California Emergency Management Agency (Cal EMA)
Office of Access and Functional Needs
Disaster Response Interpreter Training Course
BLOCK - D
Shelter Operations
&
Recovery Services
© 2009 California Emergency Management Agency
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Lesson Admin Page
Shelter Operations & Recovery Services
BLOCK OVERALL KEY POINT & TIP SHEET
Key Point
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Exercise Tip
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Shelter Operations & Recovery Services
Block D: Shelter Operations & Recovery
Services
Duration:
2 Hours
SCOPE:
Provide participants with an overview of emergency shelter setup, management, and recovery services. Review the role of the DRI in a shelter
setting.
Terminal Learning Objectives:
D1
The participant will understand the shelter set-up and services during an
emergency and the recovery phase.
D2
The participant will understand the role of the DRI in a shelter setting.
Enabling Learning Objectives:
D1.1
Describe the set-up of shelters.
D1.2
Describe how the shelter functions.
D1.3
Explain the services involved in the recovery phase.
D2.1
Describe the role of the DRI.
Resources:
Instructor Guide; Participant Manual & Appendices; Power
Point; Projector; Screen; Laptop
Instructor to Participant Ratio:
2:30
References:
American Red Cross Disaster Services Program ARC
3068-12 Series - Shelter Simulation Instructor’s Manual and the Shelter
Operations – Participant’s Workbook
Practical Exercise:
Participatory Dialogue; Situational Q&A; Mock
Shelter assessment interview exercise.
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Assessment Strategy:
Shelter Operations & Recovery Services
Verbal Feedback
Instructor Notes:
Top level certified sign language Interpreter and
deaf professional, both with extensive backgrounds in training and presentations.
Adjunct instructors: CalEMA OAFN staff and Red Cross staff.
MAIN POINTS:
1. Block Introduction & Focus
2. History, Mission and Philosophy of Shelters
3. Shelter Set-up and Services
4. Role of DRI
5. Recovery Phase
6. Mock Shelter Exercise
7. Wrap-up, Tips, Considerations & Summary
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Block D – OUTLINE/OVERVIEW:
1. Block Introduction & Focus

This Block provides an overview of shelters and recovery services.
2. History, Mission and Philosophy of Shelters

Shelters may be opened by many agencies during disasters. City and county
governments, private non-profits, faith based groups as well as the American
Red Cross may assist those who cannot safely remain in their homes due to
a disaster or emergency.

Disaster Services Section of the California Department of Social
Services
In larger disasters, the coordination of the Mass Care and Shelter function
occurs on several levels. The operational area - in California, the affected
county - will provide resources and coordination for Mass Care and
sheltering in its jurisdiction. The Red Cross will coordinate its Mass Care
operations through either the local chapter or the headquarters of a standalone Disaster Relief Operation (DRO). The authority for the overall
coordination of the Mass Care and Sheltering operations in the state is
delegated by the Administrative Order of CalEMA to the Disaster Services
Section of the California Department of Social Services (CDSS). CDSS
works with the Red Cross and other agencies and departments to provide
training, planning and other preparedness coordination activities predisaster.
During disasters, the CDSS Section tracks resources needed for care and
sheltering with other State agencies. Section staff may deploy to one or all
of the three Regional Emergency Operations Centers throughout the state
at the request of CalEMA. Once activated by CalEMA, the CDSS Section:
1) tracks shelter status and residents; 2) tracks feeding services; 3)
responds to requests for state resources; and 4) ensures that the needs
of the disaster victims and emergency responders are being handled by
the appropriate state agency.
Volunteer Emergency Services Team (VEST)
The Volunteer Emergency Services Team (VEST) is comprised of
approximately 145 employees from State departments who have volunteered
for membership. Recruited, trained and deployed by the California
Department of Social Services, VEST members may be used to assist at one
of the CalEMA Operations Centers to help coordinate mass care and shelter
functions.
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
Shelter Operations & Recovery Services
Red Cross: In 1905, the United States Congress gave the Red Cross a
Charter, which mandates that it provide relief to disaster victims and services
to the military. The American Red Cross is a non-governmental, non-profit,
humanitarian organization led by volunteers and funded by public donations.
o Purpose: Red Cross disaster relief focuses on meeting
people’s immediate emergency disaster-caused needs. When
a disaster threatens or strikes, the Red Cross provides shelter,
food and health and mental health services to address basic
human need. Red Cross disaster relief focuses on assistance
given to individuals and families affected by disaster to enable
them to resume their normal daily activities independently.
o When a disaster occurs: When notified by local emergency
management officials such as the fire or police departments,
the local Red Cross Chapter(s) go into action by dispatching a
Disaster Action Team which will respond first and assess the
situation.

Disaster Action Team (DAT): DATs are composed of volunteers
who are trained to provide specific immediate disaster services.
The DATs are prepared to respond to any disaster, 24 hours a day,
seven days a week, 365 days of the year.
The purpose of the team is to meet the immediate, disaster-caused
needs of individuals and families for such things as shelter, food,
clothing and other necessary items. DAT members also inform
clients how to access further Red Cross assistance if necessary.
DATs respond to residential fires as well as large-scale disasters
such as floods, and earthquakes, etc.
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
Staffing a Shelter: A shelter must be staffed 24 hours a day.
For each shelter, there is usually one shelter manager who is
responsible for the overall running of the shelter. During a 24-hour
period, there is always one shift supervisor on duty. Other workers
are scheduled as required. Initially there is a flurry of activity as the
shelter opens, but this quickly levels out as the shelter establishes
a routine and residents begin returning to their homes. The peak
activity often occurs around meal times and in the evenings as
people return to the shelter after clearing their homes or going to
work.

Values for shelter workers:
o Ensure that the shelter is a safe place.
o Respect people using shelter services (referred to as clients by
Red Cross).
o Provide services equally to all clients.
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o Enable the clients to make other arrangements.
o Use resources wisely.

3 Rs of Red Cross Philosophy:
o Respect – dealing with clients with cultural respect
 Serving appropriate food
 Workers with appropriate language skills
 Maintaining a positive customer service attitude
o Rules – ground rules to ensure a safe and pleasant shelter
environment:
 Smoking areas
 No food or beverages (except water) in the sleeping areas
 Noise levels
 Restricted areas
 Phone use
 Checking in and out
 Drug and alcohol use
 Weapon possession
 Pets
 Valuable possessions
o Routines – During the first 24-hours that the shelter is open,
routine is established to help structure the daily life of both staff
and residents including:
 Meal times
 Lights out
 TV time
 Shower schedule
 Children’s activities
 Information updates
 Shelter staff meetings
 Shelter advisory committee meetings

The Importance of Communication: Communication both within
The shelter and with the outside world affects the welfare of the
shelter residents. Shelter residents must be informed of the
schedule, the rules, and other “in-shelter” information. They must
also have current information about what is happening outside the
shelter. People affected by a disaster have a very high need for
information. In the absence of factual information, rumors can run
rampant. The following are examples of some Shelter
communication methods:
o Shelter Resident Meetings
o Resident briefings
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o
o
o
o
o
Shelter Operations & Recovery Services
Bulletin Boards
Telephones
Process for taking and passing on messages
Internet (when available)
Assistive devices
Another element of communication is information sharing among
members of the shelter management team. Staff meetings provide
an opportunity to solve problems, strengthen team spirit, and
ensure that all members of the team understand their interrelated
roles. Individual conferences are appropriate when privacy is
required to coach a team member on his or her work, to assist a
staff member with a personal problem or to discuss the confidential
problems of a client. The following are examples of some Shelter
communication methods between staff:
o
o
o
o
o
Staff Meetings
Shift Change Briefings
Log Sheets
Job Induction
Operational Memos
The responsibilities for good communication in the shelter rests
with the Shelter Manager, but all the staff play a part.
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3. Shelter Set-up and Services

Registration:
o Clients are greeted at the shelter entrance where tables are set
up for intake.
o Intake process follows the Intake Form:

Helps workers know how many people are staying in the
shelter.
 Tells workers who is staying in the shelter.
 Helps workers determine whether a client may need
additional services.
o Peak populations at shelters often happens on the 3rd or 4th day as it
takes time to get the word out.

Dormitory:
o At the time of set-up may ask clients to help set up cots, etc.
o Separate sleeping areas for those needing to get up to go to
work
o Separate sleeping areas for families, seniors, men and women

Feeding:
o Regular meals served at scheduled times
o Snacks – available all day
o Cold drinks, coffee and hot water, instant drink mixes – available all
day
o First few meals may be fast foods until cooking facilities are set up

Health and Mental Health Services:
o Mental Health support for clients and workers to defuse situations
o Parent coaching to help parents look for signs of distress and help
their children deal with any issues that may arise
 Make sure their children are eating well

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Coach parents regarding problems that they might see in their
children.
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
Shelter Operations & Recovery Services
For medical related issues:

Provide First Aid and over the counter medicines as needed

Make assessments and refer out to higher levels of care
o Health Privacy Issues – limit clients’ communication about medical
issues to nurses only

Public Affairs:
o A Shelter staff is designated responsibility for communications within
the shelter.

Safe & Well website:
o When available, an internet link is set up within the shelters for clients
to register themselves and look for family members.

Shifts and Staffing of Shelters:
o One Shelter Manager at each shelter is supported by Shift Supervisors
and staff
o Shifts tend to be 8 ½ hours with ½ hour overlaps for briefings with
relief staff
o In the beginning, there might be 2 shifts of 12 hours each which
reduce as the shelter gets going.
o Later, shifts might go to three 8 hour shifts - 8am to 4pm; 4pm to 12
midnight; 12 midnight to 8am.
o Team meetings are held at “overlap” time - the last half-hour of one
shift and the first half-hour of the new shift coming on

Shelter Check-in and Check-out:
o Clients need to check out when they leave the shelter
o Some clients will check in and out to go to work or check on their
homes
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Shelter Operations & Recovery Services
4. Role of DRI

The role of the DRI in the shelter setting is to facilitate communication
between the deaf or hard of hearing (D/HH) client and shelter staff for all
shelter-related communications. The shelter setting, especially during the
first few days, may be hectic, requiring the DRI to remain flexible and
ready to adapt to the given situation.

Overview of DRI Role in Shelter Stations:
o Registration/Intake Station: Assessment is done at the time of
registration when a client first comes into the shelter. DRIs should
position themselves at Registration to interpret for deaf or hard of
hearing clients as they enter. The DRI may be asked to follow the
D/HH client to the next “station”.
o Health Services: If clients are identified as needing medical services,
the interpreter should accompany them to the health services station.
o Dorm Stations: DRIs should be available, as needed, to accompany
clients to the dorm area.
o Meal Stations: The presence of DRIs in the eating areas during meal
times may be beneficial to interpret any announcements or
communication as needed.

Initial on-site actions:
o Identify self as the DRI and ask for the Shelter Manager or Shift
Supervisor
o Establish and maintain contact with Shelter Manager or Shift
Supervisor to notify of availability and identify any immediate needs.
o Locate team interpreter, if available
o Work with shelter staff to locate the deaf clients:

June 2009
Ask if there are any deaf or hard of hearing clients currently in the
shelter, where they are located, and what their situation is

If not known, walk around the shelter signing

Set up a place for the interpreter to be found for D/HH clients.
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
Shelter Operations & Recovery Services
Shelter Orientation: If the situation permits (i.e., there are no immediate
needs) and Shelter Manager/Shift Supervisor or their designated staff
person is available, inquire about the following:
o Location of vehicle parking area
o Tour of the facilities
o If extended assignment, location of overnight facilities
o Time/place to get meals, snacks, drinks
o Place to store belongings
o Schedule of shelter staff meetings that DRI can participate in
o Location of shelter Technology set-up - ask is there’s a VP station
o Any special situation for this shelter – medical shelter, etc.
o Security and safety set up and rules
o Designated smoking area, if any
o Shelter rules
 Phone use
 Sign in and out
 Break schedule
 Restricted areas
 Filing complaints
 Injury reports
 Media

Ongoing Actions:
o Maintain regular communications with the Shelter Manager and/or
Shift Supervisors
o Participate in Shelter meetings to notify of availability
o Routinely walk through shelter to notify of interpreter availability
o Meet with relief interpreter for the next shift to brief them
o Expect 8 to 12 hour shifts
o Maintain flexibility with respect to schedule, duties and set-up

June 2009
Self-assessment
o Compassionate Fatigue/Vicarious Trauma – Interpreting in
emotionally charged settings including crises of various kinds can have
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serious psychological consequences. Interpreting information that is
sensitive and linguistically challenging, the interpreter needs to deal
with their own emotions and prepare how they may react to the
situation at hand.
o Hardship Codes – See page D – 19.
5. Recovery Phase

Shortly after a disaster occurs, plans for recovery are initiated. A
variety of disaster relief agencies, depending on the type of
disaster and extent of damage, are involved. During this phase,
recovery centers are set up to address a variety of concerns and
needs that survivors might have ranging from housing, food, and
medical services to assistance with insurance. The centers will
house an array of local, state, federal and private nonprofits that
provide assistance and access to resources for survivors. These
recovery centers may be part of a shelter, adjacent to the shelter,
or in another location.

Local Assistance Centers (LAC): LACS are opened by local
governments to assist communities by providing a centralized
location for services and resource referrals for unmet needs
following a disaster or significant emergency. The LAC is normally
staffed and supported by local, state and federal agencies, as well
as non-profit and voluntary organizations. The LAC provides a
central facility where individuals, families and businesses can
access available disaster assistance programs and services.

Disaster Recovery Center (DRC): As more federal resources
arrive, a state-federal Disaster Recovery Center (DRC) may be colocated with the LACs. DRC is a readily accessible facility or
mobile office where survivors may go for information about FEMA
or other disaster assistance programs, or for questions related to
getting back into homes, seeking financial assistance or other
resources. Some of the services that a DRC may provide:
o Guidance regarding disaster recovery
o Clarification of any written correspondence received
o Housing Assistance and Rental Resource information
o Answers to questions, resolution to problems and referrals to
agencies that may provide further assistance
o Status of applications being processed by FEMA.
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Shelter Operations & Recovery Services
o Small Business Administration (SBA) program information if
there is a SBA Representative at the Disaster Recovery Center
site.

Role of interpreter during recovery phase:
o Interpret for FEMA and other agencies providing information and services
to individuals.
o Educate agencies on the role of the interpreter if necessary.
6. Mock Shelter Exercise
7. Wrap-up, Tips, Considerations & Summary
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
Block Practical Tips/Suggestions

Block Practical Considerations

Block Key Point Summary
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BLOCK OUTLINE PERSONAL NOTE SHEET
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Block Reference
Shelter Operations & Recovery Services
BLOCK D
 VOCABULARY SHEET
 HARDSHIP CODES SHEET
 TIPS/SUGGESTIONS SHEET
 CONSIDERATIONS SHEET
 SUMMARY SHEET
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VOCABULARY, ACRONYMS
DAT: Disaster Action Teams are trained volunteers who work with the
American Red Cross to provide immediate disaster service to those
affected.
LAC: Local Assistance Centers are opened by local governments to assist
communities by providing a centralized location for services and
resource referrals for unmet needs following a disaster or emergency.
DRC: Disaster Recovery Center is a facility or mobile office where survivor
may go for information about FEMA or other disaster assistance
programs.
FEMA: Federal Emergency Management Agency
SBA: Small Business Administration
VEST: Voluntary Emergency Services Team
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Hardship Code Definitions
C1. Water Disruption. The regular water system of the area may be affected by the
disaster. This may result in the lack of public water service in shelters, hotels and work
sites. The water may be unsafe to drink, requiring special precautions or use of bottled
water. Other inconveniences could include inoperable restroom facilities, limited
shower/bathing facilities and the need to carry water supplies for personal use.
C2. Power Outage. Power outages may be widespread, sporadic and of an
undetermined duration during a disaster. This may affect electric and/or gas utilities.
The result may be no lights and no use of electrical appliances, including office
machines, computers and cooking facilities. The power outage could also affect the
use of elevators, heating, air conditioning, water pumps, traffic signals, communication
sources and equipment with rechargeable batteries, as well as required health care
equipment (e.g., CPAP machine — assists with sleep apnea).
C3. Limited Food Availability. The relief operation may not be able to accommodate
special dietary needs, and the food choices may be limited. Military rations may be the
only source of food. Working and living locations may be isolated from nearby food
sources. The demanding work schedules may not allow for regularly scheduled meals.
C4. Extreme Heat and/or Humidity. Temperatures may average over 90 degrees
Fahrenheit, and/or high humidity may be present. Air conditioning may not be available
in housing or at work sites. Heat and humidity could affect those with a variety of
conditions including asthma, chronic obstructive pulmonary disease (COPD), skin
disorders and photosensitivity reactions from certain medications. Humid climates can
increase bacterial or fungal growth, making a healthy immune system essential.
C5. Extreme Cold. Disasters in a cold climate could include average temperatures
below freezing and adverse conditions such as snow, sleet, ice, and so on. This could
cause various health issues and may make some medical conditions worse. Adequate
heating may not be available in housing or at work sites. Travel and driving will be
affected.
C6. Housing Shortages. Staff may have to share rooms with other workers, which
may provide little or no privacy. The housing may be dormitory style with shared
bathroom and shower facilities. There may be occasions when staff will be housed in a
shelter for relief workers or, depending on the damage to the infrastructure; workers
may be placed in shelters housing disaster clients.
C7. Working Conditions. In some situations, the working environment can cause
hardships. Work areas that are tight, noisy and/or perceived to be unsafe can be
stressful for members. Field assignments may include walking on uneven or slippery
terrain, walking long distances, getting in and out of vehicles multiple times, accessing
homes, using stairs without handrails and working in tents. The conditions may require
endurance and stamina, and the assignment may include long work hours.
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Data/Detail Info
Shelter Operations & Recovery Services
C8. Limited Health Care Access. Following a disaster, particularly in remote
locations, the community infrastructure can be affected so that normal health care
systems, including emergency medical services, are not in place or are difficult to
access. In some medically underserved areas advanced cardiac life support,
specialized procedures and medications are not available. This can cause a hardship
for people with chronic medical conditions who might need a hospital or a doctor’s
attention. In some rural or island locations there may already be a shortage of
specialized medical assistance that members may need on an ongoing basis due to
certain disease processes. This hardship code includes members who have medical
conditions that require frequent monitoring or have recurrent exacerbations.
C9. Extreme Emotional Stress. Many stressors can occur during a disaster.
Members may witness sickness, serious injury, distressed victims, death or mass
casualties and destruction. Members may also be exposed to victims expressing grief,
anger and frustration. There may be personal safety issues and possible recurrence of
the disaster. Absence from personal support systems may contribute to these
stressors.
C10. Travel Conditions. Travel on the relief operation may be difficult. Roads may
be congested, partially impassible or single lane. The relief operation covers a wide
area and staff may routinely spend hours in transit while on the relief operation and
then spend additional time commuting from their assigned work location to their
housing. Due to the disaster, street signs may be missing and locations may be difficult
to determine.
C11. Transportation Limitations. Transportation to the relief operation may be
complicated and difficult. The travel arrangements may require use of alternate routes,
unusual or multiple connections, noncommercial/military carriers or assignment through
a staging area. On the relief operation, transportation may be scarce, with options
limited to walking, mass transit, van pool or car pool with three or more people.
Transportation may also involve watercraft or small commuter planes that require
physical agility to board.
C12. Air Quality. Certain disasters may involve elements such as smoke, dust, ash
and poor air quality. These have the potential of aggravating respiratory conditions
such as COPD, emphysema and chronic asthma. Additionally, operations that include
flooding increase the potential for mold and mildew, which may trigger allergic
reactions, reactive airway disease (RAD) and asthma.
C13. Lifting Limitation. Various disaster work assignments require members to lift
and carry heavy items. If members attempt to lift and carry more than they are
physically able, they may injure themselves or worsen already existing conditions. This
code should be used when a member is not physically able to lift or carry the amount
required by a specific activity. Occasionally, a member may be asked to lift and carry
when it is not a normal part of his or her activity. In these cases, each member is
responsible for knowing his or her lifting limitations and avoiding harmful situations on
disasters, regardless of the work assignment.
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Tips/Suggestions
Shelter Operations & Recovery Services
Here are some tips/suggestions for while deployed to a shelter:
 Get all pertinent assignment information, including travel details.
 Maintain communication with shelter and Partner Agency.
 Self-care.
 Maintain Flexibility.
 Self-assess.
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Considerations
Shelter Operations & Recovery Services
 What if there are significant travel barriers in getting to the location?
 What if there are no deaf clients at the shelter?
 What if the team interpreter doesn’t show up?
 What if there is a recognized need for an advocate for the D/HH client, but none is
available?
 What if you can’t find the shelter location?
 How would you work with hard of hearing or late deafened adults?
 How would you work with families that use another sign language or have members
that use another spoken language?
 What if there are numerous deaf clients and families requiring assistance at
multiple stations?
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Summary
Shelter Operations & Recovery Services

Emergency Shelters: Shelters are generally open and operated by the American Red
Cross assisted by local or county employees. The California Department of Social
Services, Disaster Services Section staff and VEST assist in the coordination of mass
care and shelter function.

The Disaster Services Section of the California Department of Social Services:
The Disaster Services Section supports local emergency agencies in order to provide
temporary shelter for those who cannot safely remain in their homes due to a disaster
or emergency. The Section assists in the mass care and shelter function by: 1)
Tracking shelter status; 2) Tracking feeding services; 3) Responding to requests for
State resources; and 4) Ensuring that the needs of emergency responders are being
handled by the appropriate State agency.

The Volunteer Emergency Services Team (VEST): is comprised of approximately 145
employees from State departments who have volunteered for membership.
Recruited, trained and deployed by the California Department of Social Services,
VEST members may be used to assist at one of the CalEMA Operations Centers to
help coordinate mass care and shelter functions.

Red Cross: In 1905, the United States Congress gave the Red Cross a Charter, which
mandates that it provide relief to disaster victims and services to the military. When a
disaster threatens or strikes, the Red Cross provides shelter, food and health and
mental health services to address basic human need.

Disaster Action Team (DAT): DATS are composed of volunteers who are trained to
provide specific immediate disaster services to those affected by a disaster including
the set-up and running of a shelter.

Role of DRI at Shelter: The role of the DRI in the shelter setting is to facilitate
communication between the deaf or hard of hearing (D/HH) client and shelter staff for
all shelter related communications.

Recovery Phase: Shortly after a disaster occurs, plans for recovery are initiated. During
this phase, recovery centers are set up to address a variety of concerns and needs
that survivors might have ranging from housing, food, and medical services to
assistance with insurance. These recovery centers may be part of a shelter, adjacent
to the shelter, or in another location.

Local Assistance Centers (LAC): LACS are opened by local governments to assist
communities by providing a centralized location for resource referrals and services for
unmet needs following a disaster or significant emergency. The LAC is normally
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Summary
Shelter Operations & Recovery Services
staffed and supported by local, state and federal agencies, as well as non-profit and
voluntary organizations.

A Disaster Recovery Center (DRC) is a readily accessible facility or mobile office where
survivors may go for information about FEMA or other disaster assistance programs,
or for questions related to getting back into homes, seeking financial assistance or
other needed resources after the disaster.

Compassionate Fatigue/Vicarious Trauma: Interpreting in emotionally charged
settings including crises of various kinds can have serious psychological
consequences. Information interpreted can often be very sensitive and linguistically
challenging, the interpreter has to deal with their own emotions and how they may
react automatically to the situation at hand.

Hardship Codes: The Hardship Codes compiled by the American Red Cross list
possible situations that volunteers may face during deployment.
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