December 12, 2006
Vision for New FEMA
The Nation’s Preeminent Emergency
Management Agency
Vision for New FEMA
The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 2 of 32
CONTENTS
Overview
The Nation’s Preeminent Emergency Management Agency
Core Competencies
1. Incident Management
2. Operational Planning
3. Disaster Logistics
4. Emergency Communications
5. Service to Disaster Victims
6. Continuity Programs
7. Public Disaster Communications
8. Integrated Preparedness
9. Hazard Mitigation
Supporting Strategies
􀂃 Business Approach to Achieving Desired Results
􀂃 Shape the Workforce
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 3 of 32
OVERVIEW
“[ T] he American people don’t care about acronyms or organizational charts. They want to know who
was supposed to do what, when, and whether the job got done. And if it didn’t get done, they want to
know we are going to make sure it does the next time.”
Final Report of the Select Bipartisan Committee to Investigate the
Preparation and Response to Hurricane Katrina,
U. S. House of Representatives
February 15, 2006
“ This government will learn the lessons of Hurricane Katrina. We are going to review every action and
make necessary changes so that we are better prepared for any challenge of nature, or act of evil men,
that could threaten our people.”
President George W. Bush, September 15, 2005
To regain the trust and confidence of the American people, we will transform FEMA into the
Nation’s Preeminent Emergency Management Agency. To do this, we must:
􀂃 Strengthen core capabilities, competencies and capacities. Fostering a national
emergency management system and implementing a cohesive national
preparedness system must begin by strengthening the foundational building blocks
of a weakened but venerable agency. The Nation needs a strong FEMA; but that
cannot be achieved without purposeful new investments.
􀂃 Build strong Regions. The Region is the essential field echelon of FEMA that
engages most directly with State partners and disaster victims to deliver frontline
services. It is the Region that can build and nurture State and local capabilities
across the spectrum of preparedness, response, recovery and mitigation. And it is
the Region that will lead the Federal response to incidents across the spectrum of
all- hazards events. A strong FEMA will rely on strong Regions to regain the trust
and confidence of Governors, mayors, leaders in the private sector and the citizens
of our homeland.
􀂃 Strengthen our partnership with States. Response to disasters and emergencies is
primarily a State and local effort. To build and support an effective National
system of emergency management, FEMA must have effective partnerships with
State and local governments.
􀂃 Professionalize the national emergency management system. The Nation’s ability
to marshal an effective response to disasters requires the right people with the right
skills. We will work with our partners to build a nationwide system of trained and
certified experts skilled in all hazards emergency management – starting right here
in FEMA.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 4 of 32
Focusing on core capabilities and the partnerships and people that comprise the Nation’s
preparedness and emergency management system will enable us to:
􀂃 Marshal an effective national response. We will respond more quickly and
effectively, bringing the right people and resources from across Federal
departments and agencies to bear when and where they are needed.
􀂃 Deliver service of value to the public. We will provide timely, compassionate and
less bureaucratic disaster assistance to hasten the recovery of individuals and
communities while minimizing the opportunity for waste, fraud and abuse.
􀂃 Reduce vulnerability to life and property. We will work with our partners to
prepare, plan, and mitigate before disaster strikes, and leverage those opportunities
to reduce risk and the actual loss of life and property.
􀂃 Instill public confidence. FEMA will demonstrate mission effectiveness and
efficiency, in proper balance, to regain the trust, faith and confidence of the
American public. Organizationally, no asset should be more prized, or more dear
when lost, than the confidence of the public we serve. We will work with our
many partners to build an Agency the Nation can once again look to with pride.
Therefore, with keen focus and discipline, we will build FEMA’s operational core
competencies:
1. Incident Management
2. Operational Planning
3. Disaster Logistics
4. Emergency Communications
5. Service to Disaster Victims
6. Continuity Programs
7. Public Disaster Communications
8. Integrated Preparedness
9. Hazard Mitigation
These core competencies must be grounded in an ethos that employs a business approach to
achieving desired results. This business approach will enable wise business decisions backed
by finance, budget, human resource and information systems support capabilities designed and
scaled to enhance FEMA’s mission success. We recognize how far we have to go to truly
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 5 of 32
achieve this Business Approach to Achieving Desired Results, but we will not shrink from the
work it will require. To attain an analytical and requirements based approach to managing the
business of the Agency, we will:
􀂃 Develop integrated data systems that leverage proven hardware, software and
middle ware to meet the needs of FEMA’s important mission and help give the
Agency’s management and line staff the tools they need to get the job done and do
it well.
􀂃 Establish program analysis and project management capabilities at decision points
of the Agency, and institutionalize a results oriented, return- on- investment
management culture.
􀂃 Build an efficient acquisition process that adheres to policies, proven standards,
systems and procedures, supported by a balanced workload distribution, and instills
proficient contract management as a key skill- set within the Agency. This is key to
our ability to accomplish as much pre- event procurement as possible, ensuring that
when an event occurs all that remains is the order to activate the assets and
resources we need.
􀂃 Reform FEMA’s major management and administrative activities, including human
capital, finance and budget, space management, personal property management,
planning, recruitment and hiring.
Lastly, to achieve enduring success as the Nation’s Preeminent Emergency Management
Agency, we must Shape the Workforce that will take FEMA to a new level of competency
and professionalism. To do this we must assess and transform the Agency’s over reliance on
contractors and reserve workforce in order to strengthen the Agency’s force structure, achieve
the right mix of skills and know- how, and strike the right balance of permanent, reservist and
temporary personnel.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 6 of 32
CORE COMPETENCY
1. Incident Management
FEMA’s ability to marshal an effective response to disasters must be based on a professional,
national network of emergency managers skilled in incident management. At all levels of
government, Federal, State and local, emergency management personnel must be trained and
certified experts who operate well together across the full spectrum of emergency management
planning and operations. As in any profession, they will share an established body of
knowledge and work from a common National doctrine – the National Response Plan. FEMA
will provide the foundation necessary to achieve this by working with our State and
Association partners to establish common standards for training and certification of the
Nation’s emergency management personnel and providing better support to State and local
emergency management organizations. FEMA will begin this cross- jurisdictional,
collaborative initiative by strengthening its own incident management capability.
To develop the standards and protocols for a National certification system for the Nation’s
emergency management personnel, FEMA will partner with professional associations active in
the field of emergency management. FEMA will work with such associations as the National
Emergency Management Association ( NEMA), the International Associate of Emergency
Managers ( IAEM) and the National Fire Protection Association ( NFPA) to build on their
pioneering work in this and related areas. These standards will be focused on attaining the
National Preparedness Goal, and built upon doctrine promulgated at the Federal level,
including the National Response Plan ( NRP), and the National Incident Management System
( NIMS). FEMA must be more than a facilitator and standard bearer for the profession of
emergency management: FEMA will become a leader and model of effective implementation
of incident management skills and practices.
Incident Management is more than a process as it has an inherent operational aspect in the
form of sustained situational awareness; a command, communication and coordination system
comprised of a national and Regional command and coordination centers; national and
Regional rapid support and response teams; and, a collection of competency based and
technically oriented operational teams, such as the Urban Search and Rescue Teams. These
capabilities offer a unique and non- redundant capability that, as a system of systems, ensure
that the Federal emergency response systems and capabilities are properly poised to lean
forward to support Federal decision makers and be in position to immediately receive and react
to the expressed requirements to support States who may have been overcome by the demands
of an emergency or major disaster.
Professionalize the National Network of Emergency Managers
􀂃 Take a National approach to professionalization. FEMA will take a National approach to
implementing certification standards, rather than taking a more directive, Federally-mandated
approach. FEMA will engage with professional associations, academia and the
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 7 of 32
private sector to cooperatively provide an array of avenues for obtaining professional
emergency management certification, education, training, and career development.
􀂃 Expand the emergency management body of knowledge. FEMA will work with
associations, universities and institutions to jointly develop and standardize a common
body of knowledge for the profession of emergency management and to advance the
overall State of emergency management competency and expertise Nationwide. To this
end, FEMA will establish the National Preparedness Integration Center ( NPIC) as a center
of excellence in the overall practice of preparedness planning and emergency management.
NPIC will be the Federal leader in research, training and education in the field of
preparedness and emergency management, leveraging knowledge and best practice from
practitioners at all levels and across sectors – public, private, and non- profit – to strengthen
the national preparedness and emergency management system.
􀂃 Strengthen emergency management education. FEMA will work through the NPIC with
institutions of higher education to facilitate the development of curricula that will support
the granting of degrees in emergency management, and begin laying the foundation for
future generations of professional emergency managers.
􀂃 Sustain National doctrine and policy. In coordination with our State and local partners,
work jointly with and across Federal departments and agencies and within the Department
of Homeland Security to develop and sustain an active review and renewal of the
associated family of National emergency management policy and doctrine. Sustaining
active engagement across this realm of policy and doctrine will ensure the proper state of
disaster readiness across all jurisdictions of government and alignment with non-governmental
organizations and the private sector to support the frame work for the
Nation’s preparedness and emergency management systems.
􀂃 Actively administer the National response doctrine. As the lead Federal agency for the
National Response Plan ( NRP) and the National Incident Management System ( NIMS),
FEMA will exert active ownership and proactively administer the Nation’s response
doctrine resident in these documents. FEMA will ensure the NRP reflects the lessons
learned and knowledge gained from the latest experience of incident managers and
emergency responders across the Nation. Through the NIMS Integration Center
( NICNPIC), FEMA will be the Nationally recognized expert in NIMS and the Incident
Command System ( ICS), on par with the National Interagency Fire Center and others.
Strengthen FEMA’s Incident Management Capability
􀂃 Ensure 24/ 7 operational awareness. FEMA will improve around the clock operational
awareness by establishing 24/ 7 operations in the National Response Coordination Center
( NRCC) at headquarters and the Agency’s ten Regional Response Coordination Centers
( RRCCs), and help enable the Agency to shift its footing from a reactive to a ready stance,
able to act swiftly and decisively in both notice and no- notice all- hazard events to activate
and coordinate Federal response actions.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 8 of 32
􀂃 Strengthen FEMA’s Regional operations and partnerships. Strong Regional partnerships
and effective Regional operations are the lynchpin of FEMA’s success. FEMA’s ten
Regional offices will serve as the primary providers of the full range of incident
management support to the States. They will facilitate maintenance of critical Regional
partnerships by serving as the primary Federal face to the States and other Regional
partners in matters of emergency management and Federal disaster assistance. FEMA
Regional Directors will be directly accountable for ensuring Regional performance,
maintaining effective relationships with States and other partners, and leading the overall
programmatic success of FEMA programs and operations in their Regions. FEMA
headquarters leadership will support this increased level of focus and dedication by
clarifying roles and responsibilities for Regional personnel, establishing clear objectives
and management expectations from the top, and helping Regions ensure they have the right
people and tools for the job.
Field National Rapid Support and Response Teams ( N- RSRT) & Regional Rapid
Support and Response Teams ( R- RSRT)
􀂃 Establish National Rapid Support and Response Team ( N- RSRT) and Regional Rapid
Support and Response Teams ( R- RSRTs). Rapid Support and Response Teams will be
comprised of full- time support and response experts on 24/ 7 alert status, who are charged
to arrive at the site of a disaster in support of Federal and State emergency management
requirements within 12 hours of initial notification and to establish a Federal on- scene
presence to provide real time situational awareness ( i. e., establish the Common Operational
Picture) to Federal and State decision- makers. These teams will provide a command,
coordination and communication capability to: meet specified State support requirements;
support the State and local unified command; coordinate the delivery of Federal assistance;
identify supporting facilities and staging sites for future support; and be prepared to meet
emerging Federal and State requirements. Under the leadership of a Federal Coordinating
Officer ( FCO), the RSRT will reflect multi- agency membership, be trained in the
application of NRP/ NIMS policies and procedures, and form the nucleus for augmentation
by other Federal and State emergency management expertise. The RSRT will accomplish
its mission and coordinate Federal assistance, in part, through activation of pre- scripted
mission assignments; access to pre- staged commodities, supplies and equipment; and by
executing pre- arranged contractual agreements with the private sector. When not in
deployed status, these teams will train and exercise with State and local counterparts in
order to establish productive pre- event relationships, gain familiarity with Regional issues
and contribute to the elevation of a national preparedness culture and enhancement of
cross- jurisdictional emergency management competencies.
􀂃 Deploy ready stand up capability for Joint Field Offices ( JFOs). In anticipation of the
arrival of additional capabilities, the RSRT will form a first- stage JFO by preparing for the
JFO Coordination Group, which generally will be comprised of the Principle Federal
Official ( PFO), Deputy PFO, FCO, State Coordinating Officer, and other senior Federal
officials, and will provide full reach- back capability to communicate with FEMA Regional
and headquarters support teams.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 9 of 32
Enhance Urban Search and Rescue ( US& R)
􀂃 Strengthen the Urban Search & Rescue Program. FEMA’s National Urban Search and
Rescue ( US& R) Response System is a framework for structuring local emergency services
personnel into integrated disaster response task forces. There are 28 US& R task forces
located throughout the continental United States. These task forces, complete with the
necessary tools and equipment, skills and techniques, can be deployed by the Department
of Homeland Security for the rescue of victims of structural collapse. Each task force
includes 70 specialists and is divided into six major functional elements: search, rescue,
medical, hazmat, logistics and planning. The task force is divided into two 35- member
teams, which allows for the rotation and relief of personnel for round- the- clock search and
rescue operations, or deployment as two separate teams for smaller operations.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 10 of 32
CORE COMPETENCY
2. Operational Planning
The National Response Plan ( NRP) incorporates best practices and procedures from many
incident management disciplines, and integrates them into a unified structure that explains how
Federal departments and agencies will work together and how the Federal government will
coordinate with State, local and tribal governments and the private sector to manage domestic
incidents. The NRP does not, however, provide the level of detail necessary for State and
Federal personnel to plan, train and exercise for and jointly and cooperatively respond to
specific incidents.
FEMA Operational Planners will assist State and local jurisdictions in developing specific
operational plans that will guide their response activities and help build a National culture of
preparedness. Where the Preparedness Directorate will provide the National Preparedness
Goal, and the framework and guidance States need to develop operational plans, FEMA’s
operational planners will, in turn, work with States to actually write and develop these
operational plans. Through FEMA’s Regional offices, we will work with the States to ensure
the development of coordinated and integrated State- Federal plans. As an example, in the
singular facet of evacuation planning, FEMA Operational Planners will provide technical
planning assistance to States in developing evacuation plans, assessing storm surge estimates,
evacuation zones, evacuation clearance times, transportation capacities, and shelter capacities.
Establish Operational Planning Competency
􀂃 Work within FEMA and with our State partners to develop operational plans and
operational planning capabilities. FEMA Regional offices will work with States to
breathe life into the planning templates provided by the Preparedness Directorate. These
planning efforts will include both response and recovery elements, will be integrated with
State hazard mitigation plans, and will be linked to Federal preparedness grant funding as
well. Once they have been supplied with State- specific characteristics, these jointly
developed plans will form the basis for conducting joint Federal- State training and
exercises, thus promoting a more robust, multi- level capability to quickly respond to notice
or no- notice events. States in turn can then develop the next level of operational plans by
working with their local emergency management jurisdictions. As part of this effort,
FEMA will work at all levels to promote training in and the development of operational
planning capability at State and local levels.
􀂃 Build incident- specific catastrophic plans. Based on the identification of geographically-specific
catastrophic hazards, such as a California earthquake, and the threats identified in
the National Planning Scenarios, FEMA will also engage with Regional Federal and State
partners to conduct catastrophic planning. Because of the scale of a catastrophic event,
planning requires either the involvement of multiple States, a myriad of Federal agencies,
or both. For example, FEMA is currently working on plans specific to an earthquake in
the New Madrid Seismic Zone, which encompasses nine States, four FEMA Regions, and
multiple Federal agencies.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 11 of 32
CORE COMPETENCY
3. Disaster Logistics
As the Nation’s preeminent emergency management agency, FEMA has an important dual
role to play in disaster logistics. FEMA is, first and foremost, the overall National lead for
coordinating and activating the all- source availability, arrival, deployment and demobilization
of assets, teams and other Federal capabilities in support of State requirements. And, FEMA is
also a recognized direct provider to States of core logistics support, including disaster
commodities.
Heretofore, there has been a void in Disaster Logistics as no civilian agency in government has
developed the capability to provide holistic leadership and management of the full spectrum of
logistics support. Whereas the Department of Defense and each of the military services has a
well recognized logistics ( J4) system and organization with the full spectrum of supporting
processes, contracts and agreements, the non- defense elements of government have had no
corollary organization. Hurricane Katrina offered a case in point as people, teams, equipment,
assets and other capabilities flowed into the disaster area absent any semblance of organized
awareness, tracking or accountability. While each agency involved provided varying degrees
of management over their independent efforts, there was no overarching coordination,
visibility or management. There was no single point of adjudication of competing
requirements and no organized competency or capability to evaluate and direct the right
capability to the right location, exactly when it was needed. The result was unnecessary,
inefficient, duplicative and expensive support, where those in need of support had no degree of
confidence that their needs were recognized and being managed in a timely manner. FEMA
has recognized this gap in Federal capability and is determined to establish Disaster Logistics
as a core competency that will bring DoD- like capability to the domestic emergency
management community.
To fully meet its dual responsibilities as both National coordinator and direct provider, FEMA
must adopt new approaches to disaster logistics management that will require an innovative
balance of manpower, processes, strategic partnerships and technology. FEMA will develop a
system that will rely upon strategic partnerships with the Defense Logistics Agency and other
similar organizations to cost- effectively leverage the depth of their inventory supplies and
existing contractual relationships with the commercial providers of commodities and other
essential materials and supplies. FEMA will explore and attain a balance between
development of organic capability and competency versus that which can be contracted or
otherwise drawn from initiating contractual relationships with others. FEMA will examine the
balance between owned infrastructure and that which can be leased or made available
otherwise through agreement. And, FEMA will explore and acquire the proper level of
technology with which to organize the total logistics effort, provided visibility of assets in
storage and in transit, and provide transparent tracking of orders in process and ensure the
most efficient and effective distribution of supplies and materials.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 12 of 32
􀂃 Re- define Disaster Logistics. The Agency’s concept of logistics will move beyond simply
commodities ( i. e., ice, water, tarps, and MREs), to include the J4- like management of the
all- source range of assets, teams, equipment and supplies that may be needed in response
to an all- hazards event. This will demand coordination across all Federal departments and
agencies, State partners and those in the private sector who plan and respond to all- hazard
disaster events.
􀂃 Establish a Logistics Directorate. Elevate the current Logistics Branch from within the
Response Division to form a new Directorate, led by a senior team of experienced
logisticians, as a direct report to the FEMA Administrator. This new organizational
element will be staffed, equipped and resourced sufficiently to reshape the current logistics
organization to meet the mandate for development of Disaster Logistics as a new core
competency within FEMA.
􀂃 Employ an inclusive methodology to establish strategic partnerships. FEMA will look to
DoD and private sector sources to provide integrated logistics solutions. FEMA will take
the full, end- to- end supply chain perspective to organize and efficient management of the
flow of supplies to meet disaster requirements. This approach will include pre- scripted
arrangements for commodities, operational assets and teams. The FEMA system will
interface with all potential providers and users of the logistics system, including DoD, Red
Cross, private sector, non- governmental organizations, foreign donations and the States.
􀂃 New paradigms for State- FEMA relationships. We will examine the paradigms that have
grown up between the States and FEMA, dividing lines of ownership and management of
the flow of logistics support, with an aim to develop more efficient and effective Regional
and State partnerships and facilitating a seamless, end- to- end system.
􀂃 Systems for full asset visibility, end- to- end. FEMA will implement a 21st century system to
plan, identify, and track assets – from mobilization, to arrival, demobilization, and
departure. The new system will provide transparency and visibility of commodities and
material throughout the chain, from source to end- user, and will be built on improved
planning and procurement strategies, and better pre- positioning and delivery capabilities.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 13 of 32
CORE COMPETENCY
4. Emergency Communications
As the Nation’s preeminent emergency management agency, FEMA will extend its sphere of
influence to take on a leading National role in the field of disaster emergency communications.
We will engage across the Federal level and with States and other partners to establish and
facilitate consistent disaster emergency communications standards and capabilities. FEMA
will have the capability to provide emergency communications services before, during, and
immediately after an event. And, within the forum of strategic emergency communications
policy, FEMA will be an informed and engaged advocate for emergency communications
issues and the communications needs of first- responders.
In large part, this new role for FEMA is one that does not currently exist among the many
Federal agencies and groups who manage the various elements of emergency communications.
Whereas many agencies have an array of communication systems responsibilities, none forge
the integrated operational link between the policy level and the State and local first responder
community. FEMA will define and fill that role.
Emergency Communications – Before, During & After
Prior to an event, FEMA will:
􀂃 Coordinate with States to develop State and Regional emergency communications plans.
In conjunction with the National Preparedness Goal administered by the Preparedness
Directorate, we will lead the development of emergency communication plans with States
and other partners through FEMA’s Regional offices. We will work with States and major
urban areas to assess their emergency communications capabilities and, with the DHS
Wireless Management Office ( WMO), help forge consistent and effective frequency
allocation plans for wireless emergency communications.
􀂃 Establish a template of essential emergency communications capabilities. In conjunction
with the Preparedness Directorate’s Target Capabilities List and our Federal, State and
local partners, we will collaborate with States and major urban areas to create a checklist of
requirements for essential emergency communications capabilities. This checklist will
clearly establish the level of capability States should strive to have in place and serve as a
baseline for directing grants to address gaps in capabilities.
􀂃 Plan for temporary communications – prepare to fill the gaps. FEMA will develop
capabilities and supporting strategies to fill gaps identified in the course of emergency
communications planning with States and major urban areas. We will ensure we have in
place a program of National- level plans and capabilities to provide sufficient and timely
support in the event of multiple events or a catastrophic incident.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 14 of 32
During an event, FEMA will employ its Mobile Emergency Response System ( MERS) and the
Mobile Air Transportable Telecommunications System ( MATTS) capabilities to:
􀂃 Support the Joint Field Office ( JFO). FEMA will enable the establishment of the JFO and
provide for its continuing operational communications and systems needs.
􀂃 Enable Federal Command and Control. FEMA’s focus during an event will center on
helping ensure Federal capability to conduct response and recovery operations and
supporting deployed teams in attaining and maintaining situational awareness.
􀂃 Assist State office of emergency communications. As necessary, FEMA will provide for
the emergency communications needs of State and local government in support of efforts
to save lives, protect property, and coordinate all- hazard response and recovery operations.
Immediately after an event, FEMA will operationalize emergency communications plans
established with States pre- event. We will:
􀂃 Ensure the integrity of first responder networks. Following the event, FEMA will, if
needed, provide immediate backfill of State and local emergency communications
capabilities to re- establish communications support for the operations of first- responders
and other disaster response personnel. This capability will be deployed on a temporary
basis, pending hand off to DHS’s National Communications System ( NCS).
􀂃 Ensure a smooth transition to long- term restoration. FEMA will work closely with NCS,
which is responsible for evaluating long- term post- disaster communications needs and
taking the lead in coordinating and facilitating restoration of communication infrastructure
in the affected area.
As part of FEMA’s leadership role in disaster emergency communications, we will be a major
advocate for disaster emergency communications at the National level. We will:
􀂃 Serve as a leading National advocate for disaster emergency communications issues. We
will coordinate and facilitate dialogue among the Nation’s first- responder and emergency
management communities to constantly assess and advocate for improvements in
interoperable emergency communications. On issues of National significance, such as
spectrum allocation, we will be an advocate for the public good, supporting the needs of
first- responders and emergency workers. In the National discussion of emergency
communication technology, we will advocate for policies and solutions that leap- frog
current technology and take advantage of next generation technology.
􀂃 Play a major supporting role in policy- making. FEMA will work closely with the DHS
Office of Emergency Communications [ H. R. 5441: The Post- Katrina Emergency
Management Reform Act of 2006] to develop pragmatic and supportive policy. The Office
of Emergency Communications will be responsible for developing policy, coordinating
Federal inter- agency roles, responsibilities and activities, and overseeing compliance with
Federal policy on emergency communications.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 15 of 32
CORE COMPETENCY
5. Service to Disaster Victims
As the Nation’s preeminent emergency management agency, FEMA will take the lead among
Federal agencies, State and local governments and representatives of non- governmental
organizations to develop coordinate and implement the provisions of the National Disaster
Recovery Strategy and the elements of the National Disaster Housing Strategy. These
strategies will serve to guide the efficient and cost- effective programs to meet the recovery
needs of States, local and tribal governments as well as individuals and households affected by
a major disaster.
Every disaster victim and affected community should expect FEMA to provide rapid,
compassionate, and simply accessed disaster assistance that is easily understandable and
consistently applied for individuals and across States and Regions from one disaster to
another. With intent to meet this expectation, FEMA will improve the Individual Assistance
( IA) and Public Assistance ( PA) programs through the application of simplified and
transparent processes, advanced technologies, and stronger and more interactive relationships
with States, other government agencies, the private sector and other providers of assistance.
This effort will require a greater depth of staffing, a renewed appreciation for FEMA’s full
responsibilities as the Nation’s leader in disaster recovery, and purposeful leadership across
the vast Federal array of disaster recovery programs and capabilities.
FEMA will dramatically improve its ability to deliver speedy, situational appropriate and
accurately targeted disaster assistance to individuals, including those with disabilities, and
communities through its IA and PA programs. We will work continuously to improve delivery
of all aspects of the IA and PA programs while ensuring that our sense of urgency and
compassionate concern for disaster victims also reflects careful stewardship to prevent fraud,
waste and abuse.
Improve Ability to Deliver Assistance to Individuals and Communities
􀂃 Increase IA registration speed and capacity. FEMA will expand its existing IA call center
capacity resident in the Agency’s National Processing Service Centers ( NPSCs) and
increase ready access to surge call center capability, effectively doubling its registration
capacity. Registration workflows will be improved and streamlined, and existing
technology and enhanced skill sets will be leveraged to enable faster processing and better
overall case management. We will take advantage of technology such as online
registration capability and interfaces with external identity verification databases to help
streamline and speed up the IA application process.
􀂃 Get to victims sooner; provide IA assistance faster. We will remain focused on exploring
avenues to more timely and efficient delivery of victim- centered assistance. FEMA is
currently developing Mobile Registration Intake Centers that push IA registration
capability into the field. These mobile registration vehicles will offer victims who have
little or no access to functioning communications infrastructure the ability to quickly
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 16 of 32
register for disaster assistance. We will increase the number of contract housing
inspectors, their training requirements, and management oversight. This will help ensure
both faster IA determinations through timely inspections and better customer service from
the inspectors.
􀂃 Recognize the unique and special needs of victims with disabilities. FEMA will develop
guidelines to accommodate individuals with disabilities in terms of access and existence of
appropriate programs for transportation and in shelters, recovery centers, and other disaster
facilities.
􀂃 Recognize the unique requirements of pets and animals. FEMA will develop guidelines
and policies to effectively address the unique importance of pets and other household
animals to victims of a disaster.
􀂃 Reunification of displaced members of the disaster population. FEMA will improve its
ability to facilitate the expeditious identification and reunification of adults and children
with their family members. As the lead Federal agency for Emergency Support Function
( ESF) # 6, Mass Care, FEMA will partner with the American Red Cross and the National
Center for Missing and Exploited Children to establish the National Emergency Child
Location Center, and the National Emergency Family Registry and Locator System to help
reunify families separated after an emergency or major disaster.
􀂃 Make IA more understandable. The individual assistance process is often delayed or
complicated by miscommunication or misunderstanding of what can seem like a
complicated set of regulations, policies and procedures. To improve the IA process,
FEMA will:
o Institute a comprehensive review of its IA program to identify strategies for
simplifying both its program processes, requirements and workflows, and its
communication strategies, methods and products, to improve transparency and ease
of use.
o Ensure the availability of bilingual operators and IA disaster specialists in order to
provide assistance to disaster victims in their native language wherever practical.
o Anticipate particular needs of affected populations based on publicly available
demographic information and analysis included as part of each FEMA Region’s
operational planning responsibilities.
􀂃 Improve national and international donations management. FEMA will establish a
donation management system to efficiently match disaster needs and requirements with
goods and services offered by both national and international donors.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 17 of 32
􀂃 Maintain a National debris removal registry. To encourage State and local governments
to put debris removal contracts in place before a disaster strikes, FEMA will establish and
maintain a debris removal registry that provides a repository of information on companies
that do debris removal and the kind of services they offer.
􀂃 Improve oversight of IA and PA programs. Misuse and abuse of disaster assistance will be
curbed through better internal management controls and accountability; more vigilant
oversight of contracts, including the ensuring contract staff – who do a great deal of the
critical technical work involved in the delivery of recovery assistance – are as professional,
efficient and customer oriented as possible; use of identity verification services; a better
permanent staff to workload ratio; more training in how to detect and counter attempts at
fraud and abuse; and regular program, process and delivery system evaluations to root out
wasteful and inefficient practices.
FEMA will step up to its role as the Nation’s preeminent leader in disaster recovery. We will:
􀂃 Strengthen FEMA’s leadership of mass care and human services. To do this, FEMA
will: hire more experienced staff, Nationwide, to support Emergency Support Function
( ESF) # 6; clarify roles and responsibilities among the various players; formalize
partnerships with the Agency’s external partners, and publishing standard operating
procedures and guidance to integrate the capabilities of all of FEMA’s partner
organizations, including Federal, State, and voluntary agencies, into an organized and
cohesive mass care and human services delivery structure.
􀂃 Establish a Recovery Support Center. FEMA will also formally establish a disaster
recovery center of excellence to provide comprehensive and authoritative information
on disaster recovery operations and policy. The Center will provide information
management, data analysis, and reporting capability for FEMA recovery assistance and
will enhance the Agency’s day- to- day leadership profile with State and local recovery
partners.
􀂃 Centralize access and delivery mechanisms for all Federal disaster assistance.
Disaster victims who are eligible for Federal assistance should have quick and efficient
access to government programs and information on assistance from State and local
government and the private sector. We will work with our partners to improve the
delivery of Federal disaster assistance by streamlining access and delivery
mechanisms. To achieve this, FEMA will lead the effort to:
o Provide a centralized application process for all Federal disaster assistance;
o Provide a centralized and continuously updated clearinghouse from which
disaster victims can get information on Federal disaster assistance and State and
local government and private sector sources of disaster assistance; and
o Reduce unnecessarily duplicative application forms and processes for Federal
disaster assistance while strengthening controls designed to prevent improper
payments and other forms of fraud, waste, and abuse.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 18 of 32
􀂃 Develop and coordinate a National Disaster Recovery Strategy. In coordination with
its partners, FEMA will lead the effort to develop, coordinate, and maintain a National
Disaster Recovery Strategy that will guide recovery efforts after major disasters and
emergencies. The National Disaster Recovery Strategy will:
o Outline the most efficient and cost- effective Federal programs that will meet
the recovery needs of States, local and tribal governments, and individuals and
households affected by a major disaster;
o Clearly define and describe the roles, programs, and authorities of each Federal
agency that may be of assistance in providing assistance in the recovery from a
major disaster, and how responsibilities under the National Disaster Recovery
Strategy will be shared; and
o Promote the use of the most appropriate and cost- effective building materials
( based on the hazards present in an area) in any area affected by a major
disaster, with the goal of encouraging the construction of disaster- resistant
buildings.
􀂃 Develop and maintain a National Disaster Housing Strategy. FEMA will work with
its Federal partners to create and implement an integrated National Disaster Housing
Strategy. The Strategy will outline the most efficient and cost effective programs to
meet the short- term and long- term housing needs of individuals and households
affected by major disasters. The National Disaster Housing Strategy will:
o Outline the most efficient and cost- effective Federal programs that will best
meet the short term and long- term housing needs of individuals and households
affected by a major disaster;
o Clearly define and describe the roles, programs, and authorities of each Federal
agency that provides disaster recovery assistance and how responsibilities under
the National Disaster Housing Strategy will be shared;
o Describe in detail the programs that may be offered by each entity, including:
direct housing assistance; assistance for special needs and low- income
populations, including housing for individuals with disabilities; plans for
government- management mobile home clusters; and plans for repair or
rehabilitation of existing rental housing; and
o Publish public guidance on types of housing assistance, including eligibility and
application procedures.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 19 of 32
CORE COMPETENCY
6. Continuity Programs
Providing for continuity of operations is part of the fundamental mission of government
agencies as responsible and reliable public institutions. The changing threat environment and
the potential for no- notice emergencies, including acts of nature, accidents and technological
emergencies, and military or terrorist attack- related incidents, have increased the need for
continuity programs that enable agencies to continue their essential functions across a broad
spectrum of emergencies. This, coupled with the potential for terrorist use of weapons of mass
destruction, has emphasized the importance of continuity programs that ensure the
continuation of essential Federal Executive Branch functions and the persistence of our
Constitutional form of government.
As the lead agent for the Nation’s continuity programs, FEMA must direct, guide and assist all
Executive Branch Departments and Agencies and their 300,000+ offices Nationwide; provide
guidance to the Legislative and Judicial Branches of Government, all 50 States, the territories,
tribes and local jurisdictions; and coordinate continuity program response and recovery
assistance to all Federal Executive Branch and other government jurisdictions during major
emergencies and disasters.
FEMA’s continuity program direction and authority is grounded in three primary directives:
Executive Order 12656, Assignment of Emergency Preparedness Responsibilities; Presidential
Decision Directive 67, Enduring Constitutional Government and Continuity of Government
Operations; and Executive Order 13407, Public Alert and Warning System. In carrying out
these authorities, FEMA will maintain an operational readiness posture and program capability
that can respond to any national security event. FEMA will assess Executive Branch
continuity programs to ensure enduring Constitutional government and continuity of essential
Federal Executive Branch operations. FEMA will execute robust test, training, and exercise
programs. FEMA’s continuity programs will take an approach to its activities that link the
Agency’s core competencies in a unified and mutually supporting capacity.
To meet requirements of Executive Order 13407, FEMA will:
􀂃 Inventory, evaluate, and assess nationwide public alert and warning capabilities.
􀂃 Adopt standards and operating procedures for public alert and warning to enable secure
delivery of messages through as many pathways as possible.
􀂃 Adapt distribution/ content of alert and warning messages based on location, risks, or
user preferences.
􀂃 Alert those with disabilities and those without English language proficiency.
􀂃 Maintain/ protect/ restore public alert and warning system infrastructure.
􀂃 Test, train, and exercise the public alert and warning system.
􀂃 Conduct public education on the alert and warning system.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 20 of 32
􀂃 Coordinate with the private sector, local government, and first responders on public
alert and warning system utilization and infrastructure.
􀂃 Administer the Emergency Alert System ( EAS).
􀂃 Ensure that under all conditions the President can alert the public.
To satisfy White House Guidance developed from Hurricane Katrina Lessons Learned
Report, FEMA will:
􀂃 Establish an Integrated Public Alert and Warning System ( IPAWS) in accordance with
Executive Order 13407 that shall incorporate new and emerging technologies.
􀂃 Upgrade the national EAS network with satellite connectivity to improve reliability and
sustainability.
􀂃 Provide user- friendly and secure EAS send- and- receive capabilities to hurricane
affected States, to include a web- based interface that uses a secure, standards- based
message dissemination and authentication network.
􀂃 Provide Digital EAS and Geo- Targeted Alert System ( GTAS) capabilities to hurricane
affected States to send out text, voice, and video alerts and warnings using digital
Television Spectrum of public television broadcasts.
􀂃 Procure and deploy when necessary a Mobile AM/ FM Radio Station and a Cellular
Telephone Switching System to provide alert and warning coverage to area where the
local EAS radio station and cellular service have been disrupted.
􀂃 Provide NOAA all- hazards public alert radios to all K- 12 schools.
􀂃 Provide Gulf Coast EAS radio stations with upgraded generators and fuel delivery
systems.
To develop an effective public alert and warning system, FEMA will in accordance with
EO 13407:
􀂃 Ensure that the United States maintains a dependable and effective means for the
President to communicate with the American people under the most severe
circumstances.
􀂃 Ensure the Presidential- level EAS includes the capabilities to disseminate messages
within a short period of time ( no more than ten minutes after receipt of Presidential
notification), and, to the extent feasible, permit simultaneous audio, video, text, and
data alert and warning live or pre- recorded message dissemination.
􀂃 Ensure the Presidential- level EAS will be available for use by the President under the
most severe conditions, from any place, and at any time when requested by the White
House Communications Agency or another authorized element.
􀂃 Ensure the Presidential- level EAS distribution system should be integrated with State
and local government entities to deliver alerts and warnings activated by local
government officials or their designated representatives, and State operations activated
by the Governor of the State or the Governor’s designated representative.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 21 of 32
CORE COMPETENCY
7. Public Disaster Communications
FEMA must assume a leadership position as coordinator of all hazards messaging to the
American public during peacetime and disasters, leading the National campaign for greater
personal and community preparedness. FEMA will employ three strategies to accomplish this:
public risk communications, partnership management, and employee communications. The
elements will be coordinated in a manner that leverages efforts, ensures consistent and
effective messaging, and supports FEMA’s role as the Nation’s preeminent emergency
management agency.
􀂃 Public Risk Communications. FEMA will be a leader in: facilitating public discourse and
the adoption of a National culture of personal preparedness and mitigation, which will
have a direct impact on the reduction of loss of life and property caused by disaster;
strengthening interagency incident communications systems and capabilities to ensure
coordinated communications efforts across all hazards; and creating a world- class model
for emergency and public information dissemination by leveraging emerging
communications technology and strategic communications tactics.
􀂃 Partnership Management. FEMA will build effective relationships with stakeholders,
advocacy groups and the media, promote a customer- oriented philosophy at all levels, and
foster collaboration with our partners. This strategy will include State and local
constituencies, other Federal agencies, the media, think tanks and elected officials.
􀂃 Employee Communications. FEMA will leverage its number one asset, its employees, as
ambassadors to the American people by actively engaging employees as an integral part of
the commitment to transform FEMA into the Nation’s preeminent emergency management
agency. FEMA will become an employer of choice, attracting talented and committed
employees through proactive internal communications, enhanced training, performance-based
rewards and recognition, and a targeted recruitment strategy.
In support of Public Risk Communications, FEMA will:
􀂃 Build a foundation of communication expertise both within the organization, as well as
support the development of communications knowledge and capability across State and
local emergency management partners.
􀂃 Initiate strategic communications planning support and coordination across agency
programs and supportive of core competencies.
􀂃 Execute communications tools throughout agency divisions in support of public education
messages related to preparedness, risk communications, response capabilities and recovery
information.
􀂃 Develop opportunities to enhance communications with special needs groups including
children, elderly, multilingual audiences and people with disabilities.
􀂃 Establish a strong, qualified team of public affairs professionals to enhance capacity in
non- traditional communications outreach.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 22 of 32
􀂃 Lead the National campaign for greater personal and community preparedness.
􀂃 Leverage technology including incorporating emerging communications formats and
deployment of online information systems to share information.
􀂃 Establish performance metrics and provide demonstrable effects of proactive
communications efforts.
In support of Partnership Management, FEMA will:
􀂃 Establish consistent, strategic public communications capability within Regional offices to
work one- on- one with State, local and major urban area jurisdictions to build knowledge
and capability for public communications efforts and coordinate effective messaging.
􀂃 Establish a dialogue with the media, the American public, State and local governments and
other stakeholders in a manner that informs while encouraging partnership and
participation.
􀂃 Facilitate the exchange of ideas and information through two- way communications
between internal and external stakeholders.
􀂃 Strengthen partnerships and conduct planning, training and exercises with State and
Federal agency partners ( USGS, NOAA, DOD, HHS, etc.) in support of notice and no-notice
events to ensure integrated crisis communication strategies and messaging.
􀂃 Leverage partnerships to increase the dissemination of all hazards information to the
public, whether it is a message of greater public awareness and personal responsibility, or
direct delivery of critical information to the public in an emergency.
􀂃 Coordinate proactive involvement in conferences, round tables, briefings and training
opportunities to inform and/ or involve stakeholders in Agency planning and decision-making
and to share best practices across Federal, State and local stakeholders.
􀂃 Engage with the private sector to share best practices, reach through organizations to their
employees and customers.
In support of Employee Communications, FEMA will:
􀂃 Initiate a proactive internal communications effort that fosters understanding and
commitment to the agency’s mission, vision and competencies.
􀂃 Foster an agency culture of transparency and communication by empowering employees to
discuss program information and Agency initiatives for which they are responsible with
media and key stakeholders.
􀂃 Recognize and reward employees for accomplishments and contributions that directly
support agency goals and vision.
􀂃 Implement a comprehensive training program for FEMA employees that develops
capabilities and engages employees as ambassadors to our customers.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 23 of 32
CORE COMPETENCY
8. Integrated Preparedness
FEMA is responsible for building and sustaining the preparedness of the United States to:
􀂃 Prevent terrorist attacks and minimize the impact of non- terrorist related events in
the United States by increasing the Nation’s level of preparedness;
􀂃 Reduce America’s vulnerability to terrorism; and
􀂃 Enhance Federal, State, and local response to terrorist attacks and other
emergencies, both natural and manmade.
FEMA will be the Department’s and U. S. Government’s focal point for building our Nation’s
preparedness to defend and secure the United States of America from terrorist attack, and to
respond to and recover from attacks, major disasters, and other emergencies. To accomplish
this we will lead the preparedness efforts across the Department, coordinate preparedness
efforts across the U. S. government, and partner with State and local governments, tribal
organizations, the private sector, and the American people to ensure a Nation prepared. The
primary goals of Integrated Preparedness are to:
􀂃 Build, sustain, and improve the Nation’s capability to prevent terrorist attacks in
the United States.
􀂃 Build, sustain, and improve the Nation’s capability to protect against terrorist
attacks in the United States and other catastrophic threats to the Nation.
􀂃 Build, sustain, and improve the Nation’s capability to respond to and recover from
terrorist attacks, major disasters, and other emergencies, with an emphasis on
catastrophic incidents.
􀂃 Ensure development of national standards and measures of effectiveness for
preparedness.
􀂃 Promote and institutionalize mechanisms for information sharing and collaboration
to enhance preparedness.
􀂃 Foster an adaptive, risk- based approach to preparedness that maintains an all-hazard
incident management foundation and focuses on preparedness
enhancements for catastrophic threats, where appropriate.
􀂃 Demonstrate good stewardship of public resources by identifying opportunities for
synergy between terrorism preparedness and non- terrorism preparedness.
􀂃 Create, operate and promote a premier learning organization by providing
professional development, education and other opportunities to ensure the highest
caliber of staff working in a professional environment in support of the goals and
objectives of the Department.
􀂃 Streamline and speed delivery of preparedness activities and services.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 24 of 32
National Preparedness Integration and Coordination
FEMA will work to strengthen the Nation’s capacity to prepare for and respond to natural or
other disasters.
National Preparedness Integration Program ( NPIP). Through the NPIP, FEMA will integrate
and synchronize strategic tools, including the National Incident Management System, National
Response Plan, National Infrastructure Plan and the National Preparedness Goal into a national
operational capability. The NPIP will ensure development of preparedness processes that
foster harmonized day- to- day routine interaction of disciplines, organizations, levels of
government and our citizens. NPIP’s capability requires partnerships at the headquarters level,
among those in the field and on the front line.
National Capital Region Coordination ( NCRC). We will oversee and coordinate Federal
programs for and relationships with State, local, and regional authorities in the National
Capital Region.
Federal Preparedness Coordinators ( FPCs). As the Nation’s Preeminent Emergency
Management Agency, we will promote the integration and synchronization of preparedness
across jurisdictions and all levels of governments by establishing a network of Federal
Preparedness Coordinators. Strengthening preparedness requires a dedicated, locally- based
DHS senior executive to support the networks of Federal, State, local, tribal, and private- sector
partners to plan, train and exercise in preparation for coordinated contingency missions, as
well as to share information on a routine basis. Therefore, FPCs will play a vital role in
building regional preparedness across jurisdictions through focused planning, information
sharing and partnership building. They will strengthen preparedness within their assigned
Regions to prevent and respond to threatened or actual domestic terrorist attacks, major
disasters, and other emergencies by establishing a Regional domestic all- hazards preparedness
goal, integrating mechanisms for improved delivery of Federal preparedness assistance to State
and local governments and outlining actions to strengthen preparedness capabilities. Their
efforts will lead the integration of DHS’ Regional preparedness efforts, including measurable
readiness priorities and targets goals that appropriately balance the potential threat and
magnitude of terrorist attacks, major disasters, and other emergencies with the resources
required to prevent, respond to, and recover from them.
Evaluation and National Assessment Program. FEMA will gather, analyze and interpret
National and program specific data. As the focal point for information collection and
evaluation, this program reviews and assesses the execution of state strategies against the
supporting threat, vulnerability, and needs assessment data. As data is evaluated, meaningful
and timely feedback highlighting best practices can be identified for replication, and
knowledge gaps can be addressed and mitigated. This information will then be fed back out to
States and jurisdictions by Grants and Training.
Radiological Emergency Preparedness Program ( REPP). We will assist State, local, and
tribal governments in the development of offsite radiological emergency preparedness plans
within the emergency planning zones of Nuclear Regulatory Commission ( NRC) licensees of
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 25 of 32
commercial nuclear power facilities. REPP will continue to support the development of offsite
radiological emergency preparedness plans for the emergency planning zones of NRC
licensees of commercial nuclear power facilities.
Chemical Stockpile Emergency Preparedness Program ( CSEPP). Through CSEPP, we will
enhance existing local, tribal, and State capabilities to protect the health and safety of the
public, workforce, and the environment from the effects of a chemical accident or incident
involving the eight United States Army chemical stockpile sites.
Grants, Training, and Exercises
FEMA will serve the public by equipping American first responders – firefighters, police
officers, and emergency medical providers. Multiple Grants and Training programs provide
agencies with grant resources to acquire equipment, training, or technical assistance to prepare
them to prevent, deter, and respond to terrorist acts and natural disasters.
State Preparedness Grants Program. FEMA will administer three grant programs that will
provide a baseline level of security to State, local and territorial level jurisdictions:
􀂃 The State Homeland Security Grant Program, which awards grants to all 50 States, the
District of Columbia, Puerto Rico and four U. S. Territories, based on risk and need;
􀂃 Citizen Corps, a grass- roots initiative that actively involving all citizens in hometown
security through personal preparedness, training, and volunteer service; and
􀂃 The Emergency Management Preparedness Grant ( EMPG) Program, which provides
funds to support comprehensive emergency management at the State and local levels
and encourages the improvement of mitigation, preparedness, response, and recovery
capabilities for all hazards.
National Exercise Program. We will test State and local capacity to effectively implement best
practices and deploy response plans and assets efficiently and effectively, and support the
Department’s Federal, State and local exercise programs, which includes the Top Officials
( TOPOFF) exercise series.
Urban Area Security Initiative ( UASI) Regional Grant Program. FEMA will award grants
based on the evaluation of both risk and need, and provide a second layer of security to the
Nation’s high risk urban areas, and strengthening the Nation’s urban areas and critical
infrastructure.
State and Local Training Program. We will develop and approve training to prepare
emergency responders for a Weapons of Mass Destruction ( WMD) terrorism event. Identify
the training needs of State and local communities and prioritize those needs in order to
facilitate the identification of existing and new funding for course development. This program
includes of the Center for Domestic Preparedness, the only WMD training facility that
provides hands- on training to civilian emergency responders in a toxic chemical agent
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 26 of 32
environment, and the National Domestic Preparedness Consortium, which also play a major
role in delivering training to America’s first responders.
Technical Assistance Program. Through direct assistance to State and local jurisdictions,
FEMA will help improve their ability to prevent, respond to, and recover from threats or acts
of WMD terrorism. Specifically, the Technical Assistance Program will work to enhance the
capacity of State and local jurisdictions, including special needs jurisdictions like port
authorities and mass transit agencies, to develop, plan, and implement effective strategies for
WMD preparedness.
State and Regional Grant Advocates
FEMA will establish Grant Advocates in the Regions. The Grant Advocates will:
􀂃 Provide Technical Assistance Closer to the Client. The Region is THE essential field
echelon of FEMA that engages most directly with State partners for all FEMA services to
include grants and guidance technical assistance. It is through the Region that we can
build and nurture State and local capabilities across the spectrum of preparedness,
response, recovery and mitigation utilizing the preparedness grant programs. The Regional
Grant Advocates will be assigned to each State for direct day- to- day interaction and
support to the States on grant issues.
􀂃 Strengthen our partnership with States and UASI Cities. Grant advocates will be assigned
for each State within the Region to assist the State Administering Authority ( SAA) in
developing, executing and monitoring their grants for preparedness activities. The
advocates will assist in providing guidance documents, develop relationships to further
refine grant expenditures to meet unfunded requirements, and provide assistance to the
Federal Preparedness Coordinators ( FPCs) in quantifying capability gaps based on the
Target Capabilities List ( TCL) and the National Preparedness Goal.
􀂃 Provide Greater Grant Accountability. The State and Regional Grant Advocates will also
work with the States to develop metrics to track the use of the preparedness grant dollars to
help ensure that those funds are being used to meet the gaps identified by the State and
local jurisdictions as validated by Preparedness.
Fire and Emergency Assistance
FEMA will work with firefighters and emergency responders to improve their capability and
effectiveness.
United States Fire Administration ( USFA). We will continue to reduce life and economic
losses due to fire and related emergencies, through leadership, coordination, and support.
Through the USFA, FEMA will prepare the Nation’s first responder and emergency response
managers and leaders through ongoing and, when necessary, expedited training on how to
evaluate and minimize community risk, improve protection to critical infrastructure, and
become better prepared to respond to all hazard and terrorism emergencies of all kinds.
Assistance to Firefighter Grants ( AFG). Through the Office of Grants and Training, FEMA
will support the Nation’s firefighters by awarding one- year grants directly to fire departments
in order to enhance the effectiveness of firefighting operations throughout the United States.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 27 of 32
CORE COMPETENCY
9. Hazard Mitigation
Floods, earthquakes, hurricanes, wildfires, tornadoes, and technological disasters cause
billions of dollars of damage annually throughout the United States. The loss of lives, injuries,
and damages to homes, businesses, or workplaces cause incalculable hardship and emotional
suffering, and tear at the very fabric of our lives and our communities. While we will never be
able to completely prevent disasters from occurring, we know how to reduce their impacts.
Hazard mitigation is the most proactive and successful method for reducing the physical,
financial, and emotional losses caused by disasters. Utilizing mitigation activities such as land
use planning, site design, engineering, and retrofitting of homes, structures, schools, public
buildings and businesses, we are able to reduce future disaster losses. “ Hazard mitigation”
means actions that reduce or eliminate the long- term risk to people and property from the
effects of hazards. FEMA’s hazard mitigation efforts consist of three objectives: risk analysis,
risk reduction and flood insurance. These objectives work in tandem in enabling the Nation’s
at- risk population to reap the rewards of good hazard mitigation practices:
􀂃 Creation of safer communities by reducing loss of life and property;
􀂃 Recovering more rapidly from floods and other disasters; and
􀂃 Reducing the financial impact on States, local and tribal communities, and the national
treasury.
Risk Analysis
Risk Analysis promotes disaster resilience by enabling individuals and communities to recover
more rapidly from floods and other disasters through effective risk analysis and hazard
mitigation planning. To achieve this objective, we will:
􀂃 Expand our coastal mapping activity which will improve accuracy of flood hazard
maps for coastal areas as part of FEMA’s Flood Map Modernization effort.
􀂃 Provide data to assist State and local officials to prepare up- to- date hurricane
evacuation plans and assess the accuracy of current plans through the Hurricane
Evacuation Studies Program.
􀂃 Develop tools to ensure that efforts are made to properly address the vulnerabilities
associated with the Nation’s at- risk dams; that States and local communities have
current information about the safety of dams affecting their localities; and that
emergency action plans are in place for high- risk dams.
􀂃 Provide technical assistance for conducting risk assessments to evaluate all hazards
impacts on communities. These risk assessments are key supporting components of
local and State mitigation plans, which raise risk awareness; enable State, local, and
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 28 of 32
tribal officials to take advantage of mitigation resources and the full suite of post-disaster
assistance; and help them comply with the Disaster Mitigation Act of 2000
which requires each State to have an approved hazard mitigation plan to receive
Hazard Mitigation Assistance.
Risk Reduction
Risk Reduction creates safer communities by proactively reducing risk and enhancing the
capability of States and local communities to reduce their risk from natural hazards. After
disasters, delivery of the hazard mitigation assistance program to encourage future resilience.
To achieve this objective, we will:
􀂃 Assist States, local jurisdictions and tribal communities in reducing potential property
losses by implementing cost- effective, long- term hazard mitigation measures through the
Agency’s five Hazard Mitigation Assistance grant programs: the Hazard Mitigation Grant
Program ( HMGP), the Pre- Disaster Mitigation ( PDM) program, the Flood Mitigation
Assistance Program, the Severe Repetitive Loss Pilot program and the Repetitive Flood
Claims program.
􀂃 Provide leadership in building sciences to promote construction standards that reduce
losses to the built environment and future construction. A major component of this effort
is the National Earthquake Hazard Reduction Program ( NEHRP), which establishes
earthquake resistant building codes for lifelines, critical infrastructure and other
construction in Regions with high earthquake risk.
􀂃 Migrate HMGP implementation from FEMA’s National Emergency Management
Information System ( NEMIS) to the web- based, electronic eGrants system, Emergency
Management Mission Integrated Environment ( EMMIE).
Flood Insurance
Flood Insurance, lessens the financial impact of disasters on the Nation by strengthening the
National Flood Insurance Program ( NFIP). The NFIP helps reduce flood losses by providing
affordable flood insurance for home owners. To build a stronger NFIP, we will:
􀂃 Develop initiatives to reduce program subsidies, charge fair and actuarially sound
premiums, and thus provide more income to the National Flood Insurance Fund
( NFIF).
􀂃 Maintain strong management of the NFIF, which currently receives over $ 2 Billion in
premium income annually, and increase the fund’s ability to handle claims from
catastrophic events.
􀂃 Improve oversight of the Write- Your- Own insurance companies that sell and service
NFIP policies.
􀂃 Develop incentive programs to increase participation in the NFIP and improve
enforcement where mandatory participation is warranted.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 29 of 32
SUPPORTING STRATEGY
Business Approach to Achieving Desired Results
As FEMA faces the challenges and opportunities of the future, we recognize that many of our
current business systems and management processes will no longer get the job done. To begin
the task of reforming our approach to business, we must first assess where we are. Only then
can we determine what we must do and how far we must go. Therefore, organizational
assessments are currently underway to:
- Benchmark our current practices against industry and government best practices;
- Identify ineffective operating practices and contributory elements;
- Identify short- and long- term options to improve operational performance; and
- Develop a performance management plan and metrics to evaluate successful
implementation.
While we cannot know what the precise results of these assessments will be, we stand
convinced that the Agency cannot continue to function according to our old rules of business.
To continue under the status quo would not only ignore the changes occurring in management
and business, but it would be failing in our role as public servants and stewards of the
taxpayers’ dollar. Our ultimate responsibility, and greatest strength as an agency, rests in our
duty to disaster victims and their communities. To help better fulfill that duty, we will:
􀂃 Develop integrated data systems specifically designed to meet the needs of FEMA’s
mission and help give the Agency’s management and line staff the tools they need to
get the job done.
􀂃 Establish program analysis and project management capabilities throughout the
Agency, and institutionalize a results- oriented, return- on- investment culture.
􀂃 Build an efficient acquisition process that incorporates the right policies, systems and
procedures, supported by the right workload distribution, and install contract
management as a key skill set within the Agency. This is key to accomplishing as
much pre- event procurement as possible, ensuring that when an event occurs all that
remains is the order to activate the assets and resources we need.
􀂃 Reform accounting processes through integrated financial management; eliminate
redundancy; integrate business systems with bill paying and disbursing systems; and
migrate to web- based applications.
􀂃 Automate routine personnel management tasks such as recruitment and hiring,
promotions, payroll administration, reassignments, details, awards, retirement actions,
and time and labor administration.
􀂃 Establish an assessment and programming system for evaluating real property,
equipment, and information technology and assessing need based on condition,
functional effectiveness, service priority and long term projections.
􀂃 Implement an Agency Capital Planning and Investment Program that enables
management of project cost, performance, and schedule.
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 30 of 32
SUPPORTING STRATEGY
Shape the Workforce
When the impact of a disaster situation subsumes the response capabilities of State and local
forces, those jurisdictional entities, disaster victims and the public at large expect that FEMA
will rapidly and effectively marshal a Federal support force tailored to:
􀂃 Fill immediate gaps in the operational response;
􀂃 Canvas the disaster impact area to compassionately facilitate timely access of Federal
assistance for those in need; and
􀂃 Provide immediate and long term technical and financial recovery support to State and
local officials by facilitating public assistance intended to restore essential
infrastructure and reestablish community services.
In meeting these expectations, one would presume that a stalwart and resolute FEMA
operational and response force would be comprised of a cadre of accomplished incident
managers, supported in depth by staffs of subject matter experts well grounded in applying
their expertise in context of disaster operations, recovery and mitigation, and fully capable of
dispatching an armada of disaster support teams and personnel steeped in the intricacy of the
National Response Plan, and experienced and ready for assignment to a section, unit or team
within the National Incident Management System’s structure.
Yet in studies, audits and investigations conducted post- Katrina, findings regarding the
workforce do not fully substantiate that presumption. The FEMA workforce is stalwart and
resolute, but less than optimally so, as it is comprised of:
􀂃 A dedicated yet exhausted permanent full time contingent, insufficient in numbers to
hold pace with the unrelenting demands of everyday program management and
improvement while also surging to fill key leadership and support roles for extended
periods in response to a disaster event;
􀂃 A temporary workforce of Cadre of On- Call Response Employees ( COREs) hired
under the Stafford Act authority to perform duties equivalent to Title 5 employees, the
only difference being that these employees may only work on Disaster Relief Fund
( DRF) activities, but whose workload never ends but are denied participation in
FEMA’s career development programs;
􀂃 An expansive number of temporary Disaster Assistance Employees ( DAEs), organized
into 24 functional cadres, each with varying capabilities and uncertain levels of
training; who determine their own availability based on circumstances when called,
and for generally short periods of time; who receive relatively low pay and no benefits,
while supporting the response to the Nation’s disasters;
􀂃 A combination of other various types of employees; some permanent, but most not;
who fill unique niches by providing specialty support at fixed facilities, with areas of
expertise that range from Insurance Examiners to Public Health Advisor; and
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The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 31 of 32
􀂃 An inordinate number of contractors who provide essential elements of service, who
perform tasks with weak— though improving— degrees of performance, managerial
and financial controls; who are overseen by an uneven corps of Contracting Officer’s
Technical Representatives ( COTRs), that are often temporary employees whose own
tenure of service may or may not extend through the period of the contract.
In order for FEMA to achieve our goal of becoming the Preeminent Emergency Management
Agency, we must correct these current practices. However, beyond these inequities, there are
specific things that are driving our need for change.
􀂃 Nature of our work. Our relationships with States; our desire to be the model of
emergency management through the adoption of core competencies; our increasing
reliance on technology; and current business and operational practices all demand a
more experienced and consistent workforce. Developing long lasting relationships,
core competencies, and consistent performance all require a greater level of full time
versus part time people.
􀂃 Drive for effectiveness and efficiency. Our business approach, with metrics and
measures and our desire to more consistently follow law, regulation and policy aim us
toward greater effectiveness and efficiency. We can be more efficient by focusing on a
smaller and consistent Reserve force rather than a large pool of part time.
􀂃 Expectations of the public. The public expects professionalism, consistency, and
reliability. We are hindered in meeting these expectations when our starting point
includes the deficiencies of our current workforce.
To successfully implement change, we have defined three objectives:
􀂃 Increase the number of permanent full- time ( PFT) positions;
􀂃 Convert certain temporary appointments to permanent full- time, and
􀂃 Develop a more structured temporary workforce of reservists.
These objectives, working in tandem, will reduce the Agency’s reliance on temporary and
contract employees and build credibility by improving core business processes.
Increase our Permanent ( Base) Workforce. This will allow us to truly develop a capable,
professional workforce. We will increase our base resources and stop relying on Stafford Act
employees and contractors to perform “ full- time” functions. FEMA believes that if the work
is something that can be scheduled, reasonably predicated, and is not subject to major change
due to the number of disasters, it should be performed by permanent ( base) staff. A significant
and permanent infusion to increase FEMA’s base resources is necessary to enable the Agency
to develop the operational core competencies necessary to achieve our vision, restore public
confidence, and ensure the ability to successfully respond to future Katrina- sized events. To
achieve this objective, we will:
Vision for New FEMA
The Nation’s Preeminent Emergency Management Agency
December 12, 2006 Page 32 of 32
􀂃 Identify the critical skills and expertise needed, determine the full- time equivalents and
link these requirements to the Agency’s Resource Allocation Plan ( RAP) and the
annual budget process.
􀂃 Complete critical training programs in the core competencies such as incident
management, operational planning, disaster logistics, etc.
􀂃 Complete critical development programs such as the mentoring program for employees
at all levels and competitive education programs.
􀂃 Complete critical recruitment programs, such as expanding college recruiting efforts
and emphasizing “ grow your own” programs, such as upward mobility, career interns
and high school/ college programs.
Conversion of Certain Appointments. This will eliminate equity issues, develop professional
allegiances, and promote stability in the workforce. To achieve this objective, we will seek to
convert all 4- year CORE ( Cadre of On- Call Response Employees) positions to permanent full-time
positions. We will also seek to convert the Federal Coordinating Officers ( FCOs) to
permanent, full- time positions.
Development of a Reserve Workforce. This will improve our operational capability through
strategic recruitment, training, credentialing, deployment and retention of individuals who will
be able to respond to natural disasters, acts of terrorism, and other man- made disasters,
including catastrophic incidents. To build a better Reserve Workforce and Surge Capacity
Force, we will:
􀂃 Design and develop a structured reservist workforce that must maintain qualifications
and certifications throughout the year and would be required to serve when called.
􀂃 Maintain surge capabilities for less periodic work to enable FEMA to increase capacity
when required.
􀂃 Retain the capability to meet the strategic goal to support multiple disasters
simultaneously, including a catastrophic disaster.
􀂃 Continuously demonstrate that we have the capability of fielding adequate disaster staff
with suitable skills at any point in time.