common planning framework. The NDRF replaces the NRF Emergency Support fema.g o v/pdf/about/offices/fcd1.pdf footnote. End of footnote.
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Page 1Experience with recent disaster recovery efforts highlights the need for additional guidance, structure and support to improve how we as a Nation address recovery challenges. This experience prompts us to better understand the obstacles to disaster recovery and the challenges faced by communities that seek disaster assistance. The National Disaster Recovery Framework (NDRF) is a guide to promote effective recovery, particularly for those incidents that are large-scale or catastrophic.The NDRF provides guidance that enables effective recovery support to disaster-impacted States, Tribes and local jurisdictions. It provides a flexible structure that enables disaster recovery managers to operate in a unified and collaborative manner. It also focuses on how best to restore, redevelop and revitalize the health, social, economic, natural and environmental fabric of the community and build a more resilient Nation.The NDRF defines: principlesRoles and responsibilities of recovery coordinators and other stakeholders coordinating structure that facilitates communication and collaboration among all stakeholders recovery planning process by which communities can capitalize on opportunities to rebuild stronger, smarter and safer These elements improve recovery support and expedite recovery of disaster-impacted individuals, families, businesses and communities. While the NDRF speaks to all who are impacted or otherwise involved in disaster recovery, it concentrates on support to individuals and communities. The NDRF introduces four new concepts and terms: focal points for incorporating recovery considerations into the decisionmaking process and monitoring the need for adjustments in assistance where necessary and feasible throughout the recovery process. The RSFs are six groupings of core recovery capabilities that provide a structure to facilitate problem solving, improve access to resources, and foster coordination among 1. EXECUTIVE SUMMARY .EXECUTIVE SUMMARYCHAPTER

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Page 2EXECUTIVE SUMMARYState and Federal agencies, nongovernmental partners and stakeholders. Each RSF has coordinating and primary Federal agencies and supporting organizations that operate together with local, State and Tribal government officials, nongovernmental and size of the disaster.The NDRF aligns with the National Response Framework (NRF). The NRF primarily addresses actions during disaster response. an operational structure and to develop a common planning framework. The NDRF replaces the NRF Emergency Support are expanded in the NDRF and include recovery-specific leadership, organizational structure, planning guidance and other components needed to coordinate continuing recovery support to individuals, businesses and communities. Fundamentally, the NDRF is a construct to optimally engage existing Federal resources and authorities, and to incorporate the full capabilities of all sectors in support of community recovery. The effective implementation of the NDRF, whether or not in the context of a Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act) declaration, requires strong coordination and the private sector. It also requires an effective, accessible public information effort so that all stakeholders understand the scope and the realities of recovery. The NDRF provides guidance to assure that recovery activities respect the civil rights and civil liberties of all populations and do not result in discrimination on account of race, color, national origin (including limited disability. Understanding legal obligations and sharing best practices when planning and implementing recovery strategies to avoid excluding groups on these bases is critical. The NDRF is a guide to promote effective recovery. It is a concept of operations and not intended to impose new, additional or unfunded net resource requirements capabilities, policies and resources expand or change, the NDRF will be revised as needed to ensure that it continues to provide a common and adaptable approach to disaster recovery.

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Page 4 . . . . . . Built as a document to forge a common understanding of roles, responsibilities and resources available for effective recovery, the NDRF is designed for anyone who is involved in disaster recovery. Key concepts in the document are the need for:Structure Š Provided by Recovery Support Functions (RSFs).Leadership Š Provided locally and strengthened through support by the State or Tribal Disaster Recovery Coordinator (SDRCs or TDRCs); Local Disaster Recovery Managers (LDRMs); RSFs; private sector and nongovernmental organization (N G O) leaders; and when needed, the Federal Disaster Recovery Coordinator (FDRC).Planning Š Developed during both pre- and post-disaster phases.These concepts are explained and developed in the NDRF. When combined with the full involvement of all stakeholders, along with realistic and well-communicated expectations of desired outcomes, the concepts constitute the building blocks for a successful recovery. The NDRF and supporting guidance and tools that follow its publication form the framework of a national disaster recovery strategy. INTRODUCTION

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Page 5The National Disaster Recovery Framework (NDRF) defines how Federal agencies will more effectively organize and operate to utilize existing resources to promote effective recovery and support States, Tribes and other jurisdictions affected by a disaster. It is also written for a larger audience of non-Federal Government executives, private sector and nongovernmental organization (N G O) leaders, emergency managers, community development professionals and disaster recovery practitioners1.Recovery begins with pre-disaster preparedness and includes a wide range of planning activities. The NDRF clarifies the roles and responsibilities for stakeholders in recovery, both pre- and post-disaster. It recognizes that recovery is a continuum and that there is opportunity within recovery. It also recognizes that when a disaster occurs, it impacts some segments of the population more than others. The ability of a community to accelerate the recovery process begins with its efforts in pre-disaster preparedness, mitigation and recovery capacity building. These efforts result in a resilient community with an improved ability to withstand, respond to and recover from disasters. Timely decisions in response to disaster impacts can significantly reduce recovery time and cost.The NDRF describes key principles and steps for community recovery planning and implementation. It promotes a process in which the impacted community fully engages and considers the needs of all its members. A key element of the process is that the impacted community assumes the leadership in developing recovery priorities and activities that are realistic, well-planned and clearly communicated. The NDRF advances the concept that recovery encompasses more than the restoration of a community™s physical structures to its pre-disaster conditions. Of equal importance is providing a continuum of care to meet the needs of the affected community members who have experienced the hardships of financial, emotional or physical impacts as well as positioning the community to meet the needs of the future. The NDRF also highlights the importance of disaster recovery activities that promote sustainability practices. These practices may reduce community vulnerability to recurrent disasters. Meeting these various needs Š through strengthening the health and human services, social fabric, educational system, environmental sustainability, cultural resources and economic vitality Š serves to enhance the overall resiliency of the entire community as the recovery progresses. RESOURCESThe National Disaster Recovery Framework (NDRF) is a guide to promote effective recovery Š it is a concept of operations and not PURPOSE OF THE FRAMEWORK3. PURPOSE OF THE FRAMEWORK.CHAPTER1. The NDRF is not intended to, and does not, create any right or SEE FOOTNOTE

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Page 6intended to impose new, additional or unfunded net resource requirements on Federal agencies. Instead, the NDRF aims to leverage and concentrate the effects of existing Federal resources, programs, projects and activities through an organization of Recovery Support Functions (RSFs) to promote effective recovery for affected communities before and after disaster strikes. The National Disaster Recovery Planning (NDRP) Division at Federal Emergency Management Agency (FEMA) Headquarters facilitates and coordinates RSF activities and recovery planning at the national level. Each RSF coordinating agency will commit to designating a senior level principal to serve as the RSF national coordinator, provide significant engagement and management for the RSF, and ensure ongoing communication and coordination between the primary agencies and support organizations for the RSFs. The RSF national coordinator also ensures coordination and communication between the Federal agencies and corresponding local, State and Tribal authorities and nongovernmental and private-sector organizations throughout the preparedness, response and recovery phases of a disaster.The NDRF is not intended to increase overall Federal agency activity in support of recovery planning during steady-state. Accordingly, Federal agencies with NDRF roles and responsibilities shall fund the costs arising from those responsibilities out of their base budgets and staffing levels, and, except as noted above, shall only support steady-state NDRF activities subject to available resources. The operational costs of Federal recovery programs will continue to be borne by agencies from appropriations made for such purposes, except for those expenses authorized for reimbursement under the Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act) or as otherwise provided by law. APPLICABILITY.The National Disaster Recovery Framework (NDRF) applies to all Presidentially-declared major disasters though not all elements will be activated for every declared incident. Many of its concepts and principles are equally valid for non-declared incidents that have recovery consequences. The core concepts as well as the Recovery Support Function (RSF) organizing structures outlined in the NDRF may be applied to any incident regardless of whether or not it results in a Presidential disaster declaration. Similar to how the National Response Framework (NRF) is the overarching interagency response coordination structure for both Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act) and non-Stafford Act incidents, the NDRF will provide the overarching interagency coordination structure for the recovery phase for Stafford Act incidents, and elements of the framework may also be used for significant non-Stafford Act incidents. For example, the Federal response to an oil fiSpill of National Significance,fl as defined under the National Oil and Hazardous Substances Pollution Contingency Plan, more commonly known as the National Contingency Plan (NCP), may be managed under the NCP without a Stafford Act declaration. Elements of the NDRF also may be activated as needed to provide coordinated Federal recovery assistance. The response to the 2010 Deepwater Horizon Oil Spill was an example of an oil Spill of National Significance that was managed under the NCP, and further supplemented by additional Federal recovery assistance.PURPOSE OF THE FRAMEWORK

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Page 7PURPOSE OF THE FRAMEWORKRELATIONSHIP TO THE NATIONAL RESPONSE FRAMEWORK.The focus of the National Response Framework (NRF) is the response actions as well as the short-term recovery activities that immediately follow or overlap those actions. The National Disaster Recovery Framework (NDRF) does not speak to these short-term activities such as life saving, life sustaining, property protection and other measures intended to neutralize the immediate threat to life, environment and property, as well as to stabilize the community. However, these activities influence recovery activities, necessitating the need for a structure to consider and advise on recovery implications during the early phases of incident management. The NDRF provides the tools to encourage early integration of recovery considerations into the response phase operations. As response, short-term and intermediate recovery activities begin to wind down, recovery needs gradually take on a more critical role. The core principles and organizational constructs introduced in the NDRF coexist with the NRF and build upon its organizational structure and resources to more effectively address recovery needs. The NRF fully transitions to the NDRF when the disaster-specific mission objectives of the Emergency Support Functions (ESFs) are met and all ESFs demobilize. Together, the NDRF and the NRF provide the doctrine and guidance to implement the response and recovery aspects of the National Homeland Security Strategy (2007). In addition, the National Infrastructure Protection Plan (N I P P) and the Critical Infrastructure and Key Resources (C I K R) Annex to the NRF provide a bridge between steady-state C I K R protection and response and recovery programs designed to support the maintenance and restoration of the Nation™s C I K R. These documents incorporate and adopt the central tenets of the National Incident Management System (N I M S) and support the primacy of local, State and Tribal governments in preparing for and managing the response and recovery from natural and human-caused disasters. NATIONAL PREPAREDNESS SYSTEMThe National Disaster Recovery Framework (NDRF) will be revised as the National Preparedness System is further developed and the Prevention, Protection, Mitigation and Response Frameworks are completed or updated to ensure that actions taken in the NDRF are coordinated with relevant actions described in the other frameworks across the preparedness spectrum. In addition, core recovery capabilities will be further defined as interagency operational plans and planning guidance documents are developed to support the NDRF as part of the National Preparedness System.RECOVERY CONTINUUM.The recovery process is best described as a sequence of interdependent and often concurrent activities that progressively advance a community toward a successful recovery. However, decisions made and priorities set early in the recovery process by a community will have a cascading effect on the nature and speed of the recovery progress. Figure 1 indicates how response and recovery functions are related in example sectors.

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