Initial Damage Assessment (IDA)
Guidelines
Immediately following, and even while a disaster or major emergency is occurring, it will be
necessary to quickly and as accurately as possible assess the damages and impacts. The initial
damage assessment (IDA) focuses on damages to residences, businesses and public infrastructure.
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A timely damage assessment will give important information to emergency managers to
enable them to support emergency response personnel and provide resources to the areas
most in need, effectively assisting the population with critical emergency needs.
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A timely and accurate IDA process that is mutually agreed upon by local jurisdictions and
the state will give state emergency managers the data necessary to determine if the disaster
event and resultant damage exceeds the capacity of available local and state resources. The
state can then decide if the event is of sufficient severity to warrant a request by the
Governor for federal disaster assistance.
Situation Reports
Immediately following a disaster (within 24 hours), it will be the responsibility of county and
municipal emergency managers to develop local situation reports.
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Situation reports provide an overview of areas within the local jurisdiction that have
sustained damage and will need to be surveyed to determine the extent of damage.
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Situation reports can be compiled using information from a variety of sources and may not
necessitate an on-site visit by local emergency managers. Information sources used to
compile the reports include first responder reports and dispatch logs. Additional sources are
the American Red Cross, utility service providers, CDOT advisories, the National Weather
Service, media reports and citizen calls.
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Situation reports should at a minimum include: name of reporting jurisdiction, casualty
estimates, areas of reported damage, probable extent of damage, nature of damages
(residential, business, infrastructure), impacts to critical facilities/services, local/mutual aid
resources deployed, and outside assistance needed or anticipated.
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Critical facilities (e.g., hospitals, airports) and special needs populations (e.g., nursing
homes, day care facilities) may be contacted directly to determine the degree of damages.
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Emergency Managers may decide to do a windshield survey or spot checks of the affected
areas to verify/clarify damage reports and to assess the broad scope of impacts.
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Situation reports provide a “footprint” of locally damaged areas that will need to be
prioritized and assessed in more detail through a house-by-house, street-by-street damage
assessment.
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Situation reports should be forwarded to the State Emergency Operations Center (SEOC) in
Centennial where staff can use the information to commit resources or place resources on
standby. Sources of possible assistance that can be accessed through the SEOC include state,
federal and military resources, Civil Air Patrol, COEM Field Managers, International Code
Council (building inspectors), and the Colorado Volunteer Organizations Active in Disasters
(COVOAD).
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The larger and more severe a disaster, less information will be required to support a
declaration request by the Governor. Smaller and more marginal events will require a
greater amount of data to substantiate requests for state and federal assistance.
Damage Assessment Team Deployment
Damage assessment teams will deploy to assigned sites/areas to perform damage assessment as
prescribed in the operations briefing and in accordance with the teams’ prioritized list of sites.
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Teams will maintain communications with the local EOC and keep the Damage Assessment
Coordinator apprised of progress.
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Assessments will be conducted street-by-street, property-by-property unless otherwise
instructed by the Damage Assessment Coordinator.
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If teams encounter conditions that will make it unsafe to perform their assigned damage
assessments, the team leader will report these conditions to the local EOC and await
instructions on how to proceed.
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If areas of severe damage are encountered and public safety personnel are not on the scene,
report the information to the local EOC immediately, so that emergency response personnel
can be dispatched to protect life and property.
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Teams that encounter members of the public or media should not discuss potential or
anticipated damage assessment outcomes. Teams should not volunteer commitments to the
public concerning disaster response or disaster assistance, but informational brochures
concerning safety, recovery assistance and hazard mitigation may be distributed.
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Upon completing assigned inspections, teams will report to the local EOC and provide all
data collected to the Damage Assessment Coordinator.
Estimating Damage
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With different individuals assessing damage and different agencies applying the information
to their own programs, it is important to establish consistent standards in estimating damage.
Estimating damage costs, as described in these guidelines, will generally relate to residential
dwellings, small business facilities and other small structures. These procedures will usually
not be appropriate for estimating damage costs to public facilities.
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A ten level damage scale will be used to estimate the level of damage to a particular
property.
1
2
least
severe
3
4
5
6
7
8
9
10
most
severe
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Level 10 is the most severe damage, and level 1 is the least severe. This chart gives specific
guidance in determining damage levels and was compiled using resources from federal, state
and private agencies. It is designed to help make a somewhat subjective process more
objective and consistent across different assessors.
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The ten level scale can be used to provide:
 a damage description
 guidance concerning the structure’s habitability
 things for damage assessors to look for in evaluating a structure
 water level assessments when flooding is involved. (Note: water levels are
general guides. Flooding damage intensifies with the force of the water, duration
of the flood and the degree of contaminants and sediments in the water.)
 an indication of how FEMA and the ARC would categorize the damage to a
structure in each damage level (i.e. Destroyed, Major, Minor, Affected
Habitable) and gives definitions for these four damage categories.
In general, do not enter a dwelling. It should not be necessary to enter a dwelling in order to assess
the damage level.
Assessors must consider all areas of damage to a structure in deciding an overall damage level for
the entire property.
Generally, if a damaged area appears to border between two levels, choose the higher or more
severe level.
Much of the damage classification to a dwelling is based on its habitability. Ask yourself:
 Is the dwelling SAFE, SANITARY, SECURE?
 Could I live in this dwelling as it is?…or as repairs are being made?
 How much repair would it take to make it habitable?
 Consider the essential living areas: kitchen, bathroom, occupied bedrooms, living
room.
For a structure with damage at several levels (5,6,7), rate the structure at the higher level, 7.
In a case where four areas are assessed at damage levels 2,6,6,7, the assessor must make a
judgment on overall damage level. Since two areas are level 6 and one area is only a level 2
(well below the 6 and 7), the overall level might be rated at 6.
Assessors should:
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Refer to damage level guidelines
Be consistent in assessments
Choose the more severe level if damage appears to border between two levels
Supplement assessments with damage descriptions
Trust their judgment
Estimating Water Depths
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Brick – 2.5 inches per course
Concrete or cinder block – 8 inches per course
Lap or aluminum siding – 4 inches or 8 inches per course
Door knobs – 36 inches above floor
Stair risers – 7 inches
Standard doors – 6 2/3 feet
Estimating Dollar Amount of Damage
Estimated Dollar Damage = [Damage Level x .1] x [Pre-disaster market value x 1.1]
1. Convert damage level to a percent of damage. i.e. damage level 3 is 30%
damage, damage level 7 is 70% damage, etc.
2. Multiply the pre-disaster market value of structure by 1.1 or 110% of predisaster value.
3. Multiply the percent of damage by 110% of pre-disaster market value.
Example
damage level 7 x .1 = .7
pre-disaster market value in $100,000.
$100,000. x 1.1 = $110,000.
Estimated Dollar Damage is .7 x $110,000. = $77,000.
Estimating Damage to Contents
Estimating damage to contents will assist the family services caseworkers as well as
increase total damage cost estimates. Contents will include food, clothing, furniture
& major appliances. An estimation of probable damage to contents is obtained from
asking the occupants of the property, if at all possible.
Residential-Business Teams
Two forms can be used to document damages and ownership information:
1. Initial Damage Assessment – Housing Losses
 Occupant information
 Primary versus secondary home
 Home type (single-family, multi-family, mobile home)
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Ownership versus rental unit
Damage level (minor—major—destroyed)
Accessible
Water level (if applicable)
Replacement cost (optional)
Estimated dollar loss (optional)
Insurance coverage (homeowners, NFIP)
Estimated income (optional)
2. Individual Damage Assessment – Business Losses
 Ownership/tenant information
 Estimated days out of operation
 Number of employees
 Replacement cost or fair market value
 Estimated dollar loss
 Amount of insurance coverage
 Percent uninsured loss
 Damage level (minor—major—destroyed)
Public Infrastructure Teams
The Site Summary Sheet (FEMA 90-81) is the principal form for documenting
infrastructure damages at each damage site. The form describes the damages or the scope of
work to be performed, including an estimated cost for repairs (quantities and unit prices can
be identified, where possible, but an informed estimate may be sufficient). The form also
can be used to identify name and location of damaged facilities, damage category (i.e., roads
and bridges, water control facilities, etc.), percent of work completed, and (where
applicable) special considerations such as insurance coverage and hazard mitigation
potential.
Damage Assessment Summary
The data collected by the teams can be summarized on the Damage Assessment Summary Form,
which can then be used to inform elected and other local officials, the general public, the State
EOC, congressional offices, and the news media.
Briefing Checklist
General
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Provide current update concerning the disaster event
Review purpose and importance of damage assessment mission
Designate team members and assign designated team leader
Outline geographic areas affected by the event and designated for IDA
Distribute prioritized list of sites/areas to be assessed
Assign sites to specific teams
Anticipate degree of damage and destruction that should be encountered
Designate level of detail needed for the damage assessment
 Windshield Survey
 More detailed house-by-house
 Stress importance of expediting the process (objective is to obtain information as accurately as
possible with as little delay as possible)
 Refer to IDA Guidelines
Safety and Maneuvering
 Unstable/unsafe buildings, structures (identify any known areas)
 Flash flood potential, rapidly changing weather conditions
 Potential hazards that might be encountered and how to handle (downed wires etc.)
Equipment
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Assign vehicles, if appropriate
Assign Team Equipment Kits
Review damage assessment forms and guidelines
Procedures for obtaining & being reimbursed, should additional supplies be needed
Communications
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Radios, cellphones (operations check and establish check-in time frames)
Guidelines for interacting with the public and media
Pamphlets explaining types of assistance, if available
List of emergency shelters, recovery centers, mobile feeding sites
Contact local EOC to clarify questions, instructions
Equipment Checklist
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Photo identification badges
Hard hats
Rubber pull-over boots (waterproof)
Protective gloves
Reflective traffic vests
Insect repellent
Eye protective glasses
Hearing protection
Rain gear
First aid kit
Nylon bag (to store personal equipment)
Vehicle, 4WD (recommended)
 full gasoline tank
Shovel, folding spade type
Sand (recommended for vehicle)
Rock salt (recommended for vehicle)
Road flares
“CAUTION” tape
“DO NOT ENTER” tape
Binoculars
Hand held radio (county/city supplied)
 back-up battery
 perform operational check
Cellular telephone (county/city supplied)
 back-up battery/car adapter
 perform operational check
Duct tape
ADC Maps, NCC & KC (book), SC (folding)
Note pads
Pens
Clip boards
Whistle for signaling
Flashlights (w/extra D-cell batteries)
Tape measure, 25 feet
Guidance, contact with media/public
English/Spanish language communication chart
Recovery flyers to distribute to residents/businesses
Safety pamphlets
Damage Assessment Level Guide
for each team member
for each team member
for each team member
for each team member
for each team member
1
for each team member
for each team member
for each team member
1
1
1
1
50 lb. bag
50 lb. bag
12
1 roll (1000 ft.)
1 roll (1000 ft.)
1
1
1
1
1 roll
1 each
3
6
1
1
2
1
1
1
1 each
Safety Checklist
Electricity
24 Hour Emergency Numbers: __________________

Downed Electric Power Lines:
o Notify EOC.
o Don’t attempt to remove a tree limb or other object from power lines. Don’t attempt
to use a branch, board, fiberglass etc. All these can conduct electricity.
o If you are in a vehicle and a power line falls on it, STAY IN THE VEHICLE. If for
some life-threatening reason, you must exit the vehicle, jump. Do not touch both the
vehicle and the ground at the same time.
Natural Gas
24 Hour Emergency Number: ___________________
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If You Smell Gas:
o Immediately extinguish all open flames.
o Prohibit smoking.
o DO NOT – operate electrical switches or machinery, use telephones, ring doorbells,
use flashlights, or use two-way radios.
o Avoid any actions that could cause a spark.
o Notify EOC.
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If You Discover a Broken Natural Gas Line:
o
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o
o
Immediately extinguish all open flames and turn off all machinery.
Avoid any actions that could cause a spark.
Alert everyone in the area of the potential danger and evacuate the site.
Rope off the area with “CAUTION – DO NOT ENTER” tape.
Notify EOC.
Wait for professionals. Never attempt to fix a gas pipeline.
Animals – Avoiding Dog Bites
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When Dogs Might Bite:
o
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They feel threatened, are afraid, are protecting their territory/food/family/pups.
They don’t know you.
Their chase response is triggered.
They are in pain or irritated.
Warning Signs a Dog Might Bite:
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Dog stands stiff and still, hair may be up.
Dog stares at you.
Dog’s tail is stiff and wagging very fast, ears erect.
Dog growls, snarls, shows teeth.
What to do if Threatened by a Dog:
o Do not trigger the natural instinct to chase.
o Stand still, remain calm, don’t run or turn your back to the dog. Wait until dog
leaves, then back away slowly.
o If dog comes to sniff you, let it. Don’t try to pet.
o Don’t make any fast or jerky movements.
o Don’t stare into the dog’s eyes. This is a challenge to fight.
o Speak in a loud, calm, low voice, “GO HOME”, “NO”, or “STAY”.
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If the Dog Attacks:
o Shield yourself by keeping something between yourself and the dog.
o Feed the dog your jacket, anything that will give it something else to bite.
o If you get knocked down, curl into a ball with hands over your head and neck. Don’t
scream or roll. “Play Dead”.
o Report incident and get medical attention.
Dealing with the News Media and General Public
Dealing with the Media
The FEMA “Community Relations Team Field Operations Guide”, FEMA document
9368.1-FG, provides some excellent guidance for damage assessment teams. Chapter 6
describes how to handle a media interview. Although teams are not expected to give, and
SHOULD NOT be giving media interviews, this guidance illustrates many of the types of
questions the media might ask and sample responses.
o The media should be referred to the designated Public Information Officer (PIO) or
Media Liaison that has been established. This information should be given to teams
during the mission briefing.
o Give a concise description of your job as a team member and explain that you will
refer them to someone who can answer their questions.
Dealing with the Public
Remember, victims of a disaster have just had their lives “turned upside down.” They are
often emotional, sad, distressed, frightened, and feeling out of control. Often, their
questions may sound demanding, belligerent or hopeless. Be compassionate and
understanding. Your mission briefing should include a list of services available for the
affected public (shelters, medical aid stations, feeding locations, counseling, etc.). There
may also be FEMA hot-line numbers to contact.
Dos and Don’ts When Dealing with the Media and Public
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Dos
o Do tell the truth. If you have an answer to their question, be honest.
o If you don’t have an answer, say “I don’t know.” Offer to get an answer or refer
them to the PIO.
o Be sensitive, serious, pleasant and polite.
o Assume microphones and cameras are on.
o Treat the media as a partner in getting out important information.
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Don’ts
o
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Don’t panic. Nobody expects you to have all the answers.
Don’t say “No Comment”.
Don’t volunteer information that might be confusing or misunderstood.
Don’t get defensive or hostile. Don’t argue with media or public.
Don’t say anything you are not willing to see in print, on TV or hear on the radio.
Some questions you might expect from the media or public. (The FEMA “Community Relations
Team Field Operations Guide”, Chapter 6 should give guidance on appropriate answers.)
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What kind of help is available for residents who have damaged or destroyed homes?
Who is eligible for assistance?
How does someone apply for loans or housing assistance?
Are renters eligible for assistance?
How much assistance can individuals get from the grant programs?
What can I do about my unresponsive insurance company?
Flood insurance - Can I get this and how expensive?
Is there financial assistance to help business owners?
How long do property owners wait to get money?
Can property owners rebuild in a flood plain/coastal zones?
Are people who have flood insurance eligible for help from FEMA?
I’ve heard the Small Business Administration will give loans to homeowners. Who can get
them?
Preliminary Damage Assessment (PDA)
Declaration Process and Federal Disaster Assistance
The analysis of IDA data will become the basis from which a recommendation is made to
the Governor on seeking federal disaster assistance. If the analysis indicates there has been
significant damage and/or the need for additional assistance exists after available state and
local resources have been or will be exhausted in responding to the disaster, federal
assistance may be sought. Catastrophic disasters frequently qualify for an expedited
Presidential Declaration, allowing assistance and resources to quickly move into areas of
need. The PDA is completed later to document the disaster.
PDA
The Governor, through Colorado OEM (COEM), will forward a request to FEMA Region
III that a PDA be conducted. The PDA is directed by FEMA and is a joint federal/state
damage assessment to reevaluate and more accurately estimate the damage identified during
the IDA. Normally, a PDA is completed prior to a submission of a Governor’s request for
federal assistance. PDA teams will consist of federal, state, and local representatives.
Teams may also include representatives from other agencies (Army Corp of Engineers,
Federal Highway Administration, Small Business Administration, Department of
Agriculture, etc.). FEMA will usually complete the PDA within 48 hours of the request.
FEMA and state personnel will review the information from the PDA and determine if a
major disaster declaration is warranted. PDA data will be used to substantiate and support a
Governor request for federal assistance. FEMA also uses PDA data to determine staffing
requirements should a disaster be declared.
Governor’s Request and Presidential Disaster Declaration
The Governor’s request must indicate that the disaster is of a magnitude greater than the
state and local capabilities to respond. Based on PDA data, the Governor may request a
Major Disaster Declaration. If declared by the President, this could authorize, depending on
PDA data, major disaster assistance programs including Public Assistance, Individual
Assistance and Hazard Mitigation. The Governor may opt to request an Emergency
Declaration. This declaration could authorize limited short-term assistance essential to save
lives, protect property, provide for public health and safety, or to lessen the threat of a
catastrophe. Either request by the Governor will provide information on state/local
resources committed, estimate amount and severity of damage, and estimate the type and
amount of federal assistance needed. Based on the Governor’s request, the President may
declare either a Major Disaster or an Emergency, thereby authorizing Federal Disaster
Assistance under the Stafford Disaster Relief and Emergency Assistance Act, Public Law
93-288.
Major Disaster Declaration Assistance
Disaster Recovery Centers (DRC) will be established where affected citizens can
meet face-to-face with representatives from federal, state, local and volunteer
agencies to obtain information and apply for the disaster assistance that has been
made available.
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Individual Assistance is aid for individuals, farmers and business owners that ranges
from cash grants, low interest loans, housing assistance, and crisis counseling
services. Low interest loans from the Small Business Administration (SBA) and
Farm Service Agency (FSA) and cash grants from the Other Needs Assistance
(ONA) program provide assistance to individuals, farmers and businesses for:
 Home repairs
 Housing rental expenses
 Mortgage payments to prevent foreclosure
 Personal property
 Medical, dental, funeral expenses
 Transportation expenses
 Flood insurance premiums
SBA disaster loans to businesses can also cover damages to inventory and
supplies and may provide business capital.
Crisis counseling services may be offered to assist with grieving stress or
mental health problems resulting from the disaster. Crisis counselors are
often at the DRCs. Other forms of counseling may include:
 Legal services to assist with insurance claims, landlord problems,
replacement of wills and other legal documents.
 Tax considerations in determining casualty losses from the disaster.
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Public Assistance is aid for public entities to be used for repair or replacement of
public facilities. These projects can include:
 Road systems and bridges
 Public buildings and contents
 Water control facilities (dams, levees, bulk heads, sea walls etc.)
 Debris removal
 Public utilities (water, sewer, power)
 Parks and recreational areas
 Emergency Protective Measures to protect life and property
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Hazard Mitigation Assistance can provide funding to identify and help
implement those actions the state and community can take to reduce damage and
losses from future similar disaster events. The assistance can be provided under
two FEMA programs that can contribute 75% of the costs.
Emergency Declaration Assistance
Assistance authorized under an emergency declaration is limited short-term assistance
essential to save lives, protect property, provide for public health and safety, or to lessen the
threat of a catastrophe. This may include:
 Food
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Water
Medicine
Shelters
Temporary housing assistance
Debris removal
Emergency repairs
Search & rescue
Security forces
Removal of health & safety hazards
Emergency communications
Public transportation
Technical assistance to state & local governments