Sample Disaster Recovery Plan for New York City

Introduction

This document outlines a sample disaster recovery plan for New York City, considering its unique risks and vulnerabilities. The plan incorporates guidelines from federal agencies like FEMA ¹ and insights from disaster recovery plans of other major cities ². It aims to minimize downtime, protect data, ensure business continuity, and guarantee the reliability of backup and standby systems ².

Existing Disaster Recovery Plans for New York City

New York City has several existing disaster recovery plans and initiatives in place. The City has received $310,817,000 in Community Development Block Grant Disaster Recovery (CDBG-DR) funds from the Department of Housing and Urban Development (HUD) for recovery and resiliency efforts related to Hurricane Ida ³. These funds are allocated to support housing, business, infrastructure, and resiliency programs ⁴. In addition to the CDBG-DR funding, New York City also benefits from the American Rescue Plan Act's State and Local Fiscal Recovery Funds (ARPA-SLFRF), providing $5.88 billion to support the city's recovery from the COVID-19 pandemic ⁵. This funding is part of the city's "Recovery for All" plan, which focuses on investing in working families and driving economic growth in every neighborhood ⁵.

The City also published Action Plan Amendment 24 (APA 24) to the CDBG-DR grant on November 10, 2022 ³. Furthermore, the Local Government Records Management Improvement Fund (LGRMIF) grant program offers funding opportunities for disaster management, including the development, testing, and implementation of disaster recovery plans and systems to protect vital records ⁶. Another initiative, the "Stronger, More Resilient New York" report, provides a framework for rebuilding communities affected by Hurricane Sandy in 2012 and enhancing the resilience and infrastructure of buildings city-wide ⁷.

Disaster Recovery Plans for Other Major Cities

Disaster recovery plans for other major cities offer valuable insights for New York City. A common objective among these plans is to minimize downtime and protect critical data ². The Disaster Recovery Program offered by the National League of Cities (NLC) in partnership with Agility Recovery Solutions enables continued operations by providing resources such as power generation, office space, technology assets, and satellite connectivity ⁸. FEMA's pre-disaster recovery planning guide emphasizes post-disaster planning, city operations, recovery management, and technical assistance ⁹. It also highlights the importance of partnerships with non-governmental organizations (NGOs) and charitable organizations in providing support and resources during recovery ⁹.

Disaster recovery plans are crucial not only for immediate response but also for securing funding after an event ¹⁰. Having a plan in place demonstrates preparedness and facilitates access to funding from various sources, including government grants and private organizations.

Developing a Disaster Recovery Plan

Creating a comprehensive disaster recovery plan requires a structured approach that involves several key steps ¹⁰:

• Assemble a diverse planning team: This team should include representatives from various departments, community members, and individuals with experience in disaster recovery.
• Understand the situation: This involves reviewing existing disaster and community planning documents, identifying potential hazards, and assessing their potential impact.
• Identify impacts and potential consequences: This step requires a detailed analysis of the potential consequences of various disaster scenarios on different sectors and populations.
• Determine goals and objectives: This involves setting clear goals for recovery, such as minimizing downtime, protecting critical data, and ensuring the well-being of residents.
• Assess community capacity and identify challenges: This step involves evaluating the resources and capabilities available within the community and identifying potential challenges to recovery.
• Establish a process for post-disaster decision-making and policy setting: This involves establishing clear procedures for decision-making and policy implementation during and after a disaster.
• Develop the plan: This involves documenting the plan, including all necessary procedures, strategies, and resources.
• Review and approve the plan: The plan should be reviewed and approved by relevant stakeholders, including government agencies, community organizations, and emergency management officials.
• Plan implementation and maintenance: This involves implementing the plan and regularly reviewing and updating it to ensure its effectiveness.

In addition to these steps, a disaster recovery plan should include the following key elements ¹¹:

• Objectives and goals: Clearly defined objectives and goals guide the recovery process and ensure that efforts are aligned with overall priorities.
• Recovery measures and procedures: Detailed procedures for various recovery activities, such as evacuation, sheltering, and infrastructure restoration, ensure a coordinated and efficient response.
• Testing processes: Regular testing of the plan helps identify gaps and areas for improvement, ensuring its effectiveness in a real disaster situation.
• A communication plan: A comprehensive communication plan outlines strategies for disseminating information to the public, coordinating with stakeholders, and managing media relations.
• Defined disaster recovery stages: Clearly defined stages of disaster recovery, such as immediate response, short-term recovery, and long-term recovery, provide a framework for managing the recovery process.

Furthermore, disaster recovery planning should prioritize the following key objectives ¹²:

• Minimizing disruptions: Reducing the impact of disasters on business operations and essential services.
• Data protection: Ensuring the integrity and availability of critical data.
• Rapid recovery: Enabling quick restoration of services and operations.
• Risk mitigation: Identifying and mitigating risks associated with data loss and system failures.

To ensure the effectiveness of the disaster recovery plan, it is essential to test it regularly and train staff on how to use it ¹³. This includes conducting drills and exercises to simulate disaster scenarios and evaluate the plan's implementation.

Resources and Guidelines for Creating Disaster Recovery Plans

FEMA provides valuable resources and guidelines for creating disaster recovery plans. The National Disaster Recovery Framework (NDRF) emphasizes pre-disaster preparedness as a crucial element for effective recovery ¹⁴. This includes coordinating with whole community partners, mitigating risks, incorporating continuity planning, identifying resources, and developing the capacity to effectively manage the recovery process ¹⁴. The NDRF also outlines nine core principles that guide disaster recovery efforts ¹:

• Individual and Family Empowerment: Empowering individuals and families to take an active role in their recovery.
• Leadership and Local Primacy: Recognizing the leadership role of local communities in disaster recovery.
• Pre-Disaster Recovery Planning: Emphasizing the importance of planning for recovery before a disaster occurs.
• Partnerships and Inclusiveness: Fostering collaboration and inclusivity among all stakeholders involved in recovery.
• Public Information: Providing accurate and timely information to the public during and after a disaster.
• Unity of Effort: Coordinating efforts among all stakeholders to ensure a unified response.
• Timeliness and Flexibility: Responding to disaster needs in a timely and flexible manner.
• Resilience and Sustainability: Promoting resilience and sustainability in recovery efforts.
• Psychological and Emotional Recovery: Recognizing the importance of addressing the psychological and emotional needs of individuals and communities affected by disasters.

FEMA also offers a comprehensive preparedness guide (CPG 101) with guidelines on developing emergency operations plans ¹⁵. This guide provides a framework for creating plans that address various aspects of emergency management, including prevention, mitigation, preparedness, response, and recovery. Other valuable resources include the "Threat and Hazard Identification and Risk Assessment (THIRA) and Stakeholder Preparedness Review (SPR) Guide" ¹⁵ and a pre-disaster recovery planning guide for local governments ¹⁰. These resources provide tools and guidance for assessing risks, identifying vulnerabilities, and developing effective recovery strategies.

New York City's Unique Risks and Vulnerabilities

New York City faces a range of unique risks and vulnerabilities due to its geographic location, dense population, and complex infrastructure. These include:

• Coastal erosion: The city's extensive coastline is vulnerable to erosion, which can exacerbate the impact of storms and lead to economic losses ¹⁶.
• Coastal storms: New York City's densely populated coastline is highly susceptible to coastal storms, including hurricanes and nor'easters. Rising sea levels and increased storm frequencies due to climate change further amplify this vulnerability ¹⁶. Hurricane Sandy in 2012 serves as a stark reminder of the devastating impact that coastal storms can have on the city, causing widespread damage and disruption ¹⁷.
• Droughts: While New York City has a robust water system, it remains vulnerable to droughts, which can strain water resources and impact various sectors, including public health and the economy ¹⁶.
• Earthquakes: Although New York City is not located on a major fault line, earthquakes still pose a risk due to the city's aging infrastructure and dense urban environment ¹⁶. The concentration of buildings and infrastructure in a relatively small area increases the potential for damage and disruption in the event of an earthquake.
• Extreme heat: The urban heat island effect, where urban areas experience higher temperatures than surrounding rural areas, increases the risk of heat-related illnesses and mortality in New York City ¹⁶. Climate change projections indicate that temperatures will continue to rise, further exacerbating this vulnerability.
• Flooding: New York City is vulnerable to flooding from various sources, including coastal storms, heavy rainfall, and rising sea levels ¹⁶. Flooding can impact both coastal areas and interior floodplains, affecting residents, businesses, critical infrastructure, and the natural environment.
• Terrorism: As a major global city and a symbol of Western culture and finance, New York City remains a potential target for terrorism ¹⁹. The city has experienced terrorist attacks in the past, and the threat of future attacks requires ongoing vigilance and preparedness.

Vulnerable populations: Certain populations within New York City are particularly vulnerable to the impacts of disasters. These include:

• Children: Children are more susceptible to harm during disasters due to their dependence on adults for safety and care. They may also experience greater psychological distress in the aftermath of a disaster ²⁰.
• Elderly: Older adults may have limited mobility, chronic health conditions, or social isolation, making them more vulnerable to the physical and emotional impacts of disasters ²⁰.
• People with disabilities: Individuals with disabilities may face challenges evacuating, accessing shelters, or receiving necessary medical care during and after a disaster ²⁰.
• Low-income communities: Poverty can exacerbate vulnerability to disasters due to factors such as inadequate housing, limited access to resources, and social marginalization ²⁰.
• Individuals with limited English proficiency: Language barriers can hinder access to information and assistance during emergencies, increasing vulnerability for those with limited English proficiency ²⁰.

It is important to note that New York City has a legal right to shelter for individuals and families in need ²¹. This right, established through legal precedent, ensures that homeless individuals and families have access to temporary shelter during emergencies.

The interconnectedness of New York City's aging infrastructure and its vulnerability to various hazards is a critical insight that should inform disaster recovery planning ²⁰. Investing in infrastructure upgrades and resilience measures can help mitigate the impact of disasters and enhance the city's overall preparedness.

Roles and Responsibilities in New York City's Disaster Response

Effective disaster response requires a coordinated effort among various agencies and organizations. In New York City, the following entities play crucial roles:

Community engagement and partnerships are essential for effective disaster response and recovery ²⁶. NYCVOAD exemplifies this by bringing together diverse organizations to collaborate and leverage their resources for a more comprehensive and coordinated response.

Communication and Coordination Strategies for Disaster Recovery

Effective communication and coordination are vital for successful disaster recovery. Key strategies include:

• Developing a coordinated response across diverse outlets: This ensures consistent messaging and reaches a wider audience through various channels, including social media, traditional media, and community networks ²⁷.
• Calling on credible messengers: Utilizing trusted sources, such as community leaders, public health officials, and emergency management personnel, enhances the credibility and effectiveness of communication ²⁷.
• Improving communication with vulnerable groups: Tailoring communication to the specific needs of vulnerable populations, such as those with disabilities, language barriers, or limited access to technology, ensures accessibility and understanding ²⁷. This may involve translating materials into multiple languages, using plain language, and providing information in accessible formats.
• Building pre-crisis partnerships: Establishing partnerships with community organizations, media outlets, and other stakeholders before a disaster occurs facilitates communication and resource sharing during emergencies ²⁸.
• Using various communication methods: Employing a mix of channels, such as community meetings, face-to-face communication, word of mouth, newspapers, radio, notice boards, and websites, ensures broad reach and caters to diverse communication preferences ²⁹.

A comprehensive disaster recovery communication plan should include the following elements ³⁰:

• Aim and objectives: Clearly defined aims and objectives guide communication efforts and ensure that messages are aligned with overall recovery goals.
• Audience: Identifying target audiences and their specific communication needs helps tailor messages for maximum impact.
• Key messages: Developing clear and concise key messages ensures that critical information is communicated effectively.
• Communication methods and activities: Selecting appropriate communication methods and activities, such as press releases, social media updates, community meetings, and public service announcements, ensures that messages reach the intended audience.
• Key actors and their responsibilities: Assigning roles and responsibilities for communication tasks ensures a coordinated and efficient flow of information.
• Resources and timescales: Allocating resources and establishing timelines for communication activities ensures that messages are disseminated promptly and effectively.
• Evaluation and amendment: Regularly evaluating and amending the communication plan based on feedback and changing circumstances ensures its ongoing effectiveness.

In addition to these elements, it is crucial to acknowledge the impact of the disaster and validate people's experiences in disaster recovery communication ³⁰. This involves expressing empathy, addressing concerns, and providing emotional support to those affected by the disaster. Clear and accessible communication is particularly important in reaching vulnerable populations during disasters ²⁷. By tailoring communication strategies to their specific needs, emergency management officials can ensure that these individuals receive critical information and support.

Recovery Strategies for Critical Infrastructure, Essential Services, and Vulnerable Populations

Disaster recovery strategies should address the needs of critical infrastructure, essential services, and vulnerable populations.

Critical Infrastructure:

• Restoration of essential services: This includes reopening closed roads, restoring utility access (power, water, communication), and ensuring the functionality of transportation systems ³¹.
• Building more resilient facilities: This involves incorporating disaster-resistant design and construction practices into new and existing infrastructure to minimize damage and disruption in future events ³¹.
• Implementing redundancy and backup systems: Establishing backup power supplies, data centers, and communication systems ensures continued operation during disruptions ³².
• Prioritizing recovery efforts based on needs: Prioritizing the restoration of critical facilities, such as hospitals, emergency services, and transportation hubs, ensures that essential services are available to those who need them most ³².
• Ensuring food and water security: Maintaining the operation of food production and drinking water services is crucial for public health and well-being during and after a disaster ³².
• Environmental remediation: Cleaning up hazardous materials, debris, and contaminated areas prevents further harm to the environment and public health ³¹.
• Clearing debris fields: Removing debris from roads and public spaces prevents the spread of disease and facilitates access for emergency responders and recovery efforts ³¹.
• Developing a critical facilities protection plan (CFPP): A CFPP helps identify and protect critical infrastructure assets and ensures their functionality during and after a disaster ³³.

Essential Services:

• Service recovery: When essential services are disrupted, it is crucial to implement effective service recovery strategies. These include:

• Apologizing and acknowledging service disruptions: Acknowledging the disruption and expressing empathy to those affected demonstrates accountability and concern ³⁴.
• Listening to and empathizing with those affected: Actively listening to concerns and understanding the impact of the disruption on individuals and communities helps build trust and facilitates recovery ³⁴.
• Fixing problems quickly and fairly: Taking swift action to address the service disruption and ensuring fair treatment for all affected parties demonstrates a commitment to restoring normalcy ³⁴.
• Offering atonement and following up: Providing compensation or other forms of atonement for the inconvenience caused by the service disruption and following up with those affected to ensure their needs are met demonstrates a commitment to customer satisfaction ³⁴.
• Working in a spirit of partnership: Involving people in finding solutions to service disruptions fosters collaboration and empowers communities to participate in their recovery ³⁴.
• Tracking complaints and taking immediate action: Monitoring complaints helps identify systemic issues and areas for improvement in service delivery, while taking immediate action demonstrates a commitment to customer satisfaction and efficient problem resolution ³⁵.
• Getting leadership buy-in and establishing recovery criteria: Leadership buy-in ensures that service recovery is prioritized and supported within the organization, while establishing recovery criteria provides clear guidelines and expectations for addressing service failures ³⁶.
• Making the service fail-safe and forging a strong relationship with customers: Making the service fail-safe involves implementing measures to prevent future service disruptions, while forging a strong relationship with customers builds trust and loyalty ³⁵.

Vulnerable Populations:

• Addressing specific needs: Understanding the unique needs of vulnerable populations, such as those with disabilities, access and functional needs, or limited English proficiency, is crucial for providing effective assistance ³⁷.
• Partnering with community resources: Collaborating with community organizations, healthcare providers, and social service agencies ensures that vulnerable populations have access to necessary support and resources ³⁷.
• Providing accessible shelters and evacuation routes: Identifying and publicizing accessible shelters and evacuation routes ensures that vulnerable populations can safely evacuate and access temporary housing during emergencies ³⁸.
• Providing advanced education and communication training to support staff: Equipping support staff with the knowledge and skills to effectively communicate with and assist vulnerable populations enhances their ability to provide appropriate care and support ³⁸.
• Using information technology systems to identify and assist vulnerable populations: Utilizing information technology systems, such as geographic information systems (GIS) and databases, helps identify and locate vulnerable populations in need of assistance ³¹.
• Reducing health disparities and improving access to essential goods, services, and opportunities: Addressing underlying health disparities and ensuring access to essential goods and services for vulnerable populations promotes their overall well-being and resilience ³¹.
• Preserving and promoting social connectedness: Maintaining social connections and support networks for vulnerable populations helps mitigate the psychological and emotional impacts of disasters ³¹.
• Providing alternative payment options for essential services: Offering alternative payment options, such as sliding scale fees or accepting Medicaid, can help overcome financial barriers and ensure that vulnerable populations have access to necessary healthcare and other essential services ³⁹.
• Encouraging primary care physicians to screen for mental health issues: Screening for mental health issues among vulnerable populations can help identify individuals who may require additional support and resources during and after a disaster ³⁹.
• Providing ongoing support and follow-up care: Providing support and scheduling follow-up appointments for vulnerable populations ensures their continued well-being and addresses long-term needs ³⁹.

A holistic approach to disaster recovery that addresses the interconnectedness of social, economic, and environmental factors is essential for building resilient communities ³¹. This involves not only restoring physical infrastructure but also addressing the social and economic needs of affected communities and promoting environmental sustainability.

Conclusion

This sample disaster recovery plan provides a comprehensive framework for New York City to prepare for and recover from various disasters. By considering the city's unique risks and vulnerabilities, coordinating with relevant agencies and organizations, and implementing effective communication and recovery strategies, New York City can enhance its resilience and ensure the safety and well-being of its residents.

The research highlights the importance of pre-disaster recovery planning as a key takeaway from FEMA's guidelines ¹⁴. Proactive planning, including risk assessment, resource identification, and community engagement, is crucial for effective disaster recovery. Furthermore, the research emphasizes the need to address the specific challenges posed by New York City's unique vulnerabilities, such as its aging infrastructure, dense population, and coastal location.

The plan also underscores the importance of community engagement and partnerships in disaster recovery ²⁶. Collaboration between government agencies, non-profit organizations, and community members is essential for a coordinated and effective response. Clear and accessible communication is particularly crucial in reaching vulnerable populations during disasters ²⁷. By tailoring communication strategies to their specific needs, emergency management officials can ensure that these individuals receive critical information and support.

Finally, the plan advocates for a holistic approach to disaster recovery that addresses the interconnectedness of social, economic, and environmental factors ³¹. Disaster recovery should not only focus on restoring physical infrastructure but also on addressing the social and economic needs of affected communities and promoting environmental sustainability. By incorporating these key insights and recommendations, New York City can strengthen its disaster preparedness and response capabilities, ensuring a more resilient and sustainable future for all its residents.

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