At the conclusion of this lesson, students will be able to:

1. Identify FEMA VAL coordination responsibilities with Federal agencies.
2. Identify State, Local, Tribal and Territorial (SLTT) VAL coordination responsibilities with SLTT agencies.

In this lesson, we'll discuss all levels of Federal VAL coordination in response to disasters as well as the location of the VAL within the Federal government. We will also provide examples of how VALs maintain relationships with other Federal agencies to aid in disaster assistance coordination efforts. This lesson will cover VAL coordination at the State, Local, Tribal, and Territorial (SLTT) levels, their location at these levels, and coordination efforts among government and non-government partners, and Voluntary Organizations Active in Disasters (VOADs) and Community Organizations Active in Disasters (COADs).

Each FEMA region has a team of VALs. There are locations of each FEMA Regional Office throughout all ten FEMA regions, including Alaska, Puerto Rico, the U.S. Virgin Islands, Guam, Hawaii, American Samoa, and the Northern Mariana Islands.

For Region II, there are VALs in both New York, NY and San Juan, PR. In Region IX, there are VALs in both Oakland, CA and Honolulu, HI.

In Lesson 1, you learned that throughout the history of the VAL, they've provided subject matter expertise and technical assistance to government and non-government partners. Some examples of the technical assistance provided by FEMA VALs include:

• Providing streamlined, comprehensive and accessible information regarding federal programs, policies, public-private connections and situational awareness;
• Providing referrals to disaster survivors with unmet needs in coordination with Individual Assistance and voluntary organizations;
• Supporting navigation of the federal supply chain, programmatic, information-sharing and other processes;
• Elevating and addressing the needs of nongovernmental and voluntary organizations and their clients for better service delivery;
• Supporting the coordination of donated resources;
• Providing guidance to state, local, tribal and territorial governments on spontaneous unaffiliated volunteer management; and
• Coordinating engagement in whole-of-government response and recovery exercises and the development of federal, state, tribal and territorial planning documents.

Source: FEMA. (2020, October 15). FEMA Voluntary Agency Liaison. https://www.fema.gov/fact-sheet/fema-voluntary-agency-liaison

In a disaster environment, VAL engagement is initiated when the Individual Assistance Group is called upon in support of Emergency Support Function (ESF) #6. There are four primary functions of ESF #6:

Mass Care. Coordinating sheltering, feeding, emergency supplies distribution, and reunification of children and adults with their families.

Emergency Assistance. Coordinating voluntary organizations, unsolicited donations and management of unaffiliated volunteers; essential relief services; transitional sheltering; support to individuals with disabilities and others with access and functional needs in congregate facilities; support to children in disasters; support to mass evacuations; and support for the rescue, transportation, care, shelter, and essential needs of household pets and service animals.

Source: FEMA. (2016, June). ESF #6 - Mass Care, Emergency Assistance, Temporary Housing, and Human Services Annex. [PDF]

In addition to Mass Care and Emergency Assistance, the remaining two functions of ESF #6 are:

Temporary Housing. Temporary housing options include rental, repair, and loan assistance; replacement; factory-built housing; semi-permanent construction; referrals; identification and provision of safe, secure, functional and physically-accessible housing; and access to other sources of temporary housing assistance.

Human Services. Disaster assistance programs that help survivors address unmet disaster-caused needs and/or non-housing losses through loans and grants; also includes supplemental nutrition assistance, crisis counseling, disaster case management, disaster unemployment, disaster legal services, and other state and Federal human services programs and benefits to survivors.

Source: FEMA. (2016, June). ESF #6 - Mass Care, Emergency Assistance, Temporary Housing, and Human Services Annex. [PDF]

Among the four ESF #6 functions that VALs support, VALs play a critical role within the emergency assistance function by providing support for volunteer and donation management.

VALs can provide:

• Coaching/mentoring for Volunteer and Donations Coordination Task Force (VDCTF) and State VAL functions to develop Volunteer Reception Centers, messaging for volunteers and donations, and training resources.
• Working knowledge of the Public Assistance programs, policies, and teams; and GSA support to locate warehouses.
• Information sharing including liaison support with Emergency Operations Centers (EOCs) and VDCTFs as needed, information for organizations not affiliated with VOAD, and guidance on recruiting National VOAD members for assistance.
• Knowledge and guidance for donated resources policies, including Public Assistance policies and teams, tools such as independentsector.org, and templates and training.

In the Incident Command System (ICS) organizational structure, the Operations Section is responsible for developing tactical organization and directing resources to carry out the Incident Action Plan (IAP).

Source: FEMA (2017, November). Incident Management Handbook. [PDF]

Organizational Chart Long Description

The organizational chart displayed onscreen shows the hierarchy of groups and positions under the Operations Section.

The IA Branch oversees programs that provide basic essential needs for disaster survivors during their path to recovery.

Source: FEMA (2017, November). Incident Management Handbook. [PDF]

Organizational Chart Long Description

The organizational chart displayed onscreen shows the hierarchy of groups and positions under the IA Branch.

VALs are part of the Operations Section's IA Branch. As you learned in Lesson 1, VAL positions include VAL Group Supervisors, VAL Task Force Leaders, VAL Crew Leaders, and VAL Specialists.

Select the image to enlarge.

Source: FEMA (2017, November). Incident Management Handbook. [PDF]

Organizational Chart Long Description

Select for larger version of organizational chart.

The FEMA and State VALs work to identify resource shortfalls and unmet needs in the area affected by the disaster. Unmet needs and resource shortfalls may be identified through government operations or partner agency activities in the field. Once identified, FEMA and State VALs communicate and coordinate with National and State VOAD partners to identify solutions and resources to address the shortfalls.

VAL coordination with other government agencies at the Federal and State levels is essential to ensure that government resources are utilized to their greatest capacity prior to utilizing NGO resources. Government resources are prescribed by law, regulation, and policy. Non-governmental resources are more flexible and fill gaps that may not be addressed by government programs.

Over the following slides, we will provide examples of collaboration and coordination between VALs and Federal agencies.

The Corporation for National and Community Service (CNCS) can deploy national AmeriCorps assets under Mission Assignment into disaster declared states to supplement response efforts. These efforts can include volunteer and donations management, clean-up/debris removal, bulk distribution of supplies, and other missions as necessary.

When Hurricane Harvey struck in Texas in 2017, VAL coordinated the partnership between CNCS and the Texas Conservation Corps to assist in the management of a donation warehouse and volunteer reception centers. Recovery activities also included disaster survivor assistance, operations and logistics, damage assessments, muck and gut operations, and working alongside a variety of response organizations.

Read more about CNCS/AmeriCorps' response efforts during Hurricane Harvey. You can also visit AmeriCorps' website to learn more about their disaster mitigation and response operations.

For communities and neighborhoods with limited resources struck by disasters, the Department of Housing and Urban Development can provide flexible grants to support long-term recovery activities after initial involvement from FEMA. The Community Development Block Grant (CDBG) Program, with funds appropriated as Disaster Recovery grants, can help rebuild impacted areas and provide seed money for the recovery process.

For more information on the Community Development Block Grant Program Disaster Recovery grants, watch this short YouTube video on Helping Your Community Recover After a Disaster.

Source: HUD Exchange. (n.d.). Community Development Block Grant Disaster Recovery Program. https://www.hudexchange.info/programs/cdbg-dr/

VALs partner with the Small Business Administration (SBA) to promote them as a resource in the Sequence of Delivery for Federal assistance. VALs work alongside SBA to inform nongovernmental organizations and survivors of available loans for individuals and households, businesses, and non-profits, and the need - especially for individuals - to apply for loans. Individuals and households denied loans will be referred to FEMA for review of potential additional assistance under the Other Needs Assistance (ONA) Program. Because of this, it is imperative that partners understand the Sequence of Delivery to best advocate for survivors to ensure they receive the maximum amount of Federal benefits available.

Read more about the Small Business Administration's Disaster Funding Programs at https://www.sba.gov/funding-programs/disaster-assistance

VALs are responsible for informing partners of available United States Department of Agriculture (USDA) programs, grants, and resources, and connecting them with USDA representatives for guidance and assistance. There are various programs and grants available through USDA from feeding to housing.

For example, the Farm Service Agency, an agency under USDA, has grants and loans available to farmers following a disaster. The Farm Service Agency can support recovery of the farm itself, while FEMA can support recovery efforts for the home maintained on the farmland.

The USDA Rural Development Summary of Major Programs lists several programs available for rural housing and community facilities, rural business and co-operations, and rural utilities.

VALs are responsible for informing partners of the many available programs under the Department of Health and Human Services (HHS). One such program includes a Memorandum of Understanding that FEMA has with HHS Administration for Children and Families (ACF) to implement the Immediate Disaster Case Management Program. When authorized, FEMA funding can be provided to HHS ACF to initiate the Immediate Disaster Case Management Program, and additional partnerships and resources to ensure program success.

Find out more about the Department of Health and Human Services Programs at https://www.phe.gov/preparedness/pages/default.aspx

In emergency and disaster declaration situations that cause significant layoff events and job losses, VALs can provide assistance to impacted states in promoting the Dislocated Workers Grant (DWG) available under the Workforce Innovation and Opportunity Act.

DWGs are discretionary grants that provide resources to states and other eligible applicants in response to these large layoff events and job losses. When an area impacted by a disaster is declared eligible for public assistance by FEMA, disaster DWGs provide funding to create temporary employment opportunities in recovery and clean-up efforts.

Source: U.S. Department of Labor. (n.d.). National Dislocated Worker Grants. Employment and Training Administration. https://www.dol.gov/agencies/eta/dislocated-workers

FEMA VALs work in concert with their counterpart at the State, Local, Territorial, and Tribal (SLTT) level. SLTT VALs are often positioned within the emergency management agency or other state agency. For example, Pennsylvania's VAL is housed within the Pennsylvania Emergency Management Agency (PEMA) and coordinates voluntary efforts with the PA VOAD following a disaster declaration by the governor.

In the State of Vermont, the VAL position lies within the Vermont Agency of Human Services. This individual works closely with the VT Emergency Management Agency and VT VOAD partners to coordinate disaster response and recovery activities. In Illinois the state’s VAL is positioned within the Serve Illinois Commission on Volunteerism and Community Service and supports activities of the IL VOAD.

These are state-specific examples, but many SLTT VALs and VOADs are structured this way.

Sources: Pennsylvania Emergency Management Agency. (n.d.). PA Voluntary Organizations Active in Disasters. PEMA. https://www.pema.pa.gov/Recovery/VOAD/Pages/default.aspx

Serve Illinois. (n.d.). Voluntary Organizations Active in Disaster (VOAD)/Community Organizations Active in Disaster (COAD). https://www2.illinois.gov/sites/serve/Disaster/Pages/voadcoad.aspx

Vermont State Emergency Management Plan. (n.d.). State of Vermont Emergency Management Plan. https://vem.vermont.gov/sites/demhs/files/SEMP/SEMP%20Base%20Plan.pdf

As we learned in Lesson 1, the capabilities and responsibilities of VALs can include technical support and information sharing, supporting planning, preparedness, and mitigation in disaster response, and Mission Assignments. SLTT VALs also support implementation of response and recovery efforts between government and non-government partners, state VOADs, and COADs.

State-level VAL coordination occurs with the State-level counterpart of the Federal agency. For instance, FEMA VALs coordinate with the U.S. Department of Labor; State VALs coordinate with their State Department of Labor. Many Federal and State programs are essentially the same programs, as Federal funds flow down to State agencies. The difference is the State has more responsibility for program design and implementation to ensure that Federal dollars are used to support residents in need in that state.

Some examples of VAL coordination activities at the State level include:

• Participating in, supporting, and organizing a Mass Care Task Force
• Developing and implementing volunteer and donations management planning in coordination with other organizations
• Teaching volunteer and donations management
• Supporting the development and review of recovery plans
• Assisting in the establishment of VOADs and COADs
• Assisting counties and local communities with developing Pre-Disaster Recovery Plans and Recovery Tabletop Exercises
• Assisting with the establishment of Disaster Case Management for both declared and non-declared disasters
• Creating, supporting, and maintaining relationships between the VOADs, COADs, long-term recovery groups (LTRGs), and Emergency Managers at the local level

Additional examples of VAL coordination activities at the State level include:

• Assisting VOADs, COADs, and LTRGs with locating and securing additional funding streams for sustainability of the organization long term
• Assisting VOADs, COADs, and LTRGs with community asset mapping
• Facilitating dialogue between NGOs and Emergency Managers at the local level
• Facilitating the establishment of volunteer housing pre-storm or disaster
• Facilitating information sharing between FEMA and local jurisdictions
• Developing and maintaining relationships with State Service Commissions and promoting National Service Opportunities (e.g., Texas Conservation Corps, ADART, NCCC, AmeriCorps, VISTA, etc.)
• Assisting with establishing and selecting volunteers for Community Emergency Response Teams (CERTs), including Adult and Teen CERTs
• Assisting with the development of Citizen Corps Council

In this lesson, you learned about FEMA VAL coordination responsibilities with Federal agencies as well as SLTT VAL coordination responsibilities with SLTT agencies.

In Lesson 3, we'll discuss VAL relationships with non-governmental organizations.