Preliminary Damage Assessment for Individual Assistance Operations Manual

Preliminary Damage Assessment
for Individual Assistance
Operations Manual
(9327.2-PR)

Federal Emergency Management Agency

Table of Contents
I.

FORWARD ........................................................................................................................ 6

II.

OVERVIEW ....................................................................................................................... 7

A.

Introduction and Background .......................................................................................................................8

B.

Summary of IA Operations ...........................................................................................................................9

C.

Roles and Responsibilities of IA PDA Staff ................................................................................................ 10

D.

Deployments .................................................................................................................................................. 16

E.

Equipment/Supplies ..................................................................................................................................... 16

III.

OPERATIONS AND PROCEDURES ........................................................................... 17

A.

Team Assignments and Pre-PDA Briefing ................................................................................................. 17

B.
1.
2.

Field Assessment Methods ........................................................................................................................... 18
Team Assessment Methods ............................................................................................................................ 18
Other Assessment Methods ............................................................................................................................ 19

1.
2.
3.
4.
5.
6.
7.
8.

Narrative Information to Collect During a PDA ....................................................................................... 19
Demographics ................................................................................................................................................. 20
Description of Impacted Area and Concentration of Damage ........................................................................ 20
Economic Impacts .......................................................................................................................................... 20
Damage to Businesses and Loss of Critical Businesses ................................................................................. 20
Impact on Non-Profit Organizations .............................................................................................................. 21
Insurance ........................................................................................................................................................ 21
Income ............................................................................................................................................................ 22
General Issues that Affect Individuals ............................................................................................................ 22

1.
2.
3.
4.
5.
6.

Statistical Information to Complete PDA Field Forms ............................................................................. 22
Dwelling Types .............................................................................................................................................. 23
Occupancy Types ........................................................................................................................................... 23
Insurance ........................................................................................................................................................ 23
Degree of Damage .......................................................................................................................................... 24
Basements ....................................................................................................................................................... 25
Manufactured Homes ..................................................................................................................................... 26

C.

D.

E.

County/Parish Designations......................................................................................................................... 27

IV.

POST FIELD ASSESSMENT ACTIVITIES ................................................................ 28

A.

Team Concurrence on Assessment Findings .............................................................................................. 28

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B.

Submittal of Finalized PDA Information to Regional Office/JFO ........................................................... 28

C.

Deactivation of PDA Function ..................................................................................................................... 28

V.

PACIFIC ISLAND ANNEX............................................................................................ 29

A.

Team Assignments and Pre-Briefing (PDA Coordinator) ........................................................................ 29

B.

Field Assessment Methods ........................................................................................................................... 29

C.
1.
2.
3.
4.
5.

Specific Information – “Hard Counts” ....................................................................................................... 29
Dwelling Types .............................................................................................................................................. 29
Occupancy ...................................................................................................................................................... 30
Ownership ...................................................................................................................................................... 30
Insurance Coverage ........................................................................................................................................ 30
Degree of Damage .......................................................................................................................................... 30

D.

Things to Know Before Leaving Home ....................................................................................................... 31

VI.

TRIBAL NATION ANNEX ............................................................................................ 32

A.

IA Preliminary Damage Assessments on Tribal Lands............................................................................. 32

B.

Prior to Going to Tribal Lands ................................................................................................................... 32

C.

Housing Authorities...................................................................................................................................... 32

D.
1.
2.
3.
4.
5.
6.

Occupancy of Residences on Tribal Lands................................................................................................. 33
Homes for which the Tribal Housing Authority Holds Title to the Residence ............................................... 33
Tribal Housing Authority Homes Where the Title Has Been Conveyed ........................................................ 33
Fee Simple Homes .......................................................................................................................................... 33
Homes on Allottments .................................................................................................................................... 33
Homes Owned by Non-Tribal Members ........................................................................................................ 34
Rental Units .................................................................................................................................................... 34

1.
2.
3.
4.

Alaska Native Villages Annex ...................................................................................................................... 34
Protocol and Travel Restrictions .................................................................................................................... 35
Occupancy of Residences in Alaska Native Villages ..................................................................................... 35
Determining Insurance and Income Levels .................................................................................................... 36
Things to Know Before Leaving Home.......................................................................................................... 36

VII.

APPENDIX A – DEFINITIONS..................................................................................... 37

E.

VIII.
A.

APPENDIX B – INSTRUCTIONS FOR PDA FIELD FORMS .............................. 41
Detailed Street Sheet .................................................................................................................................... 41

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B.

Summary Sheet ............................................................................................................................................. 42

C.

Tick Sheet ...................................................................................................................................................... 43

D.

Narrative Report .......................................................................................................................................... 43

IX.

ATTACHMENT A – INSURANCE TYPE TABLE..................................................... 49

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The Department of Homeland Security’s Federal Emergency Management Agency (FEMA) has
developed four levels of operational guidance for use by emergency teams and other personnel
involved in conducting or supporting disaster operations. This document corresponds to the
level highlighted in bold italics

Level 1 Overview: A brief concept summary of a disaster-related function, team,
or capability.
Level 2 Standard Operating Procedures (SOP) or Operations Manual: A
complete reference document, detailing the procedures for performing a single
function (Standard Operating Procedure), or a number of interdependent functions
(Ops Manual).
Level 3 Field Operations Guide (FOG): A durable pocket or desk guide,
containing essential nuts-and-bolts information needed to perform specific assignments
or functions.
Level 4 -

Job Aid: A checklist or other aid for job performance or job training.

This document is consistent with and supports the current plans and procedures of the National
Response Framework (NRF) and the National Disaster Recovery Framework (NDRF) for
implementation of the Robert T. Stafford Disaster Relief and Emergency Assistance Act, as
amended, 42 U.S.C. § 5121 et seq. and its implementing regulations in Title 44, Chapter I of the
Code of Federal Regulations (CFR) Emergency Management and Assistance.

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I.

Forward

This manual was developed to create uniform procedures for performing Individual Assistance
(IA) Preliminary Damage Assessments (PDAs), nationwide, in response to an impacted State’s
request. Establishing guidelines for PDA procedures ensures that regardless of the location, type
of disaster, or FEMA Regional Office involved, the assessment of damages will be consistent,
thorough, and well-coordinated.
This manual was prepared and reviewed by FEMA Regional staff, in collaboration with State,
Tribal, and local government representatives with extensive field experience in performing
PDAs. It incorporates procedures developed and used by individual Regional offices in the
course of conducting PDAs throughout the United States in a variety of disasters over a period of
years and reflects FEMA’s extensive experience working with State, Tribal, and local
governments. FEMA also published this manual for a 30-day public comment period beginning
October 13, 2011 (76 FR 6328), and conducted direct outreach to Tribal representatives. This
manual incorporates the comments received.
In addition to ensuring the uniformity of damage assessments nationwide, the procedures in this
manual have been designed to support ongoing initiatives. During the summer of 2010, FEMA
initiated a work group to improve the IA PDA process. As part of the improvement plan, which
will be piloted during 2012, FEMA will leverage new technologies and develop additional
training tools to establish a nationally credentialed damage assessment workforce. The
improvement plan includes the creation of a repository of historical damage assessment
information to forecast the potential impact of disasters and the resulting unmet needs of
individuals, businesses, the public sector, and the community as a whole.
It is important to note that while only States may request a declaration, damage may occur on
Tribal lands or territories. When this manual refers to local government, that term includes
Indian Tribal governments. Specific guidance on conducting PDAs on territorial and Tribal land
is included in this manual.
This manual is effective July 18, 2012, and supersedes FEMA Manual 9327.1 PR, PDA for IA
Operations Manual, April 2005, and will be reviewed every two years.
Questions and inquiries related to this manual are welcomed and should be addressed to the
Individual Assistance Division, Recovery Directorate, 500 C Street, SW, Washington, DC,
20472-3100, email FEMA-IA-POLICY@fema.dhs.gov or by phone (202) 212-1000.

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II.

Overview

The primary purpose for conducting Individual Assistance (IA) Preliminary Damage
Assessments (PDAs) is to identify the impact, type and extent of disaster damages and to
determine the impact on individuals and communities while identifying the resources needed for
the community to recover. The PDA is an important first step in the declaration process, as
depicted in Figure II-1. All references to PDAs in this manual refer to Individual Assistance
(IA) PDAs unless otherwise specified.
Figure II-1: Overview of Declaration Process

Several actions must occur prior to initiating a PDA. In accordance with 44 CFR 206.33 (a),
“When an incident occurs, or is imminent, which the State official responsible for disaster
operations determines may be beyond the State and local government capabilities to respond, the
State will request the Regional Administrator to perform a joint FEMA-State preliminary
damage assessment.” It is not anticipated that all events will result in the need for Federal
assistance; therefore, the State will be expected to verify initial reports of damage, in some
manner, before requesting this support. In most instances, the State can use the survey
information that the local government has already collected in the impacted areas to verify the
reports of damage. States may verify reported damages by having staff validate them, leverage

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geo-spatial or modeling technology, and review photographs or video footage of the damaged
areas.
The State’s PDA request will be in writing, and will describe the disaster event and type and
severity of damage. It will outline the areas to be surveyed; number of teams needed, and may
include meeting location and time. Based upon this request, a Joint PDA may be initiated, with
teams being dispatched to designated areas. In some instances as damage is being identified, the
State may request additional areas that would require a PDA. In requesting additional counties,
the State will need to provide, in writing, the same types of information and verification of
damages required in an initial request.
The PDA teams survey the impacted areas and compile the information. The PDA information
will be used by the State to determine if the response and recovery actions will require Federal
support.
If the Governor determines that the State does not have adequate resources to respond and
recover from the disaster, and supplemental Federal assistance is required, a request for an
emergency or major disaster declaration may be made to the President through the Regional
Administrator. The PDA information, along with the Governor’s request, is included with the
Regional Administrator’s Validation and Recommendation and is then forwarded to FEMA
Headquarters for review and processing.
The PDA is an essential part of the declaration process and provides critical information for the
implementation of recovery programs. The information gathered is analyzed to determine the
anticipated forms of assistance and estimated program costs. The PDA also serves as a
management tool for determining (in the event of a declaration) Joint Field Office (JFO)
location, number of staff, the need for and locations of Disaster Recovery Centers, program
funding, and other requirements. In rare instances when a disaster is declared before a PDA is
completed (e.g., after a catastrophic earthquake when it is immediately apparent that a disaster
declaration is warranted), the assessment is still needed to determine program costs and
implementation requirements.
The requirement for a PDA may be waived for those incidents of unusual severity and magnitude
that do not require field damage assessments to determine the need for supplemental Federal
assistance or in such other instances determined by the Regional Administrator upon consultation
with the State.

A. Introduction and Background
This manual details the standard procedures for performing a PDA, although the manner of
collecting information in a PDA may vary according to the magnitude of the event. The purpose
of this manual is to:
•

Establish a standardized process by which consistent damage impact information is
gathered and reported by PDA teams before and after a Presidential Declaration.

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•
•
•

Clearly define the roles and responsibilities of the parties involved in the PDA
process.
Describe what information is needed and how information is obtained, sources of
information, and the way in which PDA information is captured on standardized
forms for analysis and identification of program needs.
Define degrees of residential damage.

Users of this manual should have a basic understanding of the Robert T. Stafford Disaster Relief
and Emergency Assistance Act, as amended (42 USC 5121-5207), Title 44 of the CFR, the
National Response Framework, the National Disaster Recovery Framework, executive orders,
policies, and established procedures governing the various Federal disaster assistance programs.

B. Summary of IA Operations
Information provided by PDA teams constitutes observed data by which decision-makers can
determine the appropriate recommendation regarding disaster assistance for any given disaster
scenario.
In Figure II-2, the IA PDA team is depicted within the Regional organization.
Figure II-2: IA PDA Organization Chart
Note: The Region is responsible for processing initial PDA requests, while requests for
additional counties are the responsibility of the JFO. In a JFO, the damage assessment including
the narrative, statistical information and recommendation will be gathered and processed through
the JFO IA Branch Director, to the Operations Section Chief and then to the FCO who forwards
it to the Regional Administrator for coordination.
Regional Administrator

Recovery Division Director

Individual Assistance Branch Chief/
IA PDA Coordinator

Housing PDA
Crew Leader

Housing PDA
Specialist

Housing PDA
Specialist

Voluntary Agency Liaison

Mass Care

Housing PDA
Specialist

In the organization chart above (starting from the bottom):
•

The Housing PDA Specialists serve on a PDA team and gather the data and submit it
to the Housing PDA Crew Leader for review and concurrence.

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•

•
•

•

•

Depending on the size of the disaster, multiple Housing PDA Crew Leaders may be
required who would then report the gathered data to the IA PDA Coordinator. In
smaller disasters, the Housing PDA Crew Leader may also serve as the IA PDA
Coordinator.
The Housing PDA Crew Leader then submits final field reports to the IA PDA
Coordinator, who reviews the information and combines it with information provided
by the Voluntary Agency Liaison (VAL) and Mass Care (MC/EA).
The IA PDA Coordinator compiles the information into the appropriate narrative and
statistical formats and forwards the formatted information through the chain of
command for inclusion into the Regional Administrator’s Validation and
Recommendation.
If the State chooses to request a declaration, then the IA Branch Chief and Recovery
Division Director capture the findings in the Regional Administrator’s Validation and
Recommendation and make a recommendation on whether the disaster warrants a
Presidential Disaster Declaration with Individual Assistance authorized. The Regional
Administrator reviews the Division’s recommendation and makes a Regional
recommendation through the Regional Administrator’s Validation and
Recommendation.
The Regional Administrator’s Validation and Recommendation is forwarded to the
FEMA Headquarters Declaration Unit for further review and processing. Refer back
to Figure II-1 for a depiction of this process.

C. Roles and Responsibilities of IA PDA Staff
Housing PDA Specialists should have a good understanding of damages caused by various types
of disasters and the methods and approximate time required to make repairs. Housing PDA
Specialists will also coordinate with state and local team members to gather more general
information on the affected area and the impact of the disaster on the community.
Generally, PDA teams consist of members from:
•
•
•
•
•
•

FEMA Individual Assistance Branch
State Emergency Management
Local Jurisdiction
U.S. Small Business Administration (SBA)
FEMA Mitigation
Other (e.g., Public Information Officer, VAL, Other Federal Agencies, and voluntary
agencies, as applicable).

The State hosts the PDA teams and is responsible for identifying damaged areas, although local
government regularly assists in this task. The State team member should be able to provide
additional situational, disaster-specific information and when needed, assist in providing
transportation and if necessary a facility to coordinate the PDA effort.

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The FEMA Housing PDA Specialist is responsible for accurately reporting the results of the
PDA. The State and FEMA IA team members are responsible to ensure the data represents a
consensus of the team’s findings.
Roles and responsibilities are identified by title; however actual responsibilities may shift
according to available staff.
• IA Branch Chief or Designee: The IA Branch Chief is responsible for all PDA
activities and provides compiled and analyzed information for inclusion in the Regional
Administrator’s Validation and Recommendation when a declaration is requested by the State.
In some instances, the IA Branch Chief could serve as the IA PDA Coordinator or assign a
designee. Some of the routine functions the IA Branch Chief, or designee, must perform are
outlined below:
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•

IA PDA training/overview
Program analysis to determine needs
Approve time sheets and travel vouchers
Approve group and individual Travel Authorizations
Deployment of team members through the Automated Deployment Database (ADD)
system
Initial coordination with State, SBA and other Federal agencies
Team assignments
Reconcile survey findings
Serve as central collection point for field findings
Coordinate with other Federal, State, and voluntary agencies regarding impacts and
response activities from their respective agencies
Gather flood insurance policy information from the National Flood Insurance
Program (NFIP) for the affected area in order to better assess uninsured losses.
Gather, in conjunction with the state, any homeowners’ insurance policy information
available (e.g., insurance commission, census, homeowners affected by incident, etc.)
Research (in concert with the Regional Environmental Officer) FEMA records on
Coastal Barriers Resources Act (CBRA) communities
Advise PDA teams to gather available housing resource information
Obtain American Red Cross (ARC) or other voluntary agencies damage assessment
surveys, when possible
Collect demographic information and compare to actual field findings
Conduct exit interview with State counterpart

• Housing PDA Crew Leader: The Housing PDA Crew Leader is responsible for
collecting PDA data from team members. They may also serve as a Housing PDA Specialist, if
the PDA is localized and roles can be combined. Some of the duties of the Housing PDA Crew
Leader are:
•
•

FEMA PDA team member pre-briefings
FEMA PDA team member post-briefings

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•
•
•
•
•
•
•
•
•
•

Coordination with SBA
Collection of data and survey reports from team members
May reassign team members to different locations, as necessary
Track current locations of PDA Teams
Work with State IA PDA Lead for specific field tasks
Receive survey report from VAL and Mass Care
Ensure data is accurate and arrived at by consensus
Provide technical and administrative support to field PDA teams
Research (in concert with Mitigation staff) FEMA records on flood policies and
sanctioned communities
Provide IA Branch Chief/Designee with accurate and detailed field reports

• Housing PDA Specialist: The Housing PDA Specialist is a team member responsible
for collecting PDA surveys to include the following:
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•

Number of damaged dwellings
Degree of damage
Insurance coverage
Income levels
Types of structures (e.g., manufactured homes, multi-family, single family, nontraditional housing)
Ownership/occupancy status
People with functional and access needs
Utility outages
Official evacuations
Damage of private roads and bridges
Estimated number of inaccessible and secondary homes
Availability of housing resources
Information regarding health and safety concerns
Number of deaths and injuries
Concurrence with state counterparts on degree of damage to residential structures
Dissemination of survey findings to SBA and state team members
Collections of other data and their impact on the area (e.g., business and economic
impact, unemployment, shelters, etc.)
Obtaining other data as needed or required (e.g., tribal, language, transportation, food
resources, hospitals, etc.)
Provide collected data to Housing PDA Crew Leader, as scheduled

• FEMA Voluntary Agency Liaison: Voluntary Agency Liaisons (VALs) support the
PDA process by coordinating with Voluntary Organizations Active in Disaster (VOAD), and
independent agencies, to determine disaster impact to individuals and families; consolidating
response activities of VOAD and independent agencies in Situation Report format; and gathering
information in Regions where the VAL leads Mass Care efforts (some Regions separate VAL and
Mass Care components). The VAL coordinates with the volunteer sector to identify appropriate
response activities and may be responsible for gathering the following information:
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•
•
•
•
•
•
•
•
•
•
•
•
•

Location of feeding and shelter sites
Number and types of shelters
Number of people and pets sheltered (maximum and current number)
Number of deaths and injuries
Number of Red Cross cases opened (or cases with other voluntary agencies if that
information is available)
Type of services being offered by voluntary agencies
Number of meals and snacks served
Number of comfort kits distributed
Access and functional needs populations
Official evacuations
Information regarding health and safety concerns
Household pet and service animal issues
Provide data to PDA Coordinator

The information the VAL provides may include other impacts (e.g., impacts on nursing homes,
etc.) and a report of VOAD/local or private organization response activities and limiting factors.
The goal of the VAL, as in all staff conducting early assessment of disaster impacts, is to provide
ground-level information that informs decision makers of the scope of the event.
• FEMA Mass Care/Emergency Assistance: Mass Care staff gathers the following
information:
•
•
•
•
•
•

Location of feeding and shelter sites
Number and types of shelters
Number of people and pets sheltered (maximum and current number)
Number of meals and snacks served
Household pet and service animal issues
Provide data to PDA Coordinator

When Regional Mass Care staff is not available, these responsibilities may be completed by
FEMA VALs.
• State IA PDA Lead: The State IA PDA Lead coordinates with the IA PDA Coordinator
or Housing PDA Crew Leader depending on the size of the disaster. The State IA PDA Lead is
also responsible for the following:
•
•
•
•
•

Initiate, provide, and confirm local contacts
Provide state maps
Team assignments
May reassign state team members to different locations, as necessary
Provide demographic information, to include populations that may have a greater
need, such as: populations with functional and access needs, low income populations,
the elderly, or the unemployed.

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•

Coordinate transportation, if needed

• State PDA Team Member: The State PDA Team Member serves as the official host to
the Federal team members. In addition to general PDA team duties, the State member is also
responsible for the following:
•
•
•
•
•

Local PDA Team Member: The Local PDA Team Member should:
•
•
•
•
•
•
•
•
•
•
•

•

Locate damaged areas to be surveyed
Provide demographic information, to include populations that may have a greater
need, such as: populations with functional and access needs, low income populations,
the elderly, or the unemployed
Provide other pertinent information related to the unmet needs caused by the disaster
Coordinate with the FEMA Housing PDA Specialist on state/Tribal and local
concurrence of degree of damage to residential structures

Provide copies of initial assessments performed at the local level and reported to the
State
Ensure all damaged areas are surveyed during the PDA
Determine the route the team will take to assess the damaged areas
Assist the state team member in providing required information
Provide demographic information, to include affected populations that may have a
greater need, such as: populations with functional and access needs, low income
populations, the elderly, or the unemployed
Serve as an expert on local issues
Provide cultural or unique considerations of the affected community
Provide an overview of the disaster for team members
Provide maps of damaged areas
Provide insurance information
Concur with the State PDA Team Member on degree of damage to residential
structures

SBA PDA Team Lead: The SBA PDA Team Lead responsibilities include the
following:
•
•
•
•

Coordinate SBA PDA Team Member assignments
Compile SBA data for all teams
Submit agency findings to the IA PDA Coordinator to be included in the Regional
Administrator’s Validation and Recommendation
Share agency findings with the State IA PDA Lead

• SBA PDA Team Member: The SBA PDA Team Member collects the following
information and submits it to the SBA team lead:
•

Number and type of damaged businesses

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•
•
•
•

Number of damaged homes
Degree of damage
Economic impact to the business community
Demographic information, to include affected populations that may have a greater
need for assistance, such as: populations with functional and access needs, low
income populations, the elderly, or the unemployed

• FEMA Mitigation PDA Team Member: The FEMA Mitigation PDA Team Member’s
responsibilities include identifying the following:
•
•
•
•

Potential Hazard Mitigation (Stafford Act Sec. 404) projects
Previous mitigation “success stories”
Other potential mitigation projects
Non-participating and sanctioned communities

Mitigation Team Members will submit their findings to a designated Mitigation Team Lead.
Regional mitigation staff will analyze this data for the Mitigation portion of the Regional
Administrator’s Validation and Recommendation.
Note: In some instances, Mitigation staff may conduct PDAs on their own or with the Public
Assistance PDA teams and not accompany IA PDA teams.
• External Affairs Officers: State or Federal External Affairs Officers are often present
during PDAs, particularly when there is media attention. External Affairs should be notified
when a PDA request is made. FEMA External Affairs’ role includes the following:
•
•
•

Speak with the media about what the PDA team is doing and to answer questions
regarding the Declaration process.
Serve as Congressional Liaisons, informing local, state, and federal officials about the
PDA and Declaration process.
Coordinate with the local community to identify disaster related needs for populations
with access and functional needs.

• Others: The information provided by Other Federal Agencies (OFAs), State agencies
and Voluntary Agencies will help establish overall impacts to the affected areas. Information on
agricultural impacts, disaster effects on the elderly and people with functional and access needs,
job losses, and other disaster specific needs may be gathered from these contacts, even though
they may not be actual team members. OFAs and voluntary organizations can provide
information on the types of assistance their respective agencies are providing individuals affected
by the disaster. Information on their response activities should be included in the Regional
Administrator’s Validation and Recommendation.

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D. Deployments
Upon notification that the Regional Administrator has directed the Recovery Division to support
an IA PDA request from an impacted State, the IA Branch Chief (or designee) will identify
qualified FEMA PDA personnel through the ADD system. This individual will also notify the
SBA, along with FEMA’s Hazard Mitigation and External Affairs staff. OFAs that regularly
partner with FEMA, such as the U.S. Department of Housing and Urban Development (HUD),
should also be notified. The State will notify FEMA of the number of teams required to conduct
the Individual Assistance portion of the PDA, State personnel to be assigned to each team and
areas to be surveyed. Other FEMA offices and the SBA will determine their personnel to be
assigned to each team and reporting requirements for their needs.
The identified FEMA team members are then deployed, in accordance with established ADD
procedures, to the meeting location. Persons who are deployed from the Regional Office should
arrange shipping of appropriate equipment/supplies to meet the needs of all the PDA teams.

E. Equipment/Supplies
The PDA field element consists of highly mobile teams that may require some or all the
following support items:
•
•
•
•
•
•
•
•
•
•
•

Cellular or satellite telephones
Geospatial Positioning Systems (GPS)
Laptop computers
Aircards and information technology support
Portable printers with extra ink cartridges, printer paper
Scanner
Camera
PDA forms (sample PDA forms are found in Appendix B of this manual)
Maps of affected areas
Office supplies
Specialized clothing, if needed (e.g., FEMA shirts, boots, rain gear, hard hats etc.)

Go-kits can be assembled in advance by each Region’s IA Branch Chief to meet the needs of
multiple disasters or individually at the time of the disaster with input from the IA PDA Crew
Leader or IA PDA Coordinator.

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III.

Operations and Procedures

A. Team Assignments and Pre-PDA Briefing
When responding to a PDA request, a key first step is for the IA Branch Chief to coordinate with
the State point of contact to establish how many PDA teams will be needed and determine a
meeting location to conduct a pre-PDA briefing for PDA staff. This location is typically
identified by the State. The IA Branch Chief, or designee, should then identify qualified FEMA
PDA personnel and arrange for deployment. They should also notify SBA, as well as FEMA
Hazard Mitigation and External Affairs of the PDA request and operational details.
At the pre-PDA briefing meeting, the Housing PDA Crew Leader, in coordination with state
counterpart(s), will provide team rosters and contact numbers and assign teams to specific areas.
State and local officials usually give a brief synopsis of the event, highlight response activities to
date, and provide a safety briefing for all PDA field staff. There may be times when
congressional staffers and/or elected officials attend the initial briefing. A list of all attendees
and their contact information is created and maintained in the regional records.
Team assignments are based upon geographic or political jurisdictions (e.g., cities, counties,
parishes) that are identified in the State’s official request for a Joint PDA. The following items
are generally included in the pre-PDA briefing:
•

•
•
•
•
•
•
•

Discuss particulars of the event, to include insurance coverage and disaster-specific
information (i.e., definition of degrees of damage, septic tanks, and wells). If PDAs
are to be conducted in the Carribbean Islands, Pacific Islands, Tribal Nations or
Alaskan Native Villages, appropriate regional staff (Tribal Liaison or other) should be
involved in the pre-brief to ensure understanding of the specific cultures and local
practices.
Identify any disaster activity, ongoing, previous or pending that would affect PDA
outcomes.
Establish well-defined boundaries for PDA teams to survey (to preclude overlapping
or leaving out areas and inadvertently impacting the accuracy of the PDA findings).
Ensure that teams are prepared to participate in meetings with local officials during
the PDA process.
Set up a schedule for PDA teams to check in with the IA PDA Crew Leader to report
findings and receive team reassignments.
Provide clear guidance on when daily reports are due and when and where the final
debriefing will take place.
Review the data collection process (e.g., paper, electronic).
Provide briefing packets to each Housing PDA Specialist. (The packet should outline
all the information described above; plus contain maps, PDA forms/worksheets, and
other materials).

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B. Field Assessment Methods
The way in which PDA team information is gathered is relatively simple. However, unique and
unusual circumstances may occur, and unconventional approaches may be required. As a
standard practice, heavily impacted areas are given priority in the assessment process.
The length of time required to conduct a PDA varies. In large disasters, a PDA can be done
quickly because the damage and impacts are obvious. In cases of severe, widespread damage, a
declaration may be made prior to completing a PDA. A damage assessment may be conducted
following the declaration in order to determine the need for IA programs and additional add-on
counties. Additionally, photography is strongly encouraged on all PDAs.
In conducting a PDA, the following circumstances may cause delays:
•
•
•
•

Damage may be ongoing or so severe that travel to the disaster site is difficult, or
impossible, for a period of time.
The impacted State cannot provide sufficient staff for the required number of field
teams.
The local jurisdictions may not be ready to work with the PDA teams.
Multiple events impacting the same area.
1. Team Assessment Methods

In most cases, one (or a combination) of the following methods can be used by teams:
•

Windshield Survey—Generally, the local representative will take the teams by car to
the affected areas. The teams will record observed damages and hazards while
driving through these areas, periodically stopping to conduct interviews to provide
anecdotal evidence related to insurance coverage, occupancy type (owner or renter),
and other significant information to support census information collected by the IA
PDA Coordinator. This process is repeated street-by-street for the team’s assigned
area.

•

Door-to-Door—A higher level of detail and household specific data can be gathered
through this method. The teams are created and dispatched in the usual manner, but
once in the affected areas they survey door-to-door. This level of verification is labor
intensive but highly accurate. Generally, the team will speak with the occupant at the
door. In the rare instance when damage can only be viewed from inside the house,
the team may enter the home but only upon the verbal request of the occupant and
when the entire team agrees the situation is safe and necessary. The door-to-door
method is commonly used when an appeal PDA is requested. Development of a
database of addresses seen in the original PDA can be useful. If an appeal PDA is to
be conducted, addresses on the original PDA can be easily eliminated or
supplemented.

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•

Fly-Over—When accessibility is an issue or to access remote areas, a “fly-over” may
be required. An estimated number of damaged structures are determined while flying
over populated areas. Usually, homes are counted in clusters (e.g., a cluster may
equal 5 to 100 homes depending on the magnitude of the disaster, speed of the flight,
and the density of the dwellings). As with the other PDA methods, the PDA teams
are responsible for obtaining the degree of damage, income levels, etc, and should
record this information on the tick sheet. Any pictures taken from the fly-over may
be used to further analyze the degree of damage. Using maps, flight plans must be
briefed and coordinated between the PDA team and the flight crew prior to flight. In
addition, it is mandatory that FEMA and State team members have headsets for
communication while in flight with the pilot. It is strongly suggested that a FEMA
authority be present and some “on the ground verification” be obtained to validate
assessment findings when conducting a “fly-over.”
2. Other Assessment Methods

In large or complex events, PDA teams may be replaced, entirely or in part, by other technical
methods of gathering data related to disaster impacts. These methods may include predictive
modeling and automated data collection, such as the following:
•

•

Predictive modeling can be used to get an approximation of the extent and location of
damage in large events. For example, immediately after an earthquake, FEMA’s
Hazards U.S. (HAZUS) software can be used to develop maps predicting the location
of areas most severely impacted by an earthquake.
Similarly, remote sensing (aerial or satellite photos) can be used to identify damaged
areas, including those not accessible by normal transportation. Refer to FEMA
publication 9321.1-PR Remote Sensing in Federal Disaster Operations for
procedures.

C. Narrative Information to Collect During a PDA
There are several types of general information that should be recorded during a PDA through the
use of narrative text. These include, but are not limited to: demographic makeup of an affected
area, a description of the impacted area, a description of the economic impacts of the disaster,
and general observations of the community. Demographic information collected should include
affected populations that may have a greater need for assistance, such as populations with
functional and access needs, low income populations, the elderly, or the unemployed. The data
collected will be used to determine whether the event meets the requirements of 44 CFR
206.48(b) to qualify for a declaration. For occupancy type, insurance, and income data, the field
team should collect anecdotal evidence, when possible, by noting observations made in the
affected area. Once gathered, this information is reviewed, compiled, and analyzed for possible
inclusion in the Regional Administrator’s Validation and Recommendation.

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1. Demographics
The PDA Team must collect information that expresses the negative impacts to the community’s
ability to recover. Disasters can impact special populations disproportionately, as pre-existing
challenges and cultural considerations can complicate recovery. The collected demographic
information should cover the following categories:
•
•
•
•
•
•

Language considerations of affected populations
Income levels of affected populations (to include examples of sources of income—
e.g., agriculture, industrial, retail, service, professional, etc.)
People with functional and access needs
Cultural considerations (e.g., Tribal)
Children
Seniors

General demographic information is compiled using census information; however local
assessment teams can often better illustrate how a disaster has specifically impacted persons with
specific needs.
2. Description of Impacted Area and Concentration of Damage
The PDA team is required to provide a thorough and accurate description of damages and the
impact on individuals in the affected areas, including pockets of damage, general home
construction types, general price range of homes, type of community, and insurance issues.
Areas of concentrated damage are used to determine the disaster’s magnitude and should be
noted. According to guidance provided in the 44 CFR 206.48(b)(1), “areas of high damage
concentrations indicate a greater need for Federal assistance than widespread and scattered
damages.” Areas of non-disaster related damage should be identified and noted, if possible
3. Economic Impacts
The information gathered should present an accurate picture of the economic stability of a
disaster-impacted community, such as pre and post disaster unemployment, agricultural losses,
business losses, economic losses, etc. Information gathered should include major local or
regional employers impacted and how long they may be expected to be closed or function below
capacity.
4. Damage to Businesses and Loss of Critical Businesses
The SBA assesses damage to businesses in affected communities as part of the PDA team.
FEMA team members should also note damaged businesses as a part of their narrative
assessment. The loss of critical businesses like grocery stores, gas stations, or building suppliers
in affected communities can complicate the recovery of those communities. Recovery impacts
anticipated from the loss of these critical businesses should be outlined and include:

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•
•
•
•
•
•
•
•
•

Total number of businesses impacted by the disaster
Number of destroyed businesses
Number of businesses with major damage
Number of businesses with minor damage
Number of affected businesses
Critical businesses lost due to the disaster
Anticipated date of reopening
Recovery impact
Distance to nearest alternative

5. Impact on Non-Profit Organizations
Local non-profit, faith-based and community-based organizations contribute substantially to both
the steady state support available to the community and the recovery of disaster survivors.
Impacts that limit, or prohibit, this support can have tremendous immediate and long-term
consequences.
Organizations like food banks, soup kitchens, local churches, community development
organizations, economic development organizations, clinics, non-profit case management
organizations, non-profit housing corporations, and non-profit care/living facilities provide
necessary ongoing support to those with a low income, children, the elderly, and people with
access and functional needs. Information gathered may include (Instructions are provided on
page 41 of this manual):
•
•
•
•

Anticipated date when service will be restored
Services lost
Number of residents served by the facility
Whether services are continued through other means
6. Insurance

It is essential to report underinsured and uninsured properties. Recent U.S. Census data and local
officials are useful in determining the number of affected homes that are not insured. FEMA’s
National Processing Services Center also can provide flood insurance information and more
importantly, the purchase and maintenance requirements imposed on properties by the National
Flood Insurance Reform Act. It is important to note whether homes in the affected communities
have a flood insurance requirement. Additionally, the PDA pre-briefing should address what
types of disaster damage are covered by various insurance policies.
Note: Please refer to Attachment A for a table outlining the different types of insurance and
coverage.

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7. Income
To complete the Regional Administrator’s Validation and Recommendation, it is necessary to
determine the percentage of low income households in the damaged areas. This information can
be more accurately captured through census data, but anecdotal evidence and information from
local authorities can be useful in supporting the conclusion that the area is low income in the
absence of census data.
8. General Issues that Affect Individuals
Communities are reliant on services made available from the public, private, and non-profit
sector. When these services are disrupted by disaster, the effects can have rippling impacts across
the community that make bad situations worse, and complicate the recovery of individuals and
the community as a whole. The following factors may adversely affect the community’s ability
to recover. The presence of any of these factors (and data to support) should be noted. This list
may not be exhaustive. If additional factors are present that make the event particularly
devastating or which will delay recovery, data should be collected and the factor noted.
•
•
•
•
•
•
•
•
•
•
•
•
•

Impacts on public transportation (busses, accessible vans, or other modes of public
transport)
Lack of building materials
Availability of housing resources (State Led Disaster Housing Task Force,
yard/window signs, local newspaper classified ads, real estate firms and associations,
chamber of commerce, etc.)
Contractor shortages
Extreme weather conditions that may impact recovery
Crisis counseling needs
Length of time for utility interruptions
Flood-prone areas
Access issues related to closed roads or bridges
Evacuations (estimated duration)
Length of time for critical businesses to recover and open (grocery stores, fuel
stations, discount retailers, etc.)
Length of time for critical infrastructure to be restored (schools, hospitals, nursing
homes, utilities, etc.)
Unemployment issues (either pre-existing or disaster related)

D. Statistical Information to Complete PDA Field Forms
During the PDA process, team members should record dwelling damage information on PDA
Field Forms. When the assessment is complete, the information is used to determine the number
of probable assistance cases and projected funding requirements. The assessment of damaged
structures is a key task for the PDA team. The following information will be recorded during the
PDA process:

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1. Dwelling Types
The following are the common dwelling types that are recorded: single family, multifamily, and
manufactured housing units. It is important to identify the type of residence being surveyed as it
affects estimates of projected costs, repair feasibility, and timelines for home repair completion.
2. Occupancy Types
There are three principal types of occupancy – owner, renter, and not primary (secondary or
seasonal). It is important to distinguish between the occupancy types to determine probable
forms and length of assistance required, as well as, corresponding program costs for owners and
renters.
3. Insurance
It is essential to determine if the damaged property is insured or not. There are times when a
single property could experience damage for both insured and uninsured damage (e.g., a severe
storm causes roof damage and flooding causes flood-damage to the basement). When one or
more causes of damage are uninsured the home should be marked as uninsured.
There are many resources available to determine whether or not a property has insurance. Some
examples include: the local tax assessment office, the State Tax Commissioner, FEMA’s
National Flood Insurance Program (for flood insurance only), Tribal leaders, and residents of the
impacted community. FEMA’s National Processing Services Center also can provide flood
insurance information and, more importantly, the purchase and maintenance requirements
imposed on properties by the National Flood Insurance Reform Act. For more detailed
information on insurance, please refer to Attachment A: Insurance Type Table.
Because this assessment is preliminary and is intended to be expeditious, certain assumptions,
based on experience over many disasters, are often made regarding insurance. Those
assumptions may include:
•
•

If the home is less than 30 years old, it most likely carries a mortgage and is therefore
required to carry homeowners’ insurance.
If a home is in a flood zone A, and was impacted by a previous flood that resulted in a
Presidential declaration, the home, in most instances, would be required to maintain
flood insurance for the lifetime of the property.

Additional information on how to record insurance information should be addressed during the
pre-briefing on a disaster-by-disaster basis, as there are many variables. For example:
•
•

Manufactured home insurance policies may or may not cover flood damage.
An earthquake deductible can be as much as 20%. For a $500,000 home, that would
equate to a $100,000 deductible.

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•

•

Severe storm and flooding damage on a typical home can result in an overlap of
covered items. The pre-briefing should clarify which types of damage would
generally be covered under homeowner’s insurance and which damages would be
covered by flood insurance.
Condominium insurance may vary depending upon the condominium bylaws.

Note: Please refer to Attachment A for a table outlining the different types of insurance and
coverage.
4. Degree of Damage
There are five levels of damage: Destroyed, Major, Minor, Affected, and Inaccessible. When
considering damage levels, it is important to remember that FEMA’s mission is to return the
structure to a safe, sanitary and functional condition. Each level is described in detail in the
following paragraphs. The definitions of these levels apply to all unit types. All determinations
should be based on viewed damages. The levels are set as guidelines but many factors influence
the determination. The determinations are at the discretion of the Regional office within the
parameters set forth in this manual. For example, the damage caused by water levels is
dependent upon several variables, to include: how long the water stayed in the home, the
materials used to build the home, and the presence of contaminants in flood water (fuel oil,
sewage, debris, etc.) if they present a health and safety hazard rendering the home uninhabitable.
a. Destroyed
Destroyed means the structure is a total loss or damaged to such an extent that repair is not
feasible. Any one of the following may constitute a status of destroyed:
•
•
•
•
•

Structure is permanently uninhabitable
Complete failure of two or more major structural components (e.g., collapse of
basement walls/foundation, walls, or roof)
Only foundation remains
Condemned structure that will require demolition or removal by local or government
because of disaster-related health and safety concerns
An unaffected structure that will require removal or demolition by local or county
government because of a confirmed imminent danger (e.g., impending landslides,
mudslides, or sinkholes)
b. Major

Major damage exists when the home has sustained structural or significant damages, is
uninhabitable and requires extensive repairs. Any one of the following may constitute major
damage:

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•
•
•
•

Failure of structural elements of the residence (e.g., walls, roof, floors, foundation,
etc.) that are repairable
Damage to dwelling that will take more than 30 days to repair (not to include
contractor delays or availability of materials)
Eighteen inches or more of water on the first floor or water that covers electrical
outlets
Homes with a basement may be considered for major damage if the water level has
compromised the structural integrity of the home
c. Minor

Minor damage encompasses a wide range of damage and is generally the most common type of
damage. Minor damage exists when the home is damaged and uninhabitable, but may be made
habitable in less than 30 days. Some of the items that determine minor damage are listed below:
•
•
•
•

Windows or doors unsecured (damaged)
Damage to functional components (i.e. furnace, water heater, HVAC, etc.)
Three to eighteen inches of water in an occupied or required room
Damage, or disaster related contamination, to private well or septic system
d. Affected

This category includes dwellings with minimal damage to structure and/or contents and the home
is habitable without repairs. In a flood disaster, affected homes have minimal flooding with less
than 3 inches of water in an occupied or required room.
e. Inaccessible
This group includes homes that are inaccessible by reasonable means, due to disaster-related loss
of access (e.g., bridge out, road flooded or blocked by landslide, mudslide, severe erosion,
washed out, etc.).
If a home or group of homes is inaccessible due to damage to a road or bridge, the number of
affected inaccessible households should be included in the PDA. In the event the inaccessibility
is caused by road or bridge damage, the PDA team should determine whether the damaged
bridge or road is maintained privately or by the local government. If privately owned and the
sole access, damage should be noted in the Private Road or Bridge column on the PDA Field
Forms.
5. Basements
When assessing the damage to a home, consideration must be given when the home has a
basement. For a home with a basement, several variables would need to be identified in order to
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25

estimate the degree of damage to the home. Some variables would include; water depth in
relation to utilities, structural damage to walls, and foundation and support structures. It is also
important to note the uses of the basement, when possible, because FEMA only provides
assistance for rooms required for occupation of the dwelling (i.e., occupied bedrooms, bathrooms
required for occupied bedrooms, a sole kitchen or living room, or when no other room in another
part of the dwelling meets the need). Recreational and other common areas of the basement are
not considered required rooms.
Additional factors to consider which could affect the safety of the occupants of the home are:
•
•

Severely damaged structural components
Severe damage to or complete failure of major mechanical or electrical utilities
6. Manufactured Homes

The effect of wind, water, and earthquakes on manufactured homes is different than on more
traditionally built structures; therefore, FEMA will use the “Guidelines for Determining Damage
to Manufactured Homes” matrix below for determining the level of damage to impacted
manufactured homes.
Guidelines for Determining Damage to Manufactured Homes
This matrix should serve as broad guidance for field staff conducting Preliminary Disaster Assessments (PDA). Actual decisions for awarding
disaster assistance are based on individualized, more in-depth inspections. These inspections take into account the age of the unit, pre-disaster
conditions, sewage and other contaminants in the flood water, and other disaster specific conditions.
Degree of
Damage

N/A

Destroyed

Major

Minor

Program Description

Operational Mechanics

N/A

For Flood Damage

For Damages Other Than Flood (i.e. Wind
Driven Rain, Earthquake)

The structure is a total loss;
damaged to such an extent that
repairs are not economically
feasible.1 There is no value
associated with the structure
except for its basic material
content (scrap).

A water line higher than 12 inches would
equate to a destroyed designation. To be
otherwise designated as destroyed, the
dwelling's frame must be bent, twisted, or
otherwise compromised. The dwelling
interior must be so compromised by
contamination that clean up is infeasible.

The dwelling's frame must be bent, twisted,
or otherwise compromised. The dwelling
must be missing the roof or has sustained
significant damage to the roof covering,
sheathing, and framing.

The structure has sustained
structural or significant damages;
uninhabitable dwelling that
requires extensive repairs. The
dwelling is unusable in its current
condition and cannot be made
habitable in a short period of
time.

Water that impacts the floor system (to
include belly board insulation, ductwork,
subflooring) or a water line of up to 12
inches within the living area would equate to
a major designation.

The structure is damaged and
uninhabitable, but may be made
habitable in a short period of time
with minimal home repairs. The
dwelling has some damage, but
can be used without significant
repair (repairable).

IA PDA Operations Manual (9327.2-PR)

Water line is below the floor system. In
general, skirting or HVAC may be impacted.

The dwelling's frame is not bent, twisted, or
otherwise compromised; however, there is
more than minor structural damage (e.g., it
has been displaced from the foundation)
and other structural components have been
damaged (i.e., windows, doors, wall
coverings, roof, bottom board insulation,
ductwork, and/or utility hook up).
The dwelling's frame is not bent, twisted, or
otherwise compromised; however, there is
minor structural damage (e.g., it has not
been displaced from the foundation). Other
structural components may have sustained
minor damage (i.e., windows, doors, wall
coverings, roof, bottom board insulation,
ductwork, and/or utility hook up).

26

Affected

The structure has minimal
damage; dwelling is habitable
without repairs.

No damages affecting habitability; cosmetic
damages only.

1

The dwelling's frame is not bent, twisted, or
otherwise compromised. No structural
components of the dwelling have been
damaged (i.e., windows, doors, wall
coverings, roof, bottom board insulation,
ductwork, and/or utility hook up).

Economic feasibility of repairs is not a habitability/repair standard.

E. County/Parish Designations
Joint PDAs to assess damage will be conducted as soon as the situation permits. Additional
areas and assistance may be added after the initial PDA is complete, pending the submission of
appropriate verified assessments pursuant to 44 CFR 206.40(c). The State/Tribe must request
add-on counties within 30 days of the end of the incident period, or 30 days after the declaration,
whichever is later, unless extended for good cause (44 CFR 206.40(d)).
The process for post declaration designation of affected areas for IA is as follows:
•
•
•

The State must request, in writing, that a county or parish be designated for IA. This
request should include supplementary information about the area;
FEMA, state and local authorities, and other partners must conduct a damage
assessment, when feasible and appropriate;
A Federal Register Notice will be published if IA is declared and if additional
counties or parishes are declared for IA within the State.

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IV.

Post Field Assessment Activities

A. Team Concurrence on Assessment Findings
Each team member should maintain a separate count of the damaged dwellings that they survey.
All team members should use the damage levels and descriptions established in this manual as
the basis for their survey. It is important to remember that as a Joint PDA, all IA damage
determinations, insurance, and income levels must be agreed upon by the local, State/Tribal, and
FEMA members. Without mutual agreement, disputes can arise over the information contained
in the team report and the number of impacted households. Disagreements, if not resolved, can
result in appeals and reassessments. By obtaining Federal-State concurrence on PDA findings,
appeals and reassessments will be less likely.

B. Submittal of Finalized PDA Information to Regional Office/JFO
Upon completion of the field assessment, the IA PDA Coordinator and/or the Housing PDA
Crew Leader will debrief the team members to review findings, discuss overall impacts and
gather any remaining information. The information will then be transmitted to the Regional
Office/JFO in the requested format.

C. Deactivation of PDA Function
Once the State is satisfied that the teams have assessed all the damage, the IA PDA Coordinator
and/or the Housing PDA Crew Leader will release team members, collect appropriate items (e.g.,
time sheets, vouchers, supplies, equipment, etc.), ensure PDA team members check out and
update their status in ADD, and return the collected items to the appropriate locations.

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V.

Pacific Island Annex

This annex provides basic information on conducting a Preliminary Damage Assessment (PDA)
in the Pacific jurisdictions. The areas covered by this annex include American Samoa,
Commonwealth of the Northern Mariana Islands (CNMI), and Guam. 1 Except as noted below,
the standard PDA procedures apply.

A. Team Assignments and Pre-Briefing (PDA Coordinator)
•
•
•
•

Coordinate with the local government to establish a pre-PDA briefing with the village
mayor, Matai, and/or village/county council. In locations outside of Guam and the
CNMI, these are not technically government “officials.”
A Pacific Island PDA team will most likely be assigned to assess a village, a number
of villages in close proximity, or an island.
Pacific Island PDA teams need to be familiar with specific cultural differences that
impact the family structure, housing, land ownership, and community governance.
Pacific Island PDA teams need to be familiar with re-construction costs in the local
area, since the degree of damage may be elevated due to the cost to rebuild.

B. Field Assessment Methods
•
•
•

Pacific Island PDA teams may need to use small boats and/or small planes to travel
between outer islands, atolls, and lagoons.
Often, the island terrain is mountainous and homes may be accessible only on foot or
by four-wheel drive vehicle. Team members must be prepared to hike over hilly
jungle terrain or ride in the back of a pick-up truck over dirt roads.
Take precautions in rural areas to avoid unexploded World War II ordnance. Safety
protocol will be disseminated by PDA Team Leads prior to field work.

C. Specific Information – “Hard Counts”
1.

Dwelling Types

Housing construction varies considerably in island jurisdictions. Even within a jurisdiction, the
team will encounter a range of dwelling types from a thatched hut to a reinforced concrete
structure. The majority of houses are single-wall wood/tin construction. Traditional families
live in residential compounds consisting of a number of buildings. The sleeping house should be
recorded as the primary dwelling, according to the degree of damage present, and other support
structures should be marked affected, to include: kitchen/cook house, shower house, and
outhouse (benjo). These should not be considered separate structures.
1

Refer to FEMA/USAID Strategy for Disaster Mitigation, Relief and Reconstruction in the Federated States of
Micronesia and The Republic of the Marshall Islands for operations in these locations (2008).

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2.

Occupancy

Most of the dwellings surveyed will be primary residences. The exception is the “ranch” or
fishing hut. These are usually lean-to type structures that the family may stay in while tending
the crops or fishing.
Additionally, building is often done incrementally. The family may live in a wood/tin structure
while building a more modern home, as funds and resources become available. In these
circumstances, care must be taken to determine which structure is the primary residence.
3.
•
•
•
•

Ownership

Communal in nature.
Passed on from generation to generation.
Written records verifying ownership do not always exist.
Each jurisdiction has unique conditions that must be clarified with local officials.

An example of jurisdiction-specific verification of ownership would be in American
Samoa. Ninety percent of the land is communal land held under the traditional land tenure
system. Communal lands are under the supervision of the family Sa’o (high chief) and are
maintained for all members of the family who elect to live there and serve the Matai (chief). All
land is owned collectively by the aiga (extended family) which means the individual has a right
to use the property but does not own it. A member of the family may construct a house of his
own on family land with the approval of the Sa’o. With the approval of the Sa’o, a family
member may also rent his home. The land on which the house stands, however, remains the
property of the family. During the PDA process, FEMA requires that the Sa’o or Matai verify
that an individual/family occupied a home prior to the disaster and that family has permission to
live on the land. Additionally, the government of Guam has programs that provide lands for
agricultural use to native Guamanians, which may also serve as their primary residence.
4.

Insurance Coverage

As a general rule, only reinforced concrete structures might have insurance coverage.
Additionally, all jurisdictions are participating in the National Flood Insurance Program (NFIP),
so verify with the Regional Office whether there are NFIP policies in force.
5.

Degree of Damage

Destroyed: Structure is beyond repair. Roof and all walls are down.
Major: Any damage $10,000 or more that can be repaired, but that will fall below maximum
grant amount for IHP.
Minor: Any damages affecting habitability and over $50 but less than $10,000.

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Affected: Some damage to dwelling but is habitable with minor, low cost repairs. This is also
the category used when only the outdoor kitchen, shower or outhouse is damaged.
Inaccessible: This category is rarely used. When used, it should pertain to accessibility issues
that can be addressed by FEMA’s Individuals and Households Program, such as private road or
bridge damage.
Note: FEMA policy is not to provide assistance to repair outdoor kitchens, shower houses, or
outdoor toilets (benjos). Therefore, damage to these structures is counted as “affected.”

D. Things to Know Before Leaving Home
•

Bring a valid U.S. passport and any needed medications.

•

Bring cash or travelers checks. Charge cards, Automatic Teller Machine card, and
debit cards may not be accepted.

•

Be prepared for hot, humid conditions and hikes through the jungle.

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VI.

Tribal Nation Annex

A. IA Preliminary Damage Assessments on Tribal Lands
While much of the methodology for gathering data on damaged residences is the same as a
standard Preliminary Damage Assessment (PDA), there are unique differences in protocol and in
determining occupancy of homes on tribal lands. It is important that all Individual Assistance
(IA) PDA staff be aware of the sensitive nature of tribal issues and have knowledge of tribal
protocol. It is also important that all PDA team members be aware, in particular, of the
ownership issues on Tribal lands.
The Regional Tribal Liaison and the State Representative should make the initial contact with the
Tribal Chairs and the local Superintendent of the Bureau of Indian Affairs (BIA), when
applicable. The Regional Tribal Liaison may also serve as a source for briefing PDA teams on
any unique issues related to a specific reservation.

B. Prior to Going to Tribal Lands
The Regional Tribal Liaison and the State Representative will set up a meeting time with the
Tribal Chair, designee, or BIA Superintendent to begin the PDA. The meeting should serve as
an opportunity to introduce the PDA team and to brief Tribal leadership on the PDA process. It
is recommended that the PDA team also include someone from the Tribal Housing Authority as
many of the homes on a reservation are under their management. The Tribal Housing Authority
member will be able to assist the PDA team in locating damaged residences and in determining
ownership issues. The Indian tribal government may request that the PDA be joint between
FEMA and the tribal government. The Regional Administrator will make the determination
whether or not to exclude the State from a PDA on lands under the civil/regulatory authority of
the Indian tribal government upon consultation with the State. 44 CFR 206.33(d).
At the conclusion of the PDA, and prior to leaving the area, the IA PDA Team may meet with
the Tribal Chair, designee or BIA Superintendent to ensure that Tribal leadership is aware of
what was found, confirm all damaged residences have been surveyed, and inform them of the
next steps in the process.

C. Housing Authorities
The Department of Housing and Urban Development (HUD) provides Indian housing services
through “Indian Housing Authorities” and tribally designated housing entities under the Native
American Indian Housing and Self-Determination Act (NAHASDA). For example, there are 53
authorized Indian housing programs in Alaska. Remote rural Alaskan communities typically
include both Alaskan Native Village residents and non-native residents in single or adjacent
communities. The Bureau of Indian Affairs (BIA) also owns housing in some Native Villages.

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Pre-coordination among the PDA Team Leader, HUD, and BIA may help identify Villages that
include HUD and/or BIA sponsored housing units. The PDA team may also include a
representative of the regional housing authority and/or the Native Village housing program to
assist with identifying individual HUD sponsored units.

D. Occupancy of Residences on Tribal Lands
There are basically six types of occupancy on Tribal Lands:
1. Homes for which the Tribal Housing Authority Holds Title to the Residence
In some cases, occupants may live in a home owned by the Tribal Housing Authority and repairs
to the home are the responsibility of the Tribal Housing Authority. For FEMA purposes, the
occupant does not own the home until the Housing Authority conveys title to them.
This situation is very similar to a lease/purchase agreement where the option to buy has not been
exercised yet. There may also be homes in this category where the occupant owns the land and
may even have a deed to that land, but the Housing Authority holds the title until such time as
the title to the house is conveyed. These occupants are considered renters.
2. Tribal Housing Authority Homes Where the Title Has Been Conveyed
These are homes where the purchaser has completed the payments and title has been conveyed.
Most Tribal Housing Authorities maintain a list of homes that have been conveyed. If possible,
the PDA team should obtain a copy of the list of conveyed homes. Such occupants are
considered homeowners.
3. Fee Simple Homes
These are homes that an individual either purchased for a fee or built, and have never been
owned by the Tribal Housing Authority. There will often be a deed to these homes. There are
also homes within this category that have been inherited, with no transfer of title. However,
there will often be a deed to the home and property registered at the county or within tribal
records and the line of inheritance can be traced through that deed. The Housing Authority
representative or tribal team member will usually be able to identify homes in this category.
These occupants are considered homeowners.
4. Homes on Allottments
Allottments on which a tribal member owns the home: These homes may be treated as fee simple
homes, except that Right of Entry may be required from 50% or more of the individuals who

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have an interest in the allotment pursuant to the Indian Land Consolidation Act. The tribal
government will likely be able to help secure the required permission from the owners.
Allottments on which the ownership of the home is highly fractionated: Allottments may have
many owners, sometime exceeding one-hundred. In such cases, the authority to conduct any
work on the land or on the home may vested in all who have an ownership interest. The
requirements for entry onto land and to conduct work on a home are the same as stated above.
5. Homes Owned by Non-Tribal Members
These homes are treated the same as Fee Simple Homes. These occupants are considered
homeowners.
6. Rental Units
While the rent charge may be minimal or even “free-rent,” the individuals occupying the
residence are not responsible for repairs and are in a landlord/tenant relationship. Such
occupants are considered renters. Exception: Rent-Free Ownership. To be considered an
owner under rent-free guidelines, an occupant: does not hold formal title to the damaged
dwelling and pays no rent; is responsible for payment of taxes or maintenance to the residence;
and has lifetime occupancy rights with formal title vested in another. Such occupants are
considered homeowners.
E. Alaska Native Villages Annex
Alaska is a vast land with areas that are sparsely populated and subject to harsh weather
conditions, factors which in combination can significantly impact PDA operations during much
of the year. Many parts of the State have no access roads, which results in limited transportation
options such as air or watercraft. The remoteness of these areas has contributed to cultural
diversity among many of the Alaska Native populations, which presents another key
consideration for PDA Operations.
FEMA-Tribal relationships are particularly unique in Alaska. With the exception of the Annette
Island Tribal Nation and the Metlakatla Indian Community, the Alaska Native Claims Settlement
Act (ANCSA) of 1971, subsequent amendments, regulations, and court decisions allowed the
Secretary of the Interior to list certain Alaska Native entities on the Federally Recognized Tribes
List. This means that the listed Alaska Native entities are Federally recognized Indian tribes
which have access to Federal government benefits as do Federally recognized tribes in the lower
48 states. In total, there are 229 federally recognized tribes within the State.
Each Alaska Native Village has a Traditional or Indian Reorganization Act (IRA) Council
government, as well as a for-profit Village Corporation. Most Native Villages are also cities and
have a city council. The State of Alaska Division of Emergency Services treats all forms of local
government as equal entities, notwithstanding slight differences in structural nomenclature. In a

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few cases, more than one Village could be involved in a common or unified council or Village
Corporation.
Village Corporations, not the city governments, own most of the land (surface estate) in rural
Villages, unless the land has been conveyed to the city government through what is commonly
known as the 14(c) (3) process. Even in the Village, the Regional Corporation owns the
subsurface under the Village Corporation land.
Below is information and considerations related to ensuring that the PDA process is accurate,
timely, and safe.
1. Protocol and Travel Restrictions
A PDA team must have permission in advance to enter a Native Village and conduct a PDA.
This permission should be obtained from the State and the Village prior to the team traveling to
any Village.
Alaska’s indigenous people who live in remote locations primarily subsist on the wild resources
of the land and waters of coastal, riverine, and inland Alaska, from the temperate climate of
Southeast Alaska to the Arctic. There are 95 languages spoken in Alaskan homes, 22 of which
are indigenous Alaska Native languages. The most commonly spoken languages are English,
Yupi’k, Aleut, and Inupiaq. Since native languages, especially among elders, are prevalent in
many Villages, it is advisable to arrange for interpreters as circumstances warrant. FEMA
Region X normally requires that all FEMA PDA participants attend a cultural briefing prior to
embarking to remote Native Villages.
Due to the remote locations of many Villages, it is crucial that the visits are well planned and
that PDA team members carry survival gear to sustain them in the event of an emergency. This
is especially important during the winter months where extreme cold weather can be life
threatening. In addition, communication through cell phone and/or Blackberry service is
unavailable in many remote Villages, although limited land line service is often available.
Most Native Village PDAs require the use of charter flights to transport teams into the Villages.
As a result, the number of team members, timelines for flights, and sequence of Village surveys
are additional coordination elements that may present challenges.
2. Occupancy of Residences in Alaska Native Villages
Occupancy can generally be classified into one of the six categories previously described in the
Tribal Annex. However, since determining ownership of dwellings in Alaska Native Villages is
a complex process, a Village official should accompany the team during the PDA to indicate the
occupancy status of each surveyed dwelling. In Alaska, the BIA does not play a primary
partnership role in the disaster recovery process, and is normally not represented on the PDA
team. However, BIA issued identification cards are a primary form of identity verification used
later in the disaster assistance process, since they contain both name and social security number.

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3. Determining Insurance and Income Levels
Many Alaska Native Villages are extremely remote and are not readily accessible to normal
municipal services. As a result, homeowners insurance is often unavailable or cost-prohibitive.
Likewise, most Villages are not flood mapped, and therefore NFIP flood insurance is typically
not available.
Many Villagers are low income and subsist through a lifestyle that relies on traditional pursuits
such as fishing, hunting, and trapping. The Village official who accompanies the PDA team can
usually clarify the insurance and income status of residents who are not present at the time of the
PDA.
4. Things to Know Before Leaving Home
Bring a valid US passport if entry into Canada is anticipated.
Bring cash or travelers checks. Charge cards, Automatic Teller Machine card, and debit cards
may not be accepted outside the Anchorage/Fairbanks metropolitan areas.
Be prepared for extreme and possibly life-threatening winter conditions. The Region may
provide cold weather briefings, emergency kits/back packs, and cold weather gear to all field
personnel. Summer conditions are mild and often rainy with chilly temperatures at
night. Always bring a variety of clothing for layering.
The Region may require all field staff to participate in a survival briefing which includes weather
advisories, tips for encounters with aggressive wildlife such as moose and bear, and driving on
isolated mountain roads. Cultural briefings may also be mandatory.

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VII. Appendix A – Definitions
Alaska Native Claims Settlement Act (ANCSA): Alaska is unique in that no special “Indian
policy” was established, no treaties were signed, and no reservations established. ANCSA
officially designated Alaska Native Villages.
Alaska Native Village: The Village, as designated by ANCSA is the basic geographical unit (for
Federal purposes), not the Tribe (except in the case of Metlakatla). Section 104 of P. L. 103454; 108 Stat. 4791, 4792 of November 2, 1994 recognized 227 Alaska Native Village entities
eligible for funding and services from the Bureau of Indian Affairs by virtue of their status as
Indian tribes. These entities are acknowledged to have the immunities and privileges available to
other federally-acknowledged Indian tribes by virtue of their government-to-government
relationship with the United States as well as the responsibilities, powers, limitations, and
obligations of such Tribes. The Bureau of Indian Affairs has continued the practice of listing
Alaska Native entities separately solely for the purpose of facilitating identification and given the
number and complexity of native entities.
Affected: A degree of damage determined during a preliminary damage assessment when a
dwelling and personal property has received some minimal damage from the disaster but is
habitable without repairs.
Basement: Any area of a building where the floor is below ground level on all sides. Split level
homes, below ground level condominiums, and sunken living areas are excluded from the
definition of a basement.
Community: A political entity that has the authority to adopt and enforce floodplain ordinances
for the area under its jurisdiction. In most cases, the community is an incorporated city,
township, or Village or unincorporated area of a county. However, certain states may have land
use authorities that vary from this.
Damage Assessment: An appraisal or determination of the actual effects and impacts on
structural and personal property, individuals and families, animals, economic, and natural
resources resulting from human-made or natural disasters.
Destroyed: A degree of damage determined during a preliminary damage assessment when a
dwelling and personal property is a total loss or damaged to such an extent that repair is not
feasible. (See Section III, page 24, for expanded definition.)
Door-to-Door Survey: An assessment of damages where the PDA teams visit individual homes
in the affected area and record specific information, i.e., address, insurance coverage, income,
degree of damage, etc. This is the most time-consuming, but also the most accurate method of
damage surveys.
Eligible Community or Participating Community: A community for which the Federal
Insurance Administrator has authorized the sale of flood insurance under the National Flood
Insurance Program (NFIP).

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Federal Disaster Assistance: Aid to disaster survivors or local, Tribal, or State governments by
Federal agencies under provisions of the Disaster Relief Act of 1974, as amended.
Flood: A general and temporary condition of partial or complete inundation of normally dry land
areas from overflow of inland or tidal waters, unusual or rapid accumulation of runoff of surface
waters, and mudslides or mudflows caused by accumulation of waters.
Overflow of inland or tidal waters: Unusual or rapid accumulation of runoff of surface waters
or mudslides/mudflows caused by accumulation of waters.
Habitable: A living unit that has sustained minimal or no damage and is safe, sanitary,
functional, and suitable for dwelling.
U.S. Department of Housing and Urban Development (HUD): Federal agency that works to
create a decent home and suitable living environment for all Americans by addressing housing
needs, improving and developing American communities, and enforcing fair housing laws.
Inaccessible: A degree of damage determined during a preliminary damage assessment when a
dwelling is not accessible by reasonable means, due to road closure or safety hazards as a result
of the disaster (e.g., the bridge is out, the road is covered by water, the road is impassable due to
a landslide or some other type of soil erosion, etc.).
Indian Tribe: Refers to an Indian or Alaska Native tribe, band, nation, pueblo, village, or
community that the Secretary of the Interior acknowledges to exist as an Indian Tribe pursuant to
the Federally Recognized Indian Tribe List Act of 1994, 25 U.S.C. 479a.
Insurance Coverage: The insurance purchased against specific losses provided for under the
terms of a policy of insurance.
Insurance Deductible: For any loss covered by insurance, the deductible is the fixed dollar
amount or percentage, which is borne by the insured prior to the insurer’s liability.
Major Damage: A degree of damage determined during a preliminary damage assessment when
a dwelling and personal property has sustained structural or significant damage, is uninhabitable
and requires extensive repairs. (See Section III, page 24, for expanded definition.)
Manufactured Home (MH): A structure, transportable in one or more sections, which in the
traveling mode, is eight body feet or more in width or forty body feet or more in length, or, when
erected on site, is three hundred twenty or more square feet, and which is built on a permanent
chassis and designed to be used as a dwelling with or without a permanent foundation when
connected to the required utilities, and includes the plumbing, heating, air conditioning, and
electrical systems contained therein (HUD Regulations 24 CFR 3280.2).
Minor Damage: A degree of damage determined during a preliminary damage assessment when
a dwelling and personal property has received such damage that it no longer serves its basic

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purpose but can be easily repaired and made functional in less than thirty days. (See Section III,
page 25, for expanded definition.)
Mitigation: Activities providing a critical foundation in the effort to reduce the loss of life and
property from natural and/or manmade disasters by avoiding or lessening the impact of a disaster
and providing value to the public by creating safer communities. Mitigation seeks to fix the cycle
of disaster damage, reconstruction, and repeated damage. These activities or actions, in most
cases, will have a long-term sustained effect.
Multi-Family Home: A structure with shared walls between living units such as apartments,
condominiums, or townhomes.
Other Federal Agencies (OFAs): Agencies outside of FEMA with whom FEMA partners
during times of disaster.
Regional Corporation (for-profit): Twelve Native Regional Corporations were established for
Alaska Natives under ANCSA. A thirteenth Corporation was established to represent nonresident Natives. These corporations are for-profit organizations and hold title to the sub-surface
rights of 40 million acres of Alaska land. The regions are generally ethnically homogeneous.
Regional, Private Non-profit Corporations: These regional non-profits are incorporated within
the State of Alaska and are also organized to meet the federal requirements of the Indian SelfDetermination and Education Assistance Act (Public Law 93-638) (“ISDEA”), 1975. This
legislation authorizes the Secretaries of the Department of the Interior and the Department of
Health and Human Services to contract with tribes to operate federal programs. As non-profit
corporations, they are eligible to contract with the State of Alaska to participate in grant
programs. They are able to function as consortiums of Native Village Governments by virtue of
tribal resolutions passed by their constituent Village IRA or Traditional Councils.
The Robert T. Stafford Disaster Relief and Emergency Assistance Act, as amended (42
U.S.C. 5121): Provides the authority for the Federal government to respond to disasters and
emergencies in order to provide assistance to save lives and protect public health, safety, and
property.
Single Family Home: A home with one living unit and four stand alone walls built on a
basement or slab foundation.
U. S. Small Business Administration (SBA): Federal agency providing low interest disaster
loans to homeowners, renters, businesses of all sizes and private, non-profit organizations to
repair or replace real estate, personal property, machinery and equipment, inventory and business
assets that have been damaged or destroyed in a declared disaster.
Structure: Typically a human-made, walled and roofed building, intended for supporting or
sheltering, which is principally above ground and affixed to a permanent site.

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Tribal Government: Refers to the recognized body of an Indian Tribe, including any Alaska
Native Village defined in or established pursuant to the Alaska Native Claims Settlement Act (85
Stat. 688).
Uninhabitable: A dwelling that has sustained such damages that it is not safe, sanitary, nor fit to
occupy.
Village Corporation: Each ANCSA-designated Native Village Corporation was given land
based upon a population formula. When Village Corporations were established, they could elect
to be either for profit or non-profit. All Village Corporations in Alaska chose to be for profit.
City governments obtain some or most of their land through conveyance from the Village
Corporation.
Voluntary Agency Liaison (VAL): A FEMA employee who coordinates with the volunteer
sector to determine the impact on homes and residents in the community and who also is
responsible for gathering information on the number of shelter sites, feeding sites, deaths,
injuries, and illnesses for purposes of the Regional Administrator’s Validation and
Recommendation.
Volunteer: Any individual accepted to perform services by the lead agency (which has authority
to accept volunteer services) when the individual performs services without promise,
expectation, or receipt of compensation for services performed. See 16 U.S.C. 742f(c) and 29
CFR 553.10.
Voluntary Agency: Any chartered or duly recognized tax-exempt local, state or national
organization or group which has provided or may provide needed services to local, Tribal, and/or
State governments, or individuals in coping with a disaster.
Windshield Survey: An approach used in conducting a preliminary damage assessment. The
preliminary damage assessment teams record damages while driving through the affected areas.
They stop periodically to conduct interviews with disaster survivors to establish benchmarks for
insurance coverage, degree of damage, etc. This process is repeated street by street.

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VIII. Appendix B – Instructions for PDA Field Forms
INSTRUCTIONS FOR COMPLETING PDA FORMS AND MICROSOFT EXCEL
SPREADSHEET
There are four (4) official FEMA PDA forms:
A. Detailed Street Sheet – To be used during a windshield/foot PDA when the
inspectors have the capability of capturing addresses and surveying the damage on the
ground.
B. Summary Sheet – To be used in conjunction with the Street Sheet to add multiple
pages into one total result.
C. Tick Sheet – To be used during an aerial PDA or when the volume of homes is such
that the street sheet is unnecessarily time consuming.
D. Narrative Report – To be used during the briefing with the State, Tribal, and local
officials to capture information that paints the full picture of the disaster. This form is
just as important as recording the hard count numbers.

A. Detailed Street Sheet
Step One: Record all information in the header of the form. Be sure to include names and
contact numbers for all PDA team members.
Step Two: Write down the street number and name (where possible) of the dwelling under the
Address column.
Step Three: Assess the damage in order to determine under which category the dwelling falls.
You will need to determine the following:
•

Damage Level: Whether the dwelling is “Affected Habitable,” “Minor,” “Major,” or
“Destroyed.” See Section III-D-4 for a description of the damage levels.

•

Structure Type: Whether the dwelling is “Single Family,” “Multi-Family,” or
“Manufactured Home.” See Appendix A for definitions.

•

Occupancy Type: Whether the individuals living in the dwelling are owners or
renters. “Owner” indicates that the owner claims this home as their primary.
“Renter” indicates someone other than the owner claims this home as their primary
residence. See Step Six if the dwelling is not the occupant’s primary residence.

Once you have assessed the dwelling, mark the appropriate box that describes the damaged
dwelling.
If you are unable to assess the damaged dwelling because it is inaccessible, reference Step
Seven.

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Step Four: Determine whether the assessed damaged dwelling is low income. To determine
whether a home is low income, the following factors should be considered: input from the local
representative, general state of the home, and neighborhood. Mark the “Low Income” box if
appropriate.
Step Five: Determine whether the assessed damaged dwelling is insured. Remember to assess
the type of insurance that accords with the cause of damage. Do not select “insured” for a
flooding disaster if the occupant only has homeowners’ insurance. The local representative
should be able to help answer this question as well. Mark the “Insured” box if appropriate.
Step Six: If the assessed damaged dwelling is not the occupant’s primary residence, then mark
the “Not Primary” box.
Step Seven: If the damaged dwelling is inaccessible, then mark the “Inaccessible” box. Mark it
if you are unable to see the home or otherwise determine the damage level. Also mark as
inaccessible if the home did not sustain physical damage but the occupant(s) are unable to
reasonably reach the residence and live there due to the disaster. Remember: If you mark a
damage level, DO NOT mark “Inaccessible.”
Step Eight: If the damaged home or group of homes is inaccessible due to the only access point
being a private road or bridge that is damaged, then mark the “Bridge” box. Private indicates
that which is not owned or maintained by a government body.
Step Nine: If the assessed damaged dwelling has a loss of essential utilities such as electric, gas,
or water, then mark the “Utilities Out” box.
Step Ten: If the assessed damaged dwelling is flooded, record the water depth in inches and/or
feet in the “Basement” and/or “Living Area” boxes. To be used during flooding disasters only.
Step Eleven: The “Other” box may be used to record a disaster or Region specific element. Do
not use unless directed to by the PDA Coordinator who will advise you what information is to be
recorded in this field.
Step Twelve: If imputed into the excel version of the spreadsheet, the totals for each column will
be computed for you. If not, add up each column and record at the bottom of the page (water
depths do not need to be totaled). These totals should then be transferred to the summary sheet.

B. Summary Sheet
The fields on the summary sheet match exactly with those on the detailed Street Sheet. The
purpose of the summary sheet is to add multiple pages or counties together to come up with a
total. Remember to record all information in the header of the form. Be sure to include names
and contact numbers for all PDA team members.

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C. Tick Sheet
Step One: Record all information in the header of the form. Be sure to include names and
contact numbers for all PDA team members.
Step Two: Record homes as either hash marks or total numbers in the appropriate damage level
box.
Step Three: Add each row together and record the total number of homes at all damage levels in
the appropriate “Total Damaged” section.
Step Four: Record how many of the total homes have insurance and how many do not. At the
top, place the percentage of insured homes by dividing the number of insured homes by the total
number of homes surveyed.
Step Five: Record the number of homes with low-income households. To determine whether a
household is low income, the following factors should be considered: input from the local
representative, general state of the home, and neighborhood. At the top, place the percentage of
low income homes by dividing the number of low income homes by the total number of homes
surveyed.

D. Narrative Report
Record all information in the header of the form.
1. Event type and description of damage trends observed: Describe the event type and
the damage trends observed, e.g., water contamination, of the impact area. Explain
what types of damages have been reported (e.g., trees down, basement flooding,
sewage backup, etc.).
2. Identify issues related to sewer back up: Explain the level of sewer back up, i.e.,
normal, above normal, etc., and what types of sewer-related issues and/or damages
that have arose due to the disaster.
3. Identify areas with utilities out: Describe impacted areas and include a projected date
of restoration.
4. Identify areas of concentrated damages: List neighborhoods or towns that were
highly impacted.
5. Identify remote areas: Explain if there are impacted areas that may be hard to reach.
6. Identify major inaccessible areas and reason: Explain and describe areas the teams
could not access. Details include how many and what types of homes are in the area,
what is blocking the access, and how long the area is expected to be inaccessible.
7. Describe types of structures surveyed (i.e., brick, wood frame, foundation, basements,
etc.): Explain if there are a lot of apartment buildings, etc. in the area surveyed.
8. Describe prevalence of damage to mobile homes or mobile home parks: Explain if
there are a lot of damages to mobile homes and/or mobile home parks in the area
surveyed.

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9. Number of businesses impacted: Explain if these businesses are small businesses or
large area employers. Also determine how many employees are impacted and how
long they may be out of work.
10. Names of major employers impacted: For the impacted large area providers, please
provide the company’s name.
11. Other factors that impact tax-base: Pre-existing factors such as high unemployment,
etc. can impact a community’s ability to recover. Other disaster-related factors that
can impact a community’s ability to recover, such as vacation and tourism properties
damaged, permanent exodus of population from disaster area, loss of use of
commercial areas, loss of production base, should be noted as well.
12. Describe agricultural impact, if applicable: Detail any farms or crops that may be
impacted.
13. Are there currently shelters open: Provide the maximum and current number of
shelters and the population.
14. Estimated number of displaced households and where they are staying: Find out
where impacted citizens are currently staying (e.g., with friends/family, shelters,
hotels, etc.).
15. Are there sufficient housing and rental resources to meet the needs of the displaced:
Describe current housing situation of displaced residents and available housing
resources. If there are no resources available, include where the nearest available
resources are located.
16. Describe local and VOAD activities, and agency resources available: Describe the
agencies present and the services being provided. Agencies may be local or national.
17. Is there a significant need for counseling services: Describe the emotional needs of
survivors.
18. Describe impact on special populations: Document the presence of any special
population, i.e., access and functional needs, people with language barriers, seniors,
children, etc., along with anticipated needs they may have.
19. List Tribal nations impacted: List Tribal nations that were impacted by the disaster.
Describe any disaster related needs.
20. List storm related fatalities and injuries: Provide, at a minimum, how many deaths
and injuries have been officially recorded. Where possible, provide names and
addresses of the deceased in order to aid FEMA inspectors should there be a
declaration.
21. Any other factors affecting the area not listed above: Detail any special factors not
listed above that may further impede a community’s ability to recover or any special
circumstance that makes the situation unique. Examples of information to include in
this section are evacuations, mobile homes moved, schools as shelters, secondary
homes, concern of local contact, etc.

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44

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""'CFile Typeapplication/pdfFile TitlePreliminary Damage Assessment for Individual Assistance Operations ManualSubjectPreliminary, Damage, Assessment, IA, PDA, Individual AssistanceAuthorFEMAFile Modified2015-07-17File Created2012-07-24