer (FCO) for the area. Based on initial PDA's and other information, the FCO will make an appraisal of the type of relief most urgently needed. The role of the FCO is to coordinate all Federal disaster assistance programs and to ensure that appropriate action is taken to help affected citizens and public officials receive the assistance to which they are entitled.

The FCO also receives assistance from other Federal agency disaster assistance specialists by forming an emergency support team(s). The FCO will also establish a temporary Disaster Field Office within the area that was affected to serve as a central location to coordinate the relief and recovery effort.

Additionally, after the area is declared a major disaster or an emergency, the Governor and the Regional FEMA Director will execute a FEMA-State Agreement. This Agreement identifies the manner in which Federal aid will be made available. it includes the following: the areas within the State that are eligible for assistance, the division of costs among Federal, State and local governments; the official period of duration to be recognized for the major disaster or emergency; and any other conditions of assistance.

6.6 FEMA Disaster Assistance Program

Under the authority of the Stafford Act (Public Law 100-707), FEMA provides public and individual assistance for recovery and reconstruction projects after a Presidentially declared disaster or emergency declaration. To receive this assistance, the state is required to prepare a State Hazard Mitigation Plan (Section 409). Types of assistance include (Florida Department of Community Affairs Division of Emergency Management, 1994):

1. Public Assistance (Section 409)
   
   As part of the Public Assistance Program, funding for appropriate cost-effective hazard mitigation measures related to damaged public facilities is available to local government.
   
   
2. Individual and Family Grant Program (Section 411)
   
   The individual and Family Grant (IFG) Program can be used by individuals to fund limited hazard mitigation activities. The IFG Program provides grants to states for making subgrants to individuals or families for serious and un-met disaster related needs. Although the amount awarded to a family is fairly limited, the funds may be used to take minimum measures required to protect homes against the immediate threat of damage or further damage.
   
   
3. Hazard Mitigation Assistance Program (Section 409)
   
   The Hazard Mitigation Assistance Program provides funding assistance to states and local governments to reduce vulnerability from recurring or potentially severe hazards by supporting hazard mitigation planning activities. The focus of the program is on hazard mitigation plans or the updating of previous plans.
   
   
4. Hazard Mitigation Grant Program (Section 404)
   
   FEMA provides financial support to implement cost-effective mitigation measures that are consistent with measures identified in the 409 Plan. The state is responsible for the management and administration of the programs.

Funding for the replacement of trees lost during a disaster may be funded under the Public Assistance Program of the Hazard Mitigation Grant Program. The Hazard Mitigation Grant Program usually requires match funds and is funded by a small percentage of total federal dollars allotted to the disaster: hence, the amount of funding available is very limited.

6.7 Dealing with the FEMA for Public Assistance

For the purpose of this mitigation document, the focus of this section will be on the assistance available for trees as a community resource. For information regarding other types of assistance, refer to the document entitled, "Disaster Assistance Programs: A Guide to Federal Aid in Disasters." (FEMA, 1990.)

In order for a community or eligible group to receive any type of assistance from FEMA, they must submit a Notice of Interest (NOI) within 30 days after the area is designated eligible for assistance. The NOI establishes that the community is in need and would like to receive assistance from FEMA. Estimates of reimbursable tree damage and the amount of funding allowed will be calculated through the Disaster Survey Report (DSR) process and unit costs set by FEMA.

FEMA's unit costs are set nationally and may need adjusting for the disaster area. With the South Florida's Hurricane Andrew Disaster the original amount of $100.00 per replacement tree and planting was far too low to cover replanting of adequate trees. Dade County's Tree Ordinance, which communities in the county are required to base their ordinances on, requires that at least eight foot planting stock be used. This size requirement, along with the rocky soil of South Dade County, made planting costs much higher than normal. Utilizing proper documentation (past planting costs and proof of ordinance enforcement) the reimbursable amount for replacement trees was increased to $200.00. Also, the ordinance required replacement of lost canopy; with large trees being replaced with two or three small trees. Note: It is very important that local personnel be aware of items that FEMA will reimburse for and the amounts that are paid so that these types of adjustments can be made as soon as possible. FEMA personnel are sometimes activated retirees and they may not be aware of recent changes, or may lack specific knowledge in tree-related information.

A team made up of a local, a state and a FEMA representative will work together to assess the impacted areas and develop a DSR. This assessment provides FEMA and SEMA with an estimated budget needed for the relief and recovery effort. Note: The choice of the local and state representatives on a DSR team is critical. It is that local person's responsibility to show effectively and efficiently where the damage exists and the extent and cost of the damage and to describe what plans have been developed to correct the problem. It is also important to have personnel that are informed of the type of damage that has occurred. When dealing with tree damage and replacements, the local personnel should be knowledgeable of trees. It also helps if the state representative is also knowledgeable of trees and tree damage and can offer an "unbiased" assessment of the tree damage. judgment calls may need to be made on the tree's survivability.

In certain situations, the city forester may be actively involved in storm response activities and may not have time to serve on the DSR team. In that situation, a community can demand that FEMA provide the assistance of a tree-assessment team made up of people who are tree experts or FEMA consultants on contract. For example, during the Rochester ice storm of 1992, the city forester was not involved in the DSR team. The DSR team consisted of a FEMA consultant, a USFS urban forester, a computer engineer from the Army Corps of Engineers, and a local highway construction supervisor who knew the roads in the damaged area (Ossenbruggen, 1993) These DSR's are reviewed and submitted by the state to the FEMA regional director for approval. If approved, the state will serve as the grantee for the program with complete program management and financial responsibilities.

NOTE: During the Hurricane Andrew incident in South Florida, the Florida Division of Forestry was able to place a liaison at FEMA's Public Assistance headquarters to assist the agency in developing policies concerning trees. This proved valuable in setting replacement values, decisions concerning remedial pruning, salvaging of damaged trees, and replacement species selection.

In considering the tree resource during a DSR assessment, it is vital for the public assistance person to recognize a community's commitment to tree management. If a community is not committed to tree management and is not perceived as being committed to managing its trees as a resource, inspectors may not allow tree costs to be covered. Indications of a community's commitment may include, but are not limited to, the existence of a community tree ordinance designation as a Tree City USA community, the existence of a management or maintenance plan for their resources, a completed tree inventory, the presence of a community forester or arborist, or documents showing previous tree replacement or maintenance because of other natural occurrences. Communities should note the following two key points:

• A community must show commitment to the tree resource through some form of a dedicated tree care program. If this is not the case and the community recognizes the need and importance of a tree management program, the community may be able to show a dedication to pursuing the effort and therefore receive assistance.
  
  
• A local community forester or arborist must be involved in the DSR. In doing so, the person will serve as the expert in describing the situation in terms of numbers of trees lost, removed, damaged, requiring proper pruning, and numbers of trees to be planted.

Often during a DSR with smaller communities, the focus is not on damage and loss to the tree resource. In fact, tree resource information may not be included in the initial DSR. These DSR's can be amended. Therefore, if commitment is shown for managing the tree resource and figures indicating tree loss and damage are generated, the DSR can be modified to include them. Once again, the bottom line to getting assistance for the tree resource is: A community must show commitment to maintaining its tree resource.

The type of assistance available to communities that show a commitment to managing their tree resource falls under the category of "Public Assistance" for "Emergency Work." Emergency work consists of work involving debris clearance, trees, buildings, bridges, and any emergency protective measures by police and fire officials. Generally, the cost-share for this work is 75/25. Federal assistance covers 75 percent; state assistance matches at 25 percent. Sometimes, the state match will be divided between the state and local governments on a 12.5/12.5 basis, in other cases, the state will cover the full 25 percent. Note: For Hurricane Andrew in 1992, Federal Assistance covered 100 percent of the costs.

6.8 Developing a Disaster Survey Report

occasionally, there may be special considerations to the disaster due to the location of the disaster. In the cases of Hurricane Hugo and Hurricane Andrew, the potential of wildfires and their threat to improvements was increased beyond the resources of local and state wildfire fighting agencies. State agencies submitted DSRs to FEMA requesting additional work force and equipment to meet the increased workload. In both cases, the DSRs were approved and temporary resources were provided. Note: "Temporary" resources are still being used in South Florida and the North Carolina because of the hurricanes. South Florida's urban forest resources were damaged to such an extent that the Florida Division of Forestry requested, and was granted, additional urban foresters to plan and supervise the replanting process. (See Chapter 8, "Notes on Hurricane Andrew.")

The following outline is provided to help in developing these types of DSRs. (The situation that the additional assistance is needed for is referred to as the "issue.")

ISSUE: PUBLIC ASSISTANCE FOR RECOVERY PROJECT

     I. BACKGROUND: Summary of how the disaster event effected the resource that the additional assistance is needed.
     II. WORK ELEMENT: Summary of actions that need to be taken to rectify the situation.
          A. LEAD AGENCIES: List of agencies that will be the major contributors to the recovery process.
          B. FUNDING: List of funding sources for recovery actions including FEMA.
          C. SCHEDULE: A brief statement stating the beginning and end of the requested project.
     III. INTRODUCTION: A description of the benefits and condition of the resource before the disaster and how the disaster
          affected the resource.
     IV. ORGANIZATION, OPERATION, AND FISCAL MANAGEMENT
          A. ORGANIZATION AND STAFFING: A brief description of the agency's organizational structure and where the
               requested project and personnel fit into the organization.
          B. POSITION DESCRIPTION OF REQUESTED PERSONNEL: A detailed description of the duties of the requested
               personnel. (it is important to cover all duties of the positions because this section is used by FEMA to review the
               effectiveness and progress of the personnel.)
          C. PROJECT DURATION: Estimate of the length of recovery process that additional resources will be needed.
          D. PRIORITIZATION OF PROJECT ACTIONS
               1. IMMEDIATE ACTIONS (FIRST PRIORITY) List of the immediate actions that need to be taken at the beginning
                   of the workplan.
               2. INTERMEDIATE ACTIONS (SECOND PRIORITY)
               3. LONG-TERM ACTIONS (THIRD PRIORITY)
          E. BUDGET INFORMATION: A detailed budget showing all estimated costs for the duration of the project including
               equipment (purchased and leased), personnel costs, and contractual expenses.
               1. PERSONNEL: Estimated salaries for all additional personnel for the duration of the project.
               2. EXPENSE: Detailed estimate of the cost of purchased and leased equipment for the duration of the project.
               3. CONTRACTUAL: Detailed estimate of contractual expenses.
               4. TOTAL PROGRAM COST

Note: It is important to emphasize that the requested project is within the normal operation of the agency requesting assistance but the disaster has created a situation that the agency's existing resources can not handle.

6.9 Disaster Survey Report

The following is an example of an approved DSR submitted to FEMA, written by Gene Dempsey and James B. Harrell, Cooperative Forestry Assistance Supervisor, Florida Division of Forestry. Utilize this example as a model when writing Disaster Survey Reports:

FLORIDA DEPARTMENT OF AGRICULTURE AND CONSUMER SERVICES

DIVISION OF FORESTRY

HURRICANE ANDREW URBAN REFORESTATION ISSUE

ISSUE: PUBLIC ASSISTANCE FOR RE-ESTABLISHMENT OF URBAN AND COMMUNITY TREES

BACKGROUND: Hurricane Andrew severely damaged the urban tree resources on both public and private lands in Dade, Monroe and Broward Counties and parts of Collier County. In the direct path of the hurricane, the estimates of trees destroyed (uprooted or broken off) or severely damaged (requiring extensive corrective trimming of major limbs) range from 60 to 90 percent of the pre-hurricane tree canopy. The immediate removal of the downed tree debris, plus the subsequent removal of trees that later die due to the indirect causes of physiological stress and/or insect and disease infestations, will essentially eliminate the urban tree canopy and denude the heaviest hit area of trees. immediate action is needed to insure that trees are replanted in urban areas and that the urban forest that develops does not constitute a safety hazard to the general public.

WORK ELEMENT: A proactive campaign of technical assistance beyond the normal capabilities of the Division of Forestry is necessary to insure the replanting of appropriate tree species on both public and private lands. The magnitude of the reforestation effort in the devastated area will require additional manpower and equipment to supplement current Division of Forestry resources. Total program measures to restore the pre-hurricane tree canopy should include:

LEAD AGENCIES: Florida Department of Agriculture and Consumer Services (FDOACS) Division of Forestry, Florida Cooperative Extension Service, Florida Urban Forestry Council

FUNDING: FDOACS Division of Forestry; Florida Cooperative Extension Service; FEMA

SCHEDULE: Begin immediately and continue through September 30, 1994.

Hurricane Andrew Urban Reforestation Plan (Click to view)

6.10 Hazard Mitigation

Assistance may also come to the community in the form of hazard mitigation. An Interagency Hazard Mitigation Team (IHMT) made up of individuals from state and federal agencies, including FEMA, SEMA, Soil Conservation Service, U.S. Army Corps of Engineers, U.S. Fish and Wildlife Service, USDA Forest Service, Federal or State Highway Departments, Economic Development Administration, the National Weather Service, the State Department of Natural Resources, and the U.S. Geological Survey, as well as others, work together to identify and make recommendations for activities and ways to reduce damage in future disasters. Depending on the Hazard Mitigation Funding that is available, communities may receive funding for one or more of the IHMT's recommendations.

Types of recommendations by the IHMT regarding the tree resource may include one or more of the following (please note, the list below is not all-inclusive, nor listed, in order of importance):

• Education of local authorities, tree care workers, urban foresters, arborists, citizens, and volunteer groups about urban forest management and about the need to properly plant, prune and maintain trees.
• Identification of trees that need to be pruned to reduce potential limb failure in future storms.
• Maintenance practices that will improve the overall health and quality of the tree for future disasters.
• The development of community tree ordinances.
• The completion of an inventory of the tree resource and a management plan based on information from the inventory.
• Identification of options for wood waste utilization or methodologies for the least cost disposal.
• The development of a hazard mitigation plan that considers the tree resource.

Hazard Mitigation Funding is limited. The amount of funding is determined by taking ten percent of the amount of funding that-was received for the area for use for permanent restorative work. Thus, if an area is to receive $1 million for permanent restorative work as a result of a disaster, then only $100,000 would be available for hazard mitigation activities. These activities are not limited to the tree resource and may involve housing on floodplains, bridge replacement or restructuring, highway reconstruction, etc. Therefore, it is important that the activities that are recommended are deemed to be very important and can be well justified.

6.11 For More Information

Federal Emergency Management Agency. 1990. Disaster assistance programs: A guide to Federal aid in natural disasters. Federal Emergency Management Agency. Washington, D.C. 20472

Florida Department of Community Affairs Division of Emergency Management, 1994. State of Florida Hazard Mitigation Plan (Draft)

Matheny, N. P., and J. R. Clark. 1991. A photographic guide to the evaluation of hazard trees in urban areas. International Society of Arboriculture, Savoy, IL 61874.

Shigo, A. L. 1989. Tree pruning, a worldwide photo guide. Shigo and Trees, Associates. 4 Denbow Road, Durham, NH 03824-3105.

Contact the nearest State Emergency Management Agency or local Federal Emergency Management Agency regional office for additional information. (Refer to Chapter 9, Sections 9.6 and 9.7, for addresses and telephone numbers.)

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