CCP Program Guidance - Application Toolkit

Federal Emergency Management Agency
Crisis Counseling Assistance and Training Program
Guidance
CCP Application Toolkit, Version 3.4
May 2012

Note: Substance Abuse and Mental Health Services Administration (SAMHSA) Center for
Mental Health Services (CMHS) Project Officers are available to provide technical
assistance and consultation on the Crisis Counseling Assistance and Training Program
(CCP). If you would like to speak with a CMHS Project Officer, please contact the
SAMHSA Disaster Technical Assistance Center (DTAC) at 1-800-308-3515 (Monday–
Friday 9 a.m.–5 p.m. ET), and a staff member will forward your request to the appropriate
Project Officer.

HU

You may obtain CCP applications, supplemental instructions, and guidance documents by
calling SAMHSA DTAC as indicated above or by emailing SAMHSA DTAC at
[email protected].
UH

Table of Contents
Introduction ...................................................................................................................4
Introduction .................................................................................................................6
Disaster Definition .......................................................................................................6
Typical Individual Reactions to a Disaster ................................................................... 6
Typical Community Reactions to a Disaster ................................................................ 6
The CCP .....................................................................................................................8
Services Funded by the CCP ......................................................................................9
The Crisis Counseling Approach ................................................................................. 9
The Value of the Crisis Counseling Approach ............................................................. 9
Providers of CCP Services ........................................................................................ 10
Program Duration ...................................................................................................... 10
Typical CCP Timeline ........................................................................................................... 11

Eligibility Requirements ............................................................................................. 11
Applying for the CCP ................................................................................................. 11
Applying for Both the ISP and the RSP ..................................................................... 11
The Significance of the Needs Assessment............................................................... 11
Post-Award Requirements......................................................................................... 12
Introduction ............................................................................................................... 14
The Goal of the CCP ................................................................................................. 14
The CCP Model ......................................................................................................... 14
Identifying People in Need of Crisis Counseling ........................................................ 15
Population Exposure Model .................................................................................................. 15

CCP Primary and Secondary Services ...................................................................... 16
Primary CCP Services .......................................................................................................... 16
Secondary CCP Services ..................................................................................................... 17

Differences Among CCP Resource Linkage, Case Management, and Advocacy ...... 18
CCP Service Providers and Staff............................................................................... 19
The Number of Visits Allowed by a Crisis Counselor ................................................. 19
How Crisis Counselors Are Trained ........................................................................... 19
The Difference Between Crisis Counseling and Traditional Mental Health
Treatment ..................................................................................................................20
How the CCP Addresses Severe Disaster Reactions ................................................ 21
Introduction ............................................................................................................... 23
Program Management and the CCP ......................................................................... 23
The Program Management Plan and the CCP Grant Applications............................. 23
Main Components of a Program Management Plan .................................................. 23
Program Management and Ongoing Needs Assessment .......................................... 24
Media and Marketing, and the CCP ........................................................................... 24
Effective Staffing of the CCP ..................................................................................... 25

Training .....................................................................................................................27
Staff Stress Management .......................................................................................... 28
Fiscal Management ................................................................................................... 29
Challenges to Fiscal Management ............................................................................ 29
Data Collection and Evaluation.................................................................................. 30
Ensuring Quality Assurance ...................................................................................... 31
CCP Administrative and Reporting Requirements ..................................................... 31
Training ................................................................................................................................. 31
Fiscal Administration ............................................................................................................. 32
Administrative and Fiscal Reporting ..................................................................................... 32
Service Delivery Data ........................................................................................................... 32

Introduction ............................................................................................................... 34
The Influence of the CCP Model ................................................................................ 34
Relationships Among the Needs Assessment, Plan of Services, and Budget ............ 34
Budgeting ..................................................................................................................35
Budget Formats..................................................................................................................... 35
The Budget Narrative ............................................................................................................ 35
Interim Costs ......................................................................................................................... 35
Indirect Costs ........................................................................................................................ 36
In-Kind Resources ................................................................................................................ 36

The Importance of Effective Fiscal Management ....................................................... 36
Fiscal Monitoring and Conditions of Award ................................................................ 37
Requests for Budget Adjustments ............................................................................. 37
Transfer of Funds ...................................................................................................... 37
Transfer of Funds in the ISP ................................................................................................. 37
Transfer of Funds in the RSP ............................................................................................... 38

Preparing for Closeout .............................................................................................. 38
Fiscal Reporting and Closeout Requirements............................................................ 38
ISP Reporting ........................................................................................................................ 38
RSP Reporting ...................................................................................................................... 39

Appendix A: CCP Services, Positions, and Job Descriptions ................................. 40
Appendix B: Instructions for the Budget Narrative .................................................. 43
Appendix C: Federal Financial Report SF-425 .......................................................... 49
Appendix D: Federal Financial Report SF-425 Instructions ..................................... 50

Introduction
The Crisis Counseling Assistance and Training Program (CCP) is one of a number of
programs funded by the Federal Emergency Management Agency (FEMA) under the
authority of the Robert T. Stafford Disaster Relief and Emergency Assistance Act of
1974 (Stafford Act). The Stafford Act was designed to supplement the efforts and
available resources of State and local governments in alleviating the damage, loss,
hardship, or suffering caused by a federally declared disaster. Specifically, section 416
of the Stafford Act authorizes FEMA to fund mental health assistance and training
activities in affected areas for a specified period of time. This mental health assistance is
called crisis counseling.
This program guidance is a four-part introduction to the CCP and services it provides. It
is intended to assist States, U.S. Territories, and federally recognized Tribes to prepare
a comprehensive application and provide effective programs for disaster survivors. It
should be used in conjunction with the Immediate Services Program (ISP) and Regular
Services Program (RSP) application supplemental instructions, as well as with
regulations and grants policy statements from the U.S. Department of Homeland
Security, FEMA; and the U.S. Department of Health and Human Services (HHS),
Substance Abuse and Mental Health Services Administration (SAMHSA).
The materials presented in this document are organized into four sections: Program
Overview, Program Services, Program Management, and Fiscal Administration. Each of
these sections are interrelated; if an answer cannot be found in one section, consult the
other sections of the document for further information on a specific topic. For the
purpose of formatting in this guidance, applicants (i.e., States, U.S. Territories, or
federally recognized Tribes) will be referred to as “States,” “State Mental Health
Authorities (SMHAs),” or “applicants.”

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Crisis Counseling Program
Guidance Materials

Section I: Program Overview

Introduction
Section I of the program guidance provides on overview of the CCP. It details typical
reactions to disaster as experienced by individuals and communities. Brief descriptions
of the services provided by the CCP and eligibility and application requirements are
discussed. Some information on key elements of the needs assessment process for
service provision and on program reporting requirements is also included. This section is
intended to provide an overview of the program; for further information on related topics,
refer to the subsequent sections of the document.

Disaster Definition
A disaster is a natural or human-caused occurrence (e.g., hurricane, tornado, flood,
tsunami, earthquake, explosion, hazardous materials accident, mass criminal
victimization incident, war, transportation accident, fire, terrorist attack, famine,
epidemic) that causes human suffering. A disaster creates a collective need that
overwhelms local resources and requires additional assistance.

Typical Individual Reactions to a Disaster
Typical reactions to a disaster include physical, emotional, cognitive, and behavioral
responses that may be experienced by individuals and families. Each category of
disaster response includes a diverse set of reactions that may change over time. For
example, one may experience hypervigilance immediately after a disaster and then, over
time, lapse into a state of chronic fatigue. Whether the reactions are adaptive or become
distressing, people who are affected by a disaster may experience more than one type
of reaction, and these reactions may change over time. Many people may experience
anxiety, loss of sleep or appetite, stress, grief, irritability, hopelessness, and family
conflict.

Typical Community Reactions to a Disaster
While each survivor experiences the disaster as an individual, he or she also
experiences it as part of a community. The following figure illustrates six phases of a
community’s response to a disaster.

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Emotional
Highs

Setback

Emotional
Lows

Ï

Phase 1, the pre-disaster phase, is characterized by fear and uncertainty. The
specific reactions a community experiences depend on the type of disaster.
Disasters with no warning can cause feelings of vulnerability and lack of security;
fears of future, unpredicted tragedies; and a sense of loss of control or the loss of the
ability to protect oneself and one’s family. On the other hand, disasters with warning
can cause guilt or self-blame for failure to heed the warnings. The pre-disaster phase
could be as short as hours, or even minutes, such as during a terrorist attack; or it
could be as long as several months, such as during a hurricane season.

Ï

Phase 2, the impact phase, is characterized by a range of intense emotional
reactions. As with the pre-disaster phase, the specific reactions also depend on the
type of disaster that is occurring. Slow, low-threat disasters have psychological
effects different from those of rapid, dangerous disasters. As a result, these reactions
can range from shock to overt panic. Initial confusion and disbelief typically are
followed by a focus on self-preservation and family protection. The impact phase is
usually the shortest of the six phases of disaster.

Ï

Phase 3, the heroic phase, is characterized by a high level of activity with a low
level of productivity. During this phase, there is a sense of altruism, and many
community members exhibit adrenaline-induced rescue behavior. As a result, risk
assessment may be impaired. The heroic phase often passes quickly into phase 4,
the honeymoon phase.

Ï

Phase 4, the honeymoon phase, is characterized by a dramatic shift in
emotion. During the honeymoon phase, disaster assistance is readily available.
Community bonding occurs. Optimism exists that everything will return to normal
quickly. As a result, numerous opportunities are available for providers and
resources to establish and build rapport with affected people and groups, and build
relationships with stakeholders. The honeymoon phase typically lasts only a few
weeks.

CCP Guidance Page 7 of 54

Ï

Phase 5, the disillusionment phase, is characterized by a stark contrast to the
honeymoon phase. During the disillusionment phase, communities and individuals
realize the limits of disaster assistance. As optimism turns to discouragement and
stress continues to take a toll, negative reactions, such as physical exhaustion or
substance abuse, may begin to surface. The increasing gap between need and
assistance leads to feelings of abandonment. Especially as the larger community
returns to business as usual, there may be an increased demand for services, as
individuals and communities become ready to accept support. The disillusionment
phase can last months, and even years. It is often extended by one or more trigger
events, which usually include the anniversary of the disaster.

Ï

Phase 6, the reconstruction phase, is characterized by an overall feeling of
recovery. Individuals and communities begin to assume responsibility for rebuilding
their lives, and people adjust to a new “normal” while continuing to grieve losses. The
reconstruction phase often begins around the anniversary of the disaster and may
continue for some time beyond that. Following catastrophic events, the
disillusionment phase may be years in duration

The CCP
For more than 30 years, Federal, State, U.S. Territory, and federally recognized Tribal
governments have worked together with local providers to help disaster survivors
recover from the effects of a disaster. The CCP is a Federal, FEMA-funded program that
provides supplemental funding to States, U.S. Territories, and federally recognized
Tribes after a Presidential disaster declaration. Through an interagency agreement, the
SAMHSA Center for Mental Health Services (CMHS) Emergency Mental Health and
Traumatic Stress Services Branch provides grant administration and program oversight,
as well as training and technical assistance for State and local mental health personnel.
The CCP consists of services focused on preventing or mitigating adverse repercussions
of a disaster. This goal is achieved through the use of a prevention and public health
approach. Beginning with the most severely affected group and moving outward, the
program seeks to serve a large portion of the population affected by the disaster.
Program services are community based and often are performed in survivor’s homes,
shelters, temporary living sites, and churches. CCP services include supportive crisis
counseling, education, development of coping skills, and linkage to appropriate
resources, while assessing and referring those members of the community who are in
need of more intensive mental health and substance abuse treatment to appropriate
community resources. The CCP engages community gatekeepers and organizations
through direct contact with stakeholder groups, such as unmet-needs committees, and
participation in community events in order to facilitate response activities and services to
survivors. The CCP is designed to assist with community recovery and collaboration in
order to transition from CCP services to existing community resources upon the
phasedown of the program.

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Services Funded by the CCP
The CCP funds the following services, which are described in detail in section II of the
program guidance:
Ï

Individual crisis counseling.

Ï

Assessment, referral, and
resource linkage.

Ï

Basic supportive or educational
contact.

Ï

Development and distribution of
educational materials.

Ï

Media and public service
announcement

Ï

Group crisis counseling.

Ï

Public education.

Ï

Community networking and
support.

The Crisis Counseling Approach
Crisis counseling is a strengths-based, outreach-oriented approach to helping disaster
survivors access and identify personal and community resources that will aid the
recovery process. It consists primarily of supportive, educational, face-to-face
interventions with individuals and communities in their natural environments. The CCP
seeks to empower survivors through educating them about disaster reactions, teaching
them coping skills, assessing them for individual needs, and linking them to appropriate
community resources.
Crisis counseling is considered “strengths based” because it assumes most disaster
survivors are naturally resilient. By providing support, education, and linkage to needed
community resources, survivors will be better equipped to recover from the negative
consequences of disaster.
While crisis counseling assumes a natural resilience in the majority, it also includes
screening and assessing for severe reactions in the minority. Crisis counselors know
that few people will develop diagnosable conditions. They are trained to identify disaster
survivors experiencing severe reactions and refer these individuals to appropriate
treatment services and community resources.

The Value of the Crisis Counseling Approach
Although a disaster may leave most people physically unharmed, it affects everyone
who experiences it. A key step to recovery is regaining a sense of control. Crisis
counseling provides survivors with the support, education, and skills they need to regain
a sense of control and rebuild their lives.
Crisis counseling assistance is practical in nature. Many survivors will not seek help, and
some may even reject it. While survivors may not want “psychological counseling” or
“mental health services,” they usually will welcome the genuine concern and concrete
support offered by crisis counselors.

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Crisis counseling also is valuable because it addresses the needs of the community as a
whole, in addition to those of the individual. During a disaster, both individuals and
communities experience a range of emotional highs and lows that typically are
associated with the phases of disaster recovery. Communities may move from a sense
of heroism and altruism to a sense of hopelessness and abandonment, all in a short
period of time. Crisis counselors provide support, education, and resource linkage that
empower individuals and communities, and assist them in reaching the reconstruction
phase of recovery.

Providers of CCP Services
Most commonly, States, U.S. Territories, and federally recognized Tribes provide CCP
services through contract with local mental health service provider agencies that are
familiar with the communities affected by the disaster. The CCP encourages the use of
trained paraprofessional staff, preferably people who live and work in the communities
they will serve. Crisis counselors typically reflect the cultural makeup of the community
served.
CCP staff include a mix of mental health professionals, who often serve as team leaders,
and trained paraprofessional staff, who work as crisis counselors.

Program Duration
The CCP consists of two grant programs, the ISP and the RSP. The ISP provides
funding for up to 60 days after the date of Presidential disaster declaration; while the
RSP provides funding for up to 9 months from the date the RSP is awarded.
The CCP may be a year or longer in duration if it includes an RSP in addition to an ISP.
Many other disaster relief resources may have terminated services before the CCP. This
is another aspect of the program that sets it apart from other approaches to disaster
work.
As illustrated in the following timeline, the ISP application is due 14 days after the date of
the Presidential disaster declaration. The RSP application and ISP extension request are
due 60 days after the declaration date and are followed by a Federal grant application
review period, during which the ISP can be extended until a decision is made on
approval of the RSP application.

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Typical CCP Timeline
0B

Eligibility Requirements
Three entities are eligible to apply for and receive CCP funding after a Presidential
disaster declaration: States, U.S. Territories, and federally recognized Tribes.

Applying for the CCP
A completed and signed application and Federal forms are required to apply for the ISP
or RSP. To apply call the SAMHSA Disaster Technical Assistance Center at 1-800-3083515.

Applying for Both the ISP and the RSP
After a Presidential disaster declaration, States, U.S. Territories, and federally
recognized Tribes may apply for the ISP. If a continuing need for services is
demonstrated, an RSP application can then be submitted. However, States, U.S.
Territories, and federally recognized Tribes may elect to apply for only the ISP. Before
applying for either program, a qualified entity must determine the need for crisis
counseling services by compiling disaster data and conducting a needs assessment,
one of the most critical components of the CCP application.

The Significance of the Needs Assessment
The needs assessment is the tool the applicant uses to demonstrate the nature and
extent of behavioral health needs resulting from a disaster and how those needs surpass
State and local resources and capabilities.
The needs assessment identifies populations who should be targeted to receive crisis
counseling services. In most disaster situations, children, adolescents, older adults, and
single mothers are considered at-risk populations. The needs assessment may reveal
CCP Guidance Page 11 of 54

additional groups who are vulnerable to disaster effects or who have been particularly
affected by the specific disaster.
The CCP is a supplemental disaster relief program and is not intended to supplant
existing State and local resources. In order to receive CCP funding, the SMHA must
provide “a description of the State and local resources and capabilities, and an
explanation of why these resources cannot meet the need.” Following the grant award
and throughout the life of the program, grantees are expected to conduct ongoing needs
assessment to justify continued supplemental funding.

Post-Award Requirements
Grantees are expected to comply with all conditions of award as detailed in the Notice of
Grant Award (NOGA) letter. Conditions will include but are not limited to programmatic
and fiscal reporting requirements and participation in ongoing Federal monitoring
activities, such as regular phone calls and site visits. Grantees also are required to utilize
the data collection toolkit approved by the Office of Management and Budget (OMB)
(OMB No. 0930–0270). Additional requirements also may be included in the grant award
letter and are further detailed in section IV of this document.

CCP Guidance Page 12 of 54

Crisis Counseling Program
Guidance Materials

Section II: Program Services

Introduction
Section II of the program guidance details the services provided through the CCP.
Information also is provided regarding how applicants can identify and target populations
who could benefit from CCP services. Mechanisms for addressing severe psychological
reactions in survivors also are addressed. This section is intended to provide an
overview of program services; for further information on related topics, refer to the other
sections of the document.

The Goal of the CCP
The goal of the CCP is to help disaster survivors recover from the often adverse
reactions to disaster and begin to rebuild their lives. The CCP focuses on helping them
understand their personal reactions, helping them plan action steps and solutions to
resolve losses and overcome adversities, and linking them to other community
resources.
The CCP helps survivors prioritize their needs and connect with organizations or people
who can assist them. Although the CCP is a temporary disaster relief program, it leaves
behind a permanent legacy of more adaptive coping skills, educational and resource
materials, and enhanced community linkages.

The CCP Model
The CCP is designed to provide immediate behavioral health support, primarily relying
on face-to-face contacts with survivors in their communities. The CCP provides these
support-centered services to survivors over a specific period of time. Eight key principles
guide the CCP approach.
CCP services can be described as follows:
Ï

Strengths based: Crisis counselors assume natural resilience in individuals and
communities, and promote independence rather than dependence on the CCP, other
people, or organizations. Crisis counselors help survivors regain a sense of control.

Ï

Outreach oriented: Crisis counselors take services into the communities rather than
wait for survivors to seek them.

Ï

More practical than psychological in nature: Crisis counseling is designed to
prevent or mitigate adverse repercussions of disasters rather than to treat them.
Crisis counselors provide support and education, listen to survivors, and accept the
content at face value. Crisis counselors help survivors to develop a plan to address
self-identified needs and suggest connections with other individuals or organizations
that can assist them.

Ï

Diagnosis free: Crisis counselors do not classify, label, or diagnose people; they
keep no records or case files. The CCP does not provide mental health or substance
abuse treatment, or critical incident stress debriefing. Services are supportive and
educational in nature.

CCP Guidance Page 14 of 54

Ï

Conducted in nontraditional settings: Crisis counselors make contact with
survivors in their homes and communities, not in clinical or office settings.

Ï

Culturally competent: Crisis counselors strive to understand and respect the
community and the cultures within it, and to demonstrate positive regard when
interacting with survivors.

Ï

Designed to strengthen existing community support systems: Crisis counselors
support, but do not organize or manage, community recovery activities. Likewise, the
CCP supplements, but does not supplant or replace, existing community systems.

Ï

Provided in ways that promote a consistent program identity: Crisis counselors
should work together early to establish a unified identity. The CCP strives to be a
single, easily identifiable program, even though it may be carried out by a number of
different local provider agencies.

Identifying People in Need of Crisis Counseling
The CCP utilizes a population exposure model to help identify and prioritize groups who
could benefit from crisis counseling services. This model mirrors a “ripple effect,”
illustrating how the impact of a disaster expands to wider segments of the community.
The injured and bereaved represented in “A” are those with the highest level of exposure
to the disaster and those most likely to benefit from CCP services that are delivered
face-to-face and are of higher intensity. Those represented in each subsequent ring
have a lesser degree or intensity of exposure. Those in ring “E” have experienced littleto-no direct exposure to the disaster and, thus, may be targeted for the lowest intensity
of service such as public education and information.
Population Exposure Model
1B

A. Injured survivors, bereaved family
members.
B. Survivors with high exposure to
disaster trauma, or evacuated from
disaster zones.
C. Bereaved extended family and friends,
first responders.
D. People who lost homes, jobs, and
possessions; people with pre-existing
trauma and other dysfunction; at-risk
groups and other disaster responders.
E. Affected people from the larger
community.

CCP Guidance Page 15 of 54

A properly performed needs assessment is particularly important for identifying
populations at greatest risk for behavioral problems. A thorough and thoughtful needs
assessment will help the applicant identify vulnerable groups and understand how they
are most affected by the specific disaster.

CCP Primary and Secondary Services
There are two types of CCP services—primary and secondary. Primary CCP services
are higher in intensity as they involve personal contact with individuals, families, or
groups. Secondary CCP services have a broader reach and less intensity since they
may be provided through written or electronic media. Examples of both are described
below.
Primary CCP Services
2B

Individual Crisis Counseling
Individual crisis counseling involves a process of engagement lasting at least 15
minutes. Its focus is to help disaster survivors understand their reactions, review their
options, and connect with other individuals and agencies that may assist them in
improving their situations. Staff members who provide individual crisis counseling are
active listeners who offer reassurance, practical assistance, psycho-education, and
emotional support, and who teach behavioral techniques for coping with stress.
18B

Brief Educational or Supportive Contact
Educational information or emotional support is provided to individuals or groups,
and typically is less than 15 minutes in duration. CCP staff members who provide
brief educational or supportive contact are helpful educators and active listeners.
They offer general support and provide general information, typically on resources
and services available to disaster survivors. During this type of intervention, crisis
counselors do not usually engage in indepth discussion as they would during
individual crisis counseling or psycho-education.
19B

Group Crisis Counseling
Group crisis counseling occurs when disaster survivors and community members are
brought together to meet for longer than 15 minutes. The group is led by a trained
crisis counselor. The structure and format of group crisis counseling may vary, but
group members should have similar levels of exposure to the disaster. Groups may
be supportive or psycho-educational in nature. CCP crisis counselors who facilitate
this service encourage the group members to do most of the talking, and they offer
skills to help the group members cope with their situations and reactions. Throughout
the process, the counselors assist group members with referrals to services often
needed.
20B

In addition to psycho-education or support groups, the CCP also may promote the
development of self-help groups. CCP-initiated self-help groups should be facilitated
by a professional or paraprofessional crisis counselor. The group can work toward
autonomy by inviting a member to be a cofacilitator. Initially, the crisis counselor may
be the primary leader of the group. Later, the group may continue without the
presence of a professional or paraprofessional counselor, and be led by one or more
of the group members. When group members are responsible for their own group
CCP Guidance Page 16 of 54

process without the benefit of the presence of a professional or paraprofessional (a
self-help support group), the group can no longer be considered a CCP effort, since
the quality of the group process cannot be guaranteed and lacks reporting or
accountability mechanisms.
Public Education
CCP outreach staff provide survivors with information and education about typical
reactions, helpful coping strategies, and available disaster related resources. CCP
staff members commonly provide this service through public speaking at community
forums, professional inservice meetings, and local government meetings. In contrast
to the group crisis counselor, the CCP staff member who conducts public education
does most of the talking. The need for public educational services is likely to
increase throughout the course of the CCP.
21B

Assessment, Referral, and Resource Linkage
Crisis counselors are trained to assess an individual’s or family’s need for referral to
additional disaster relief services or mental heath or substance abuse treatment.
Crisis counselors refer survivors experiencing severe reactions to the appropriate
level of care. Survivors also may be referred to other disaster relief resources to
meet a wide range of physical, structural, or economic needs. The crisis counselors
who provide assessment and referral services need to be knowledgeable about local
resources and work diligently to engage community organizations.
2B

Community Networking and Support
Crisis counselors build relationships with community resource organizations, faithbased groups, and local agencies. They often attend community events to provide a
compassionate presence and to be available to provide crisis counseling services,
when needed. They may initiate or attend unmet-needs committee or long-term
recovery meetings, or other disaster relief-oriented gatherings. It is important to note
that communities, families, and survivors should “own” their community events. Crisis
counseling staff can provide useful consultation during the planning process and
valuable information and services at these events to demonstrate their support for
members of the community.
23B

Secondary CCP Services
3B

Development and Distribution of Educational Materials
Flyers, brochures, tip sheets, educational materials, or Web site information is
developed and distributed by the CCP workers to educate survivors and the
community. Topics include basic disaster information, typical reactions to disaster,
coping skills, and individual and community recovery and resilience. Materials that
address the needs of at-risk populations, as well as materials developed in multiple
languages, should be available. Materials may be handed out or left in public places,
published in local newspapers, or mailed to survivors in areas most affected by a
disaster. Examples of these materials can be obtained from SAMHSA DTAC.
24B

Media and Public Service Announcements
CCP staff engage in media activities and public messaging in partnership with local
media outlets, State and local governments, charitable organizations, or other
community brokers of information. Media activities and messaging are designed to
25B

CCP Guidance Page 17 of 54

reach a large number of people in order to promote access to CCP services, and
educate survivors and the community about disaster, disaster reactions and coping
skills, and individual or community recovery and resilience. Venues for this messaging
vary and may include media interviews with CCP spokespeople, television or radio
public service announcements, use of Web sites or e-mail, or advertising.

Differences Among CCP Resource Linkage, Case Management, and
Advocacy
CCP services include referrals and linkage to health and mental health services, disaster
recovery resources, and tangible goods. Linkage may occur as a result of a single visit
and includes limited or informal followup. The intent of CCP resource linkage services is
to assist disaster survivors to access resources without developing the expectation of a
long-term relationship and a structured case plan. The emphasis for the crisis counselor
is on empowering survivors to make plans to become familiar with local resources and to
act on their own behalf to connect with those needed resources.
Case management, as traditionally practiced by human service agencies, often involves
more accountability on the part of the worker to ensure clients successfully access
needed resources and supports. In a traditional case management model, it is common
for a formal case plan to be established and for regular followup to occur. Traditional
advocacy emphasizes a worker representing the needs and interests of the population
served to ensure access to resources. In some cases, advocacy can be an adversarial
process directed toward influencing a system, resource, or provider to serve a client.
The CCP model emphasizes empowerment and collaboration. For circumstances in
which longer term, more intensive services are needed, a crisis counselor may provide
some extra assistance or limited, short-term followup to a survivor who is particularly
overwhelmed or who has literacy or language barrier issues. A crisis counselor, in the
presence of a disaster survivor, may role-play making phone calls and show how asking
important questions facilitates obtaining resources for the survivor and his or her family.
The crisis counselor then encourages the survivor to accomplish these tasks on his or
her own. With reinforcement and guidance from the crisis counselor, often provided
during a single visit, the survivor is then empowered to act independently to access
resources. Whenever possible, the crisis counselor encourages disaster survivors to
utilize resource lists and information to make their own phone calls, fill out their own
forms, and set up their own appointments. Should advocacy for an individual or
community be needed, crisis counselors should seek out faith-based organizations or
other agencies to help respond to these needs.
Traditional Case Management

CCP Resource Linkage

Provides services to individuals who may
have a serious and persistent mental
illness or other disability of indefinite
duration.

Provides services to disaster survivors,
regardless of level of functioning.

Advocates for and influences the
provision of services for clients.

Empowers disaster survivors to advocate
for their own services and resources.

CCP Guidance Page 18 of 54

Traditional Case Management

CCP Resource Linkage

Includes filling out forms and arranging
appointments for clients.

Assists disaster survivors to access
services by guiding them through typical
application and referral processes.

Assumes responsibility for ensuring
clients access needed services, and may
follow up with service providers to ensure
compliance with appointments.

Assists disaster survivors to identify
services, and may follow up with
survivors, while empowering them to be
responsible for accessing their own
services.

Has a responsibility to ensure continuity
of care for clients.

Assists disaster survivors to access
disaster-related services, as prioritized by
survivors.

Involves long-term relationships with
clients.

Involves short-term relationships with
disaster survivors.

CCP Service Providers and Staff
CCP service providers usually are community mental health organizations that have an
existing relationship with the SMHA. The CCP requires training of paraprofessional staff
who understand the cultures of the community and reflect the ethnic groups they serve.
CCP staff typically work in teams of two or more to perform outreach and provide
services. Teams include a mix of mental health professionals and trained
paraprofessional staff members. Each team should have a team leader who has the
clinical expertise needed to supervise staff. Trained professional staff members also are
responsible for assessing survivors for severe reactions. In all cases, but particularly
when team deployment is not possible, remote communication, such as via mobile
phone or pager, is essential to ensure safety.

The Number of Visits Allowed by a Crisis Counselor
The CCP does not limit the number of times crisis counselors may meet with individuals
or families. However, a crisis counselor should be cautious about establishing
expectations of long-term services or relationships, given the program’s temporary nature.
Typically, crisis counselors are trained to consider assessing survivors they have seen
on three or more occasions for referral to other kinds of resources or behavioral health
care.

How Crisis Counselors Are Trained
FEMA and CMHS have developed a series of standardized CCP training modules for
crisis counselors and program administrators. These required trainings teach crisis
counselors about individual and community reactions to disaster, prepare them to deliver
crisis counseling services, inform them about CCP procedures and data collection, and
provide them with techniques to manage their own stress.

CCP Guidance Page 19 of 54

States articulate a comprehensive training plan in the ISP and RSP applications. These
plans include the standardized CCP trainings and any supplemental training on disasterrelated topics the SMHA determines may be appropriate. The standard CCP trainings
developed by FEMA and CMHS should be delivered by instructors experienced in the
CCP and trained to deliver CCP-required trainings. The names of instructors should be
included in the ISP and RSP applications, and approved by CMHS. Additional training
provided by the State should be based on specific disaster needs.

The Difference Between Crisis Counseling and Traditional Mental Health
Treatment
Mental health treatment, as typically defined within the professional community, implies
the provision of assistance to individuals for a diagnosable disorder. In contrast, crisis
counseling seeks to prevent the onset of diagnosable disorders by helping the majority
of survivors understand that they are experiencing common reactions to extraordinarily
uncommon events. Through psycho-education, emotional support, skills building, and
linkage to services, most survivors will exhibit resilience and recovery.
While a mental health professional typically will provide services in an office or clinical
setting, the crisis counselor supports people in their communities. Typical settings for
crisis counseling may include a disaster survivor’s home, a workplace, a school, a
community center, or even a coffee shop.
A mental health professional often will engage a client in short- or long-term recovery
treatment, committing the person to a set number of sessions. The crisis counselor
should treat each encounter as if it will be the only one, assisting the survivor with
identifying needs and goals. In disaster situations, survivors often are forced to move
from place to place, requiring this more psycho-educational approach. The mental health
professional may be concerned with treating a particular symptom or set of symptoms;
however, the crisis counselor uses a holistic approach, assessing and responding to all
of the person’s needs within the context of his or her situation.
The mental health professional often takes a directive role, deciding what issues need to
be addressed and in what manner. The crisis counselor assists survivors in identifying
their most pressing difficulties and needs, as well as prioritizing and planning how they
can address these needs best. The crisis counselor also is a supportive voice and may
provide information about common reactions to disaster, effective coping strategies, and
available community resources.
Finally, while a traditional mental health professional will make a diagnosis and treat
mental illnesses, the crisis counselor will avoid classifying, labeling, or diagnosing
people in any way. The crisis counselor keeps no individual records or case files.
Key differences between the two approaches are summarized below.
Traditional Mental Health

Crisis Counseling

Is office based.

Is home and community based.

Diagnoses and treats mental illnesses.

Assesses strengths and coping skills.

CCP Guidance Page 20 of 54

Traditional Mental Health

Crisis Counseling

Focuses on personality and functioning.

Seeks to restore or improve functioning.

Examines content.

Accepts content at face value.

Explores past experiences and their
influence on current problems.

Validates common reactions and
experiences.

Has psycho-therapeutic focus.

Has psycho-educational focus.

Keeps records, charts, case files, etc.

Does not collect any identifying
information.

How the CCP Addresses Severe Disaster Reactions
Severe reactions to a disaster may include depressive disorders, suicidal behavior,
substance abuse, acute stress disorder, posttraumatic stress disorder, dissociative
disorders, and anxiety disorders. The treatment of severe reactions is beyond the scope
of the CCP. However, assessing for severe reactions and making appropriate referrals
are crucial parts of the program. Through training, crisis counselors know that few
survivors will develop diagnosable conditions, but they must be able to identify those
who do and refer them to the appropriate levels of care

CCP Guidance Page 21 of 54

Crisis Counseling Program
Guidance Materials

Section III: Program Management

Introduction
Section III of the program guidance details the components of a program management
strategy and plan. Developing a management plan consistent with the needs
assessment and outreach strategy is discussed. Staffing, quality assurance, supervision,
program promulgation, training, and evaluation are addressed. This section is intended
to provide an overview of program management; for further information on related topics,
refer to the other sections of the document.

Program Management and the CCP
Program management is used by State CCP leadership and supervisory staff to ensure
that services are delivered effectively to meet the needs of disaster survivors and at-risk
individuals and groups. Training, supervision, regular meetings, analysis of service and
fiscal data, and quality assurance systems are essential elements for effective program
management. State and CCP staff collaborate to ensure that the resource and service
components of the CCP work together in a manner consistent with the program model.
FEMA and CMHS Project Officers have Federal oversight responsibility for the CCP and
need to be informed of, and approve, the State’s program management approach to
ensure administrative consistency at the Federal, State, and provider levels. Ongoing
analysis ensures program services meet the changing needs brought on by the phases
of community disaster reactions and aspects of disaster recovery.

The Program Management Plan and the CCP Grant Applications
The ISP and RSP grant applications provide details on how the applicant will provide
training, manage and deploy resources, and ensure quality and accountability. The basic
elements of the program management plan are established in the grant applications.
The plan consists of material from the ISP or RSP applications supplemented by more
detailed information, protocols, and procedures concerning service provision, providers,
communication, management oversight, and field supervision.

Main Components of a Program Management Plan
The components of the program management plan vary given the needs of the applicant
and the reach of the disaster. The interrelated components promote effective delivery of
services, and evolve to meet new identified disaster needs.
Typical components of a program management plan include the following:
Ï

Performing ongoing needs assessment.

Ï

Developing and effecting outreach strategies to identify and serve affected
individuals, groups, and the community.

Ï

Ensuring supervision and quality assurance at the State and provider levels.

Ï

Employing program media and marketing strategies.

Ï

Recruiting and hiring staff.

CCP Guidance Page 23 of 54

Ï

Providing training.

Ï

Providing staff stress management.

Ï

Ensuring effective fiscal management.

Ï

Accomplishing program evaluation.

Program Management and Ongoing Needs Assessment
Needs assessment is the foundation of the CCP. It is a continuous process necessary to
ensure the relevance of the program for the duration of the effort. An initial needs
assessment provides the rationale and justification for the CCP, and identifies at-risk
populations who will be targeted for outreach. Formal sources for needs assessment
might include analysis of damage assessments and registrants for services from FEMA
or the CCP, and may involve other data sources including special use surveys and
assessment tools. A needs assessment also might rely on corroborative data including
anecdotal evidence from crisis counselors or feedback from other disaster relief
providers. These sources may be especially important to inform adaptation of program
outreach and services to meet changing needs in communities affected by disaster.

Media and Marketing, and the CCP
Establishing identity and public awareness are key components of program
management. It is important for the program to select a name in order to develop a
cohesive identity among providers. All CCP staff need to be part of a shared identity.
This is achieved through training and through the use of media and marketing strategies
that define program services and inform the community about the CCP.
Strategies to build a program identity and to market services include the following:
Ï

Program “branding”: This involves establishing a clearly recognizable program
name and logo, or design elements to appear on all program materials. Staff
members are provided with items, such as t-shirts, business cards, hats, or
badges, with the specific program name and logo.

Ï

Using media outlets: Television, print, radio, and Internet can be used to
increase awareness and accessibility of the CCP. Programs may develop public
service announcements, interviews, articles, advertisements, letters to the editor,
or educational materials.

Ï

Establishing toll-free numbers or hotlines: A toll-free line may be established
purely for informational purposes, or a hotline that provides counseling via phone
may be incorporated into the program.

Ï

Establishing program Web sites: Program Web sites explain the CCP services
and link to other disaster-related resources whenever possible.

Ï

Developing and revising outreach and psycho-educational materials:
Materials are tailored to address the unique characteristics of a specific disaster
or CCP.
CCP Guidance Page 24 of 54

Ï

Engaging in community networking: Staffing information booths and providing
presentations at community events can be an effective way for the CCP to gain
visibility. Staff also may attend meetings that convene to discuss disaster
survivors’ needs and available resources.

Ï

Promoting word-of-mouth promulgation: Outreach workers may encourage
people to spread the word about the CCP. This is sometimes the most effective
method of program promulgation, and it is free!

Effective Staffing of the CCP
CCP staff roles and the number of hires for each position to include in the staffing plan
are informed by the needs assessment and existing State and provider structures. The
State determines how staff are deployed to meet the needs of disaster survivors and atrisk groups. For safety and efficacy, crisis counselors typically are deployed in teams.
Team deployment is linked with the CCP outreach strategy in order to target services to
those individuals and groups identified to be in greatest need. When staffing the CCP,
States should consider cultural demographics of the affected area and use of
professionals with prior training and experience in the mental health and substance
abuse fields.
Typical positions encountered in a CCP are as follows:
Ï

State CCP program manager or director: This is the lead coordinator for the
crisis counseling response at the State level and main point of contact for FEMA.
The manager or director is responsible for oversight of staffing, training,
reporting, fiscal monitoring, and working with other disaster service agencies.

Ï

Team leader: This position oversees a team of four to eight crisis counselors.
Generally, the team leader is an experienced disaster mental health worker or
mental health professional who supervises the paraprofessional crisis counselors
and assists in the assessment of people who require traditional mental health or
substance abuse treatment.

Ï

Crisis counselor: This position is a trained paraprofessional or professional who
provides outreach, basic support, individual and group crisis counseling, public
education, and referral. Crisis counselors work with individuals, families, and
groups.

Ï

Administrative assistant or data entry coordinator: This position provides
administrative support to the CCP and enters evaluation data.

Ï

Trainer or consultant: These positions are hired by the CCP to conduct CCP
training for program staff or to provide programmatic consultation to program
leadership.

Ï

Evaluation coordinator: This position implements and oversees the CCP
evaluation plan, including collection and analysis of data, for programmatic use
and for reporting.

CCP Guidance Page 25 of 54

Ï

Fiscal coordinator: This position tracks and monitors funds, and reviews
program budget modifications.

Additional CCP positions sometimes supported with CCP funds:
Ï

Provider project manager: This position may be included by larger providers to
ensure effective oversight of staff and activities at the provider level. This position
also may provide clinical supervision to CCP outreach staff.

Ï

Community liaison: This position facilitates entry on behalf of the CCP into local
communities and works with community organizations. This person may serve as
a cultural broker and act as a liaison between the CCP and a specific cultural
group.

Ï

Media liaison: This position is responsible for developing public information
press releases, coordinating media events, and developing informational and
educational literature consistent with CCP programming and services.

Ï

Resource linkage coordinator: This position provides intensive resource
linkage for survivors struggling to access disaster relief assistance. Staff
members in this position may provide a higher degree of attention to resource
identification and linkage than what typically is provided by crisis counselors.

Recruiting and selecting staff are essential to a successful program. States and
providers should work with their human resources departments to ensure that highquality staff can be recruited and hired in a timely manner. Some preferred qualities of
CCP staff include the following:
Ï

Demonstrates positive regard for others.

Ï

Communicates effectively.

Ï

Displays knowledge of the community.

Ï

Is able to remain focused.

Ï

Functions well in a chaotic environment.

Ï

Monitors and manages own stress.

Ï

Displays cultural competence.

Ï

Shows initiative, creativity, and stamina.

The State establishes procedures and operating protocols to accomplish appropriate
supervision of staff:
Ï

Individual supervision sessions are conducted and scheduled regularly.
Management ensures that new and existing staff are trained to understand the
CCP model and the parameters of the program, have basic crisis counseling
skills, and are able to manage their own stress.

CCP Guidance Page 26 of 54

Ï

Team and program staff meetings are held to discuss crisis counseling needs or
severe reactions in survivors. Frequent staff briefings also are useful when
assessing implementation of the program’s outreach strategies.

Ï

Regular inservice trainings should occur to ensure program staff are able to build
the skills and tools necessary to do the job.

Training
In order for ongoing programs to be successful, skilled staff need to be trained on
expectations and limits of services, and on how to ensure appropriate adherence to the
CCP model. The quality of service provision is key to program success, and
comprehensive training is essential.
The CCP model includes standard trainings to be carried out at key points throughout
the ISP and RSP. Training materials and recommendations for qualified trainers are
provided by CMHS and through SAMHSA DTAC. Often, personnel from other
assistance and disaster relief agencies are invited to attend to gain understanding of
program services and the CCP model. CCP management must be proactive in planning
for training. This includes scheduling meeting space and identifying appropriate in-State
trainers, when possible.
The required standard CCP trainings are organized into modules that are provided to
States on CD by SAMHSA DTAC once a CCP is approved.
Ï

Core Content Training: This is the basic CCP skills-building training and
includes administrative procedures and data collection information specific to the
program. The course takes place in 2 days, during which crisis counselors are
provided with critical information and skills related to individual, group, and
community outreach strategies. This training is conducted during the first few
weeks of the ISP. However, the State must be able to provide ongoing training to
ensure all new crisis counselors receive the Core Content Training prior to
working independently within the program.

Ï

Transition to RSP Training: During this course, existing CCP staff and newly
hired staff review key concepts related to crisis counseling skills, with an
emphasis on longer term service provision. This curriculum highlights how the
needs of disaster survivors and communities evolve in the RSP and differ from
those encountered in the immediate disaster response. If the State applied for
the RSP only, the Transition to RSP Training should be replaced with the Core
Content Training.

Ï

RSP Midprogram Training: This training typically is held 3–6 months into the
RSP. Issues of staff morale and stress management for service providers are
addressed. A focus is maintained on how crisis counselors will continue to
provide services under difficult circumstances. This training includes problemsolving techniques for specific issues commonly encountered in the CCP such as
emerging substance abuse or significant mental health needs. It also begins to
address the subject of program phasedown.

CCP Guidance Page 27 of 54

Ï

Disaster Anniversary Training: This training is held several weeks before the
first anniversary of the disaster event. Crisis counselors are taught expected
anniversary reactions and intervention strategies. This training can be paired with
the midprogram training or the phasedown training, depending on the
anniversary date.

Ï

RSP Phasedown Training: Phasedown training should take place 6–8 weeks
prior to the scheduled phasedown of the CCP. All CCP administrative and
outreach staff attend. Program phasedown topics in this training include staff
stress management and future planning, assisting the program and its staff to
document the event, planning to leave a legacy for the community, resource
linkage and referrals, and continuity of service via community partnerships.

The CCP training plan is not limited to providing solely required trainings. The State
should identify and deliver additional trainings based on specific disaster and staff
needs. More indepth training on specific crisis counseling interventions, and additional
trainings on cultural competence, working with children, and mental health or substance
abuse assessment and referral are recommended. To promote community partnerships,
CCP leadership is encouraged to share training opportunities with other disaster and
community providers.

Staff Stress Management
The quality of service provision is reliant on the outreach staff being able to accomplish
self-care while they assist others. Many staff members of a CCP are also survivors of
the disaster. Interacting with disaster survivors is extremely rewarding but also may
produce strong levels of anxiety, frustration, anger, or depression in some workers.
Sustained service provision can become debilitating when coupled with a staff person’s
personal experience of loss. It is, therefore, critical that ongoing staff stress management
is integrated into the CCP at all levels of the program. All standard CCP trainings
provided by CMHS include content on individual staff stress management. The program
management plan developed by the State must include provisions for organizational
stress management. Elements of an organizational stress management plan are as
follows:
Ï

A clearly defined management and supervision structure.

Ï

Defined purpose and goals.

Ï

Functionally defined roles reinforced through effective supervision.

Ï

Sound clinical consultation, support, and supervision.

Ï

Supportive peer relationships.

Ï

An active stress management program.

Ï

A comprehensive training plan.

CCP Guidance Page 28 of 54

Fiscal Management
The State is ultimately accountable for the appropriate use of Federal funds. The State
must educate CCP providers on fiscal requirements and implement quality assurance
mechanisms to monitor appropriate use of CCP funds, at both the State and local levels.
Fiscal management considerations include developing effective mechanisms for
accessing Federal funds (“drawing down”), disbursing funds to CCP providers,
accounting for funds, carrying out fiscal reporting requirements, and ensuring funds are
used properly in accordance with CCP and other Federal rules and requirements. Fiscal
staff should be identified as essential members of the CCP leadership team. A more detailed
discussion of expectations related to fiscal management is presented in section IV.

Challenges to Fiscal Management
It is important that SMHA CCP leadership staff work closely with both State and provider
fiscal staff to anticipate challenges and develop solutions. In the past, States have faced
the following challenges:
Ï

Hiring: An effective CCP requires timely hiring of program staff. It is important to
understand how State hiring procedures will work within a disaster grant and to
seek appropriate waivers or streamlining mechanisms from State leadership, if
necessary.

Ï

Procurement: Timely selection and contracting with suitable provider agencies
are necessary. New contracts or contract amendments will need to specify CCP
work and be set up so providers can access CCP funds in a timely manner.

Ï

Billing: The State must ensure that providers regularly submit invoices so the
State can draw down CCP funds in a timely manner. As a time-limited grant, the
CCP may require a faster billing cycle than that of other traditional mental health
or grant programs.

Ï

ISP extension: Typically, when the SMHA has an ISP and applies for an RSP,
an extension of ISP funding is granted to provide time for the RSP application to
be reviewed. The State must submit a formal letter of request for a no-cost
extension or, if necessary, an extension with additional ISP funding to the FEMA
and CMHS Project Officers. When writing an ISP contract with service providers,
the SMHA may wish to build in additional time for the extension period to ensure
continuity of services and access to funds during the transition.

Ï

ISP-to-RSP transition: The RSP is awarded as a new grant, not a continuation
of the ISP. Any remaining ISP funds are returned to FEMA and do not roll over
into the RSP. The RSP requires a separate funding stream, so the SMHA must
take action to ensure providers are able to switch from the ISP to the RSP.

Ï

Second allotment of funds: It is typical, particularly in the case of large grants,
for funding to be disbursed in two allotments. In these cases, the State must
submit a formal request letter to FEMA and CMHS demonstrating that it has
almost expended the first allotment and needs the second allotment. The State
should time submission of this letter in a way that ensures consistent flow of
funding. Often this request is included with the RSP first quarterly report.
CCP Guidance Page 29 of 54

Ï

Grant award conditions: Often, ISP and RSP grants are awarded with
conditions. The State must submit a formal response to award conditions to
receive funding. States must review the grant award conditions letter carefully
and respond appropriately. States must not expend funds for budgeted items that
have not been approved in the award.

Ï

State fiscal year: As the CCP is a disaster grant program with time limitations,
funding start and end dates are tied to the date of Presidential disaster
declaration. As a result, funds are awarded and fiscally administered without
reference to State fiscal year requirements.

Data Collection and Evaluation
Consistent and timely data collection and evaluation assist program management at the
State and provider levels by ensuring that it remains aware of both the success of its
outreach efforts and the changing needs of disaster survivors. The process improves the
program’s behavioral health disaster response, documents the program’s
accomplishments, and provides accountability information to stakeholders (e.g.,
Congress, Government Accountability Office, Federal agencies). CMHS and FEMA also
use data to justify program efforts, as well as to make modifications to the CCP model
and program service delivery.
Procedures for data collection and evaluation include the following:
Ï

One central data entry point is recommended to reduce data entry errors.

Ï

Establishment of quality control and assurance processes is necessary for data
collection and analysis. Typical quality control procedures include management
checking forms for completeness prior to submitting; staff (those responsible for
evaluation at the central level) checking for consistency and accuracy, and giving
feedback to the provider-level supervisors; and staff developing ways to resolve
errors in collected data forms.

Ï

All CCP administrators and managers should carefully review evaluation and
reporting requirements.

Ï

CCP award conditions require collecting information on specific forms in specific
formats. This should not limit the State or providers in collecting additional
information that will assist in both program improvement and process. The
specific required forms are detailed in the Notice of Grant Award (NOGA)
received by the State upon approval of a CCP.

Ï

CCP award conditions require database development and data delivery to CMHS
upon submission of each quarterly report and with the final report.

Data on service delivery must be collected using the Individual Crisis Counseling
Services Encounter Log, Group Encounter Log, and Weekly Tally Sheet—each a part of
the standard FEMA CCP data toolkit as approved by the OMB (OMB No. 0930–0270).
Three other tools—Participant Feedback Survey, Adult Assessment and Referral Tool,
and Service Provider Feedback Survey—are also included in the data toolkit and are
optional.
CCP Guidance Page 30 of 54

Ensuring Quality Assurance
The CCP is a time-limited program that must identify and address emergent issues
related to both disaster survivor needs and operational realities, while developing and
implementing solutions to improve program services. Quality assurance and quality
improvement activities are developed even before the program begins and assist the
State in reporting program highlights and issues to CMHS and FEMA through regular
program monitoring and reporting. Activities related to quality assurance include the
following:
Ï

Regular onsite supervision, training, and consistent communication between
CCP management and workers providing services.

Ï

Weekly meetings and regular submission of data collection forms.

Ï

Phone and e-mail communication whenever workers have questions or
concerns.

Ï

Collecting and organizing programmatic materials and data to continue to
improve service provision and educational materials.

Ï

Identifying problems or gaps in service through data and informant feedback.

Ï

Redirecting resources and modifying the service plan.

Ï

Conducting ongoing needs assessment.

Ï

Providing information to workers to improve services.

Supervision is a critical element of program management in the CCP. In the initial weeks
of the program, teams often meet twice daily; once in the morning to plan the day, and
again in the evening to process the day’s activities. Later in the program, supervisors
and teams meet weekly. This approach ensures that staff are adequately prepared to
provide effective services. Confident crisis counselors also are less likely to experience
stress.

CCP Administrative and Reporting Requirements
Consistent requirements exist in the areas of training, fiscal administration, reporting,
and service delivery. Programs develop a timeline to include due dates and responsible
staff in their program management plan. Administrative activities and reporting
requirements to consider in the program management plan include the following:
Training
4B

Ï

Documentation in quarterly reports of training sessions that have been held,
descriptions of the content of the sessions, and detail regarding the number
of people who attended. As highlighted in the training section of this
document, required training takes place throughout the program period and
should be planned in a proactive manner. Optional training may take place,
as deemed appropriate by State and project leadership.

CCP Guidance Page 31 of 54

Fiscal Administration
5B

Ï

Preparing the budget for the ISP and, as appropriate, RSP applications.

Ï

Establishing the State account and fiscal mechanisms to receive and
disburse CCP funds.

Ï

Establishing State fiscal mechanisms to coordinate disbursement of funds to
State service providers, including timely submission of bills from local service
providers. These must be documented in the applications and program reports.

Ï

Procuring and contracting with local provider agencies to provide ISP and
RSP services. Providers must be detailed in the CCP application.

Ï

Preparing an interim account of ISP funds for the ISP midprogram report
included in the RSP application.

Ï

Preparing and submitting quarterly fiscal reports to CMHS during the RSP.

Ï

Preparing a request for budget adjustments or additional disbursements of
funds in the RSP for submission to CMHS and FEMA, as indicated by
program financial needs.

Ï

Completing fiscal closeout of the CCP and submitting documentation to
FEMA and CMHS.

Administrative and Fiscal Reporting
6B

Ï

Administrative and fiscal reporting during the ISP are included as a
midprogram report in the RSP application if the State applies for an RSP.
Regardless of the submission of an RSP application, the program must
submit a final program and fiscal report to FEMA and CMHS 90 days
following the ISP program period end date.

Ï

Administrative reporting on a quarterly basis to CMHS is required throughout
the RSP, and a final program report is due to FEMA and CMHS 90 days
following the program end date. Fiscal reporting requirements are explained
in detail in section IV of the program guidance.

Service Delivery Data
7B

Ï

The State’s program management plan should include mechanisms to
collect, examine, and react to immediate and changing needs encountered by
crisis counselors. Frequent analysis of both CCP data and feedback provided
by staff allows the program to evolve to meet needs as they arise. States are
required to submit two electronic copies of their database containing up-todate program data with their programmatic quarterly and final reports.

CCP Guidance Page 32 of 54

Crisis Counseling Program
Guidance Materials

Section IV: Fiscal Administration

Introduction
Section IV of the program guidance is intended to assist applicants and local provider
organizations in budget preparation and fiscal monitoring of the CCP grant. This section
contains information about fiscal monitoring, budgeting and use of budget tables, and
fiscal reporting requirements. A detailed review of allowable expenses also is included.
This section is intended to provide an overview of fiscal administration; for further
information on related topics, refer to the other sections of the document.

The Influence of the CCP Model
Knowing the key concepts of the CCP model is important for effective fiscal
management. These concepts define what is fundable and determine the State’s fiscal
approach.
Ï

The CCP’s strengths-based, practical approach to mental health
determines what services are fundable. As a disaster relief program that
seeks to support a large number of survivors in a limited period of time, the CCP
has a very specific list of fundable services.

Ï

The CCP emphasizes face-to-face interventions with survivors in their
natural settings. The majority of CCP funding should be budgeted for
personnel, specifically for crisis counselors and team leaders who provide
services to disaster survivors. Therefore, staff should be dedicated to the
program in a full-time or significant part-time capacity (e.g., a full-time equivalent
[FTE] should consist of one or two people).

Ï

The CCP strengthens existing community support systems. As the CCP is a
temporary relief program, CCP funding should be used to reinforce natural
community resources by providing services and promoting collaboration, rather
than funding infrastructure enhancements.

Relationships Among the Needs Assessment, Plan of Services, and Budget
The needs assessment identifies who should be served. The plan of services presents
how they will be served. The budget determines how the services will be funded. CCP
funds can be used to provide services for survivors and at-risk populations identified in
the needs assessment. These three elements should be related to provide a clear
picture of how CCP funding will be used.
Activities included in the plan of services must appear in the line-item budget. Similarly,
anything included in the line-item budget must appear in the plan of services. Additional
details about services and positions typically funded under the CCP can be found in
appendices A and B.

CCP Guidance Page 34 of 54

Budgeting
Well-planned fiscal management depends on a well-prepared budget. An accurate budget allows for
the successful implementation, management, and operation of program services and activities, and
should reflect careful planning on the part of the applicant.
Budget Formats
8B

Several specific budget formats are required for the ISP and RSP applications. States must use
the budget formats detailed below and prepare them as described.
Suggested Budget Formats
Ï
Standard Form 424a Budget Information: Non-Construction Programs (SF–424a) (serves
as a total budget for the program).
Ï

State budget.

Ï

Individual provider budgets.

Ï

Estimated Funding section on the main Standard Form 424 (SF–424).

The individual provider, State, and SF–424a budgets must have consistent line items. As the
SMHA oversees the development of the application, it should work closely with providers to assist
them in developing consistent individual provider budgets. The budgets must be in accordance
with CCP expectations, part of a cohesive program, and reflective of the need identified in each
provider’s service area. The SMHA is responsible for ensuring that all fundable expenses detailed
in the plan of services are included in the budget (e.g., FTE staff, supplies, and
consultants/trainers).
The process for completing the budgets is as follows:
1. The individual provider line-item figures must be totaled and included in the State budget.
Those States which contract with service providers must roll the individual service provider
budgets into the total contractual line of the State budget. Those States which do not contract
with service providers must reflect all costs by line item in the State budget.
2. The State budget is then entered on SF–424a.
3. The SF–424a lines must then be included in the Estimated Funding section on the main SF–
424.
The Budget Narrative
9B

Each ISP or RSP budget narrative must justify the proposed budgets for the State and each
individual service provider budget. The narrative must provide a brief justification of the costs and
an itemization for each line of the budgets. Instructions for developing the budget narrative are
provided in appendix B.
Interim Costs
10B

The applicant may seek reimbursement for costs associated with crisis counseling services
provided from the date of incident to the date of the ISP application. The applicant must document
the crisis counseling services that have been provided and justify the costs. Documentation should
include the following:

CCP Guidance Page 35 of 54

Ï

Types of crisis counseling services provided.

Ï

Location of service provision.

Ï

Types of staff who provided the services.

Ï

Hourly rates of staff who provided the services.

Ï

Number of hours staff worked.

Ï

Types and number of recipients who received services.

Recipients of services in the immediate disaster response phase often include disaster survivors
and their families, first responders, and other individuals directly affected by the disaster. Typical
locations of service provision in the immediate disaster response include shelters, family
assistance centers, homes, or other community settings. Services often are provided by State
behavioral health agency staff, local behavioral health service provider staff, or members of
disaster behavioral health response groups. The applicant may seek reimbursement only for crisis
counseling services and not for any other type of behavioral health response.
As the ISP is supplemental disaster relief funding, the State is expected to provide in-kind disaster
response services. Typically, applicants seek reimbursement only for overtime pay for staff directly
employed by the State. The applicant may seek full reimbursement for direct State employees if it
can be clearly demonstrated that the normal duties of these State staff were back-filled during the
disaster response.
Full reimbursement of normal and overtime hours may be sought for contracted provider staff and
responders not affiliated with the State. Reimbursement must be based on the actual hourly rates
of the disaster responders.
Indirect Costs
1B

As a supplemental program, the CCP does not fund a line-item category for indirect costs. All
charges must be direct.
In-Kind Resources
12B

Regulations mandate that the applicant identify sources of in-kind contributions, as appropriate.
Some examples of typical in-kind resources include personnel; office and meeting space, utilities,
and equipment such as computers, printers, and mobile phones; transportation; advertising; and
public service announcements. Community or other groups, such as voluntary organizations
active in disaster or local faith-based organizations, may donate resources as well. Examples of
items donated by these groups include meals, refreshments for program-related meetings or
support groups, toys, meeting space, and recreational items.

The Importance of Effective Fiscal Management
Well-planned fiscal management is critical in the CCP. It allows funding to flow efficiently from the
Federal Government through the State to the providers serving disaster survivors. Effective financial
management provides clear accountability for audits and ensures appropriate use of taxpayer dollars.
Most importantly, it ensures the program is adequately budgeted, so it can meet the needs of disaster
survivors.

CCP Guidance Page 36 of 54

Fiscal Monitoring and Conditions of Award
State and local government agencies must conduct audits in accordance with the Single Audit Act of
1984, PL 98–502, implemented by OMB Circular A–133.
CCPs also are subject to Federal audits. States should keep CCP fiscal records and documents for 3
years following the last date of the program services period, even if a Federal audit is conducted
during that timeframe. Since a CCP includes several provider agencies, the State must identify and
describe a fiscal monitoring process that ensures accountability for these records. Independent fiscal
audits may be required as part of the conditions of award on grants exceeding $500,000.
As previously noted, grantees must comply with all conditions of award, as detailed in the NOGA
letter. The State must adhere to the approved budget to remain in compliance with the conditions of
award. Additional requirements related to fiscal monitoring may be included in the grant award letter,
as deemed appropriate by CMHS and FEMA.

Requests for Budget Adjustments
CCP funding is based on the needs of disaster survivors and other affected at-risk populations. A
needs assessment is conducted as part of both the ISP and RSP application process, but needs
assessment also should be an ongoing process to ensure that services meet the ever-changing
needs of survivors.
The SMHA is expected to incorporate mechanisms for an ongoing needs assessment into the CCP
and work with FEMA and CMHS Project Officers to adjust program planning and implementation
accordingly. Changes to the program plan may require that funding be moved from one line item to
another, or from one provider to another. States have the authority to move funds, up to a cumulative
10 percent of the total budget, from one line item to another without requesting approval. Any budget
adjustments that move a cumulative 11–24 percent of funds must be approved by the CMHS Project
Officer. Any budget adjustments that exceed a cumulative 25 percent of the total must be approved by
the SAMHSA grants management officer. Once this threshold has been exceeded, all modifications
must be approved. No funds may be moved in the training line item without prior approval. These
requests are accomplished through a Request for Budget Adjustment letter. A template for this letter
is included in the SAMHSA Disaster Response Grants Template for Budget Adjustment Request
available from the CMHS Project Officer. It is important to discuss all budget adjustments with FEMA
and CMHS Project Officers before submitting the formal request for adjustment.

Transfer of Funds
The funding processes are separate and distinct for the ISP and RSP. FEMA and CMHS strongly
advise the State to prepare for the transfer of funds.
Transfer of Funds in the ISP
13B

1. Prior to FEMA disbursement of funds, the SMHA and the State Emergency Management
Agency (SEMA) typically prepare to transfer funds between their agencies, if necessary. The
SMHA also is advised to consult with both State and local provider fiscal staff to ensure a
mechanism is in place to draw down and distribute funds immediately to area service providers
funded by the project.
2. FEMA advances all or part of the approved ISP funds to the SEMA. FEMA can obligate
funds within as little as 48 hours of the application approval. Disbursement of funds is
accomplished through SMARTLINK, FEMA’s electronic funds transfer system.
3. The SEMA transfers funds to the SMHA through customary State processes.
CCP Guidance Page 37 of 54

Transfer of Funds in the RSP
14B

Note: Unlike in the ISP, funds for the RSP are not transferred through SMARTLINK.
1. Funds for the RSP are transferred from FEMA to CMHS.
2. Funds are awarded by a grant from CMHS to the SMHA. The RSP must adhere to HHS
Public Health Service grant regulations and FEMA regulations.
3. The State is eligible to withdraw funds from the Payment Management System upon receipt
of a NOGA issued by the SAMHSA Division of Grants Management. Since the grant is
discretionary, States may not initially receive the total approved grant amount. It is typical for
FEMA to obligate a portion of the approved funds in an initial allotment.
4. The State’s request for an additional allotment of funds should be included in the first
quarterly report with a financial plan projecting the amount of funds required to complete the
project. An interim financial report also must be submitted with the first quarterly report.
States should use the Standard Form 425 Federal Financial Report (SF–425).
5. An additional allotment of funds is awarded to the State through another NOGA.
As the funding processes are distinct, the ISP-to-RSP transition is important. The State should
coordinate with its CMHS Project Officer to establish an RSP start date that will allow for a seamless
transition from ISP to RSP.

Preparing for Closeout
During the program period, funds should be obligated prior to the program period end date, as defined
in the NOGA.
Funds may be expended during the closeout period for administrative activities related to ending the
grant. Allowable closeout period costs include salaries and related costs for a minimal number of staff
to prepare program and fiscal reports, as well as supplies and office space rental fees during the
closeout period.

Fiscal Reporting and Closeout Requirements
Programmatic and fiscal reporting is required for the ISP and RSP. The following is a description of
the reporting requirements.
ISP Reporting
15B

ISP Midprogram Report
Ï
The ISP Midprogram Report is required only if the State is applying for an RSP. The State
must use RSP application Part III: Response Activities from Date of Incident to complete
this requirement. The report is due with the RSP application 60 calendar days from the
disaster declaration date. The midprogram report must include an interim fiscal report of
expenditures under the ISP.
27B

Ï

The ISP Midprogram Report is not required if the State is not applying for an RSP grant.

28B

CCP Guidance Page 38 of 54

ISP Final Program Report
Ï
The ISP Final Program Report is due to the FEMA Disaster Recovery Manager/Regional
Administrator 90 calendar days after the last day of ISP funding. If the State is awarded an
RSP grant, the report must describe the transition from immediate to regular services
activities.
ISP Final Accounting of Funds
Ï
This report must be prepared by the SMHA and is due 90 calendar days after the last day
of ISP funding. It must be included in the ISP Final Program Report and submitted to the
FEMA Disaster Recovery Manager/Regional Administrator. The final accounting must
explain how funds were expended by category and budget line for each agency and
service provider.
29B

Ï

A final voucher, prepared by the SEMA, must accompany the ISP Final Accounting of
Funds. States must use the Federal Financial Report SF–425. All obligations must be
liquidated, and the exact balance of funds must be indicated. The total expended funds
must be consistent with the line-item report. The State should coordinate closely with the
SEMA to ensure that the voucher and final accounting of funds are consistent and
accurate.

RSP Reporting
16B

RSP Quarterly Report
Ï
Two quarterly reports, including documentation on financial expenditures, must be
submitted to the CMHS Project Officer. Quarterly reports are due 30 calendar days after
the end of each 3-month reporting period. The quarterly report must include an interim
budget expenditure report showing (1) an approved budget, (2) costs incurred and
obligated expenditures, (3) approved budget modifications, and (4) an unspent balance for
each service provider. The report should be consistent with the cost categories and budget
line items listed in the approved budget. If only a portion of awarded funding was disbursed
at the start of the RSP, a letter of request for the second allotment of funds may be
submitted with the RSP First Quarterly Report.
30B

RSP Final Program Report
Ï
This report is due to the CMHS Project Officer 90 days following the final day of program
services.
31B

RSP Final Accounting of Funds Report
Ï
This report is due 90 days following the final day of program services and must contain two
documents: (1) a final expenditure report showing expenditures of funds by category and
budget line for each agency and service provider, as listed in the approved budget, and (2)
a final voucher. The final voucher should be the Federal Financial Report SF–425. All
obligations must be liquidated, and the exact balance of funds must be indicated. All
interest earned on Federal grant funds must be listed as additional income to the grant
program. The RSP Final Accounting of Funds Report must be submitted to the CMHS
Project Officer and the SAMHSA Division of Grants Management. The SMHA must
prepare the RSP Final Accounting of Funds Report; while the State’s financial accounting
office should prepare and authorize the voucher. The State should coordinate closely with
its financial accounting office to ensure the voucher and RSP Final Accounting of Funds
Report are consistent
32B

CCP Guidance Page 39 of 54

Appendix A: CCP Services, Positions, and Job Descriptions
PRIMARY CCP SERVICES
Brief Educational or Supportive Contact
Ï
Is less than 15 minutes in duration.
Ï
Provides basic educational or emotional support to individuals or groups
Individual Crisis Counseling
Ï
Is greater than 15 minutes in duration.
Ï
Helps disaster survivors understand their situation and reactions, review their options, and connect with
other individuals and agencies that may assist them.
Ï
Includes working with the family as a unit.
Ï
Staff are active listeners who provide emotional support.
Group Crisis Counseling
Ï
Provides group members with emotional support and helps them to understand their situation and
reactions and to review their options.
Ï
Assists group members with referral to other services and provides them with skills to cope with their
situation and reactions.
Ï
Group members do most of the talking.
Public Education
Ï
Provides general educational information to survivors on disaster services available and key concepts
of disaster mental health.
Ï
Common activities include public speaking at community forums, in-service group meetings, and local
government meetings.
Ï
Crisis counselor does most of the talking.
Assessment, Referral, and Resource Linkage
Ï
Assessment determines the need for referral to additional services, such as disaster relief or traditional
mental heath or substance abuse treatment.
Ï
Referral directs survivors to formal mental health or substance abuse treatment if they are experiencing
severe reactions.
Ï
Referral may also direct survivors to other disaster relief resources that meet a wide range of physical,
structural, or economic needs.
Ï
Resource linkage connects disaster survivors with health and behavioral health services, disaster
recovery resources, and tangible goods.
Community Networking and Support
Ï
Networking allows for stronger community coalitions to promote recovery and access to services.
Ï
Crisis counselors may be available at community events to provide a compassionate presence and
crisis counseling services.
SECONDARY CCP SERVICES
Distribution of Educational Materials
Ï
Typically includes flyers, brochures, tip sheets, guidance documents, or Web site content.
Ï
Includes topics such as basic disaster information, key concepts of disaster mental health, disaster
reactions and coping skills, and individual or community recovery or resilience.
Ï
Should include materials that address the needs of at-risk populations and are available in multiple
languages.
Media and Public Service Announcements
Ï
Refers to activities and public messaging conducted in partnership with media, State and local
governments, charitable organizations, or other community brokers of information.
Ï
Activities and messaging are designed to reach a large number of people in order to promote access to
CCP services or to provide basic information concerning disaster, key concepts of disaster mental
health, disaster reactions and coping skills, and individual or community recovery and resilience.
Ï
Venues for this messaging are varied and might include media interviews with CCP spokespeople,
television or radio public service announcements, use of Web sites or e-mail, or advertising.

CCP Guidance Page 40 of 54

Appendix A: CCP Services, Positions, and Job Descriptions
TYPICAL CCP POSITIONS AND JOB DESCRIPTIONS
State CCP Program Manager/Director
Ï
Acts as lead coordinator for State crisis counseling response and is main point of contact for FEMA.
Ï
Oversees staffing, training, reporting, and fiscal monitoring.
Ï
Works with other disaster service agencies to ensure nonduplication of services.
Ï
Conducts regular site visits to providers and accompanies crisis counselors as an observer to ensure
appropriate services are delivered.
Ï
In some cases, often with smaller CCPs, may be the State Disaster Mental Health Coordinator, i.e., the
individual identified by the SMHA as responsible for State disaster mental health preparedness and
response.
Team Leader
Ï
Leads a team of crisis counselors in the field.
Ï
Is usually an experienced disaster mental health worker or mental health professional who supervises
paraprofessional or less experienced crisis counselors.
Ï
May help to assess people who require traditional mental health or substance abuse treatment.
Ï
Depending on the size and scope of the disaster, providers may have more than one leader on staff.
Crisis Counselor
Ï
Works with individuals, families, and groups to provide outreach, basic support, individual and group
crisis counseling, public education, and referral.
Ï
Is synonymous with term “outreach worker.”
Administrative Assistant/Data Entry Clerk
Ï
Provides a full range of administrative support to the CCP and enters evaluation data.
Consultant/Trainer
Ï
Hired by the CCP to train program staff or provide consultation to program leadership.
Ï
Should be experienced in the CCP model.
Ï
Must be approved by FEMA and CMHS to conduct the trainings specified by the State.
Evaluation Coordinator
Ï
Implements and oversees the CCP evaluation plan.
Ï
Collects and analyzes data, collects provider and participant surveys, supervises data entry clerks,
reports data to FEMA and CMHS, and provides data analysis and feedback to State and provider
leadership staff to improve program services.
Fiscal Coordinator
Ï
Tracks and monitors funds, reviews and submits requests for program budget modifications to FEMA
and CMHS, and prepares fiscal reports.
Ï
Works closely with CCP leadership staff to ensure that funds are accessible to providers and are being
appropriately used for crisis counseling services.
ADDITIONAL POSITIONS ENCOUNTERED IN THE CCP
Provider Project Manager
Ï
Often found in larger provider components.
Ï
Acts as lead coordinator for the crisis counseling response at the provider agency and is main point of
contact for the State CCP program manager/director.
Ï
Oversees staffing, training, reporting, and fiscal monitoring for the provider.
Ï
Sometimes serves as a team leader.
Community Liaison
Ï
Facilitates entry on behalf of CCP into local communities and works with community organizations.
Ï
May serve as a cultural broker and as liaison between the CCP and a cultural group.

CCP Guidance Page 41 of 54

Appendix A: CCP Services, Positions, and Job Descriptions
ADDITIONAL POSITIONS ENCOUNTERED IN THE CCP
Media Liaison
Ï
Develops public information press releases.
Ï
Coordinates media events.
Ï
Develops informational and educational literature consistent with CCP programming and services.
Resource Linkage Coordinator
Ï
Provides intensive resource linkage for survivors struggling to access disaster relief assistance.
Ï
Networks with community resources to identify referral mechanisms.
Ï
Provides training to crisis counselors and other service providers regarding referral resources and
mechanisms.

CCP Guidance Page 42 of 54

Appendix B: Instructions for the Budget Narrative
INSTRUCTIONS FOR THE BUDGET NARRATIVE
Key Points for Each Line Item

Budget
Category
Salaries and
Wages

Fringe Benefits

Travel

Equipment

 Within the budget narrative table, list each position type and all relevant details, including the corresponding number of FTEs,
hours, weeks, rates of pay, and total cost.
 Indicate how rates of pay were determined. List sources used to make such determinations (e.g., U.S. Department of Labor).
 If rates differ from usual and customary rates for comparable positions in the local area, justify why pay rates differ.





Provide the rate of fringe for each provider.
Indicate whether the fringe benefits are based on usual and customary rates in the local area.
If the fringe rates are not comparable to the usual and customary rates for the local area, describe why the fringe rates differ.
List individual items that constitute the fringe benefits package.

 Provide the following list of travel expenses for program staff: number of estimated miles per week, number of weeks, and
established State mileage rate.
 Provide details on in-State airfare costs, lodging, and per diem rates.
 Consultant or trainer travel costs must be included in the consultants/trainers category.
 Itemize equipment and provide justification of equipment costs.
 Expenses less than $5,000 (e.g., mobile phones or computers) must be included in the supplies category.
Note: This line is reserved for individual equipment purchases exceeding $5,000.

Supplies

Consultants/
Trainers

 Itemize all supplies not normally stocked in a typical business office or covered by the negotiated indirect rate agreement (e.g.,
mobile phones, computers, pagers).
 Include a justification for each item.
 Itemize all consultant and trainer costs by identifying person, role, daily rate, and number of days.
 Identify the type of consultation or training that the individuals are providing.
 Provide a breakdown of transportation, lodging, and per diem rates (some travel costs may need to be estimated).
Note: Ensure all compensation complies with FEMA policy and established rates of pay.

Media/Public
Information

Other

 Provide a breakdown of expenses for pamphlets, flyers, educational materials, advertising expenses for staff recruitment, and
educational media and public information efforts.
Note: The State is encouraged to seek donated or matching media and marketing activities.
 List all other costs, and provide justification for these costs.
Note: Ensure all other costs are directly supported within the plan of services.

Note: As a supplemental program, the CCP does not fund a line-item category for indirect costs. All charges must be direct.

CCP Guidance Page 43 of 54

Appendix B: Instructions for the Budget Narrative
Budget Category

Fundable Expenses
Ï

Salaries and
Wages

Nonfundable Expenses

Salaries and wages for typical CCP
positions:
– Crisis counselor;
– Team leader (supervisor);
– Administrative assistant/data entry
clerk;
– Consultant/trainer (listed in personnel
only if a direct State or provider
employee);
– Evaluation coordinator;
– Fiscal coordinator;
– State CCP program manager/director;
– Provider project manager; and
– Community liaison.

Ï

Ï

Ï
Ï

Ï

Ï
Ï
Fringe Benefits
Ï

Travel
Ï
Ï
Equipment

Ï

Fringe benefit costs at the usual and
customary fringe benefit rate for State
and local providers.
Mileage reimbursement for crisis
counselors to travel to deliver services in
survivors’ homes, to meet with
community groups or agency personnel,
and to conduct or receive training.
The standard motor-pool cost if State
cars are used.
Reserved for equipment purchases
exceeding $5,000 per individual item.
Consult with the FEMA and CMHS
Project Officer prior to budgeting this
category.

Ï

Ï
Ï
Ï

Ï

Longer term, more formal mental health
services to existing or new clients, and
mental health professionals providing
these services including diagnosis and
therapy.
Longer term, more formal substance
abuse treatment to existing or new
clients, and paraprofessionals providing
these services.
Advocacy.
Formal critical incident stress debriefing
(CISD) services or critical incident
stress management (CISM) training.
Reimbursement for uncollected revenue
(e.g., if mental health workers respond
to the disaster and it results in fewer
Medicaid billings, the State will not be
reimbursed for these lost Medicaid
billings).
Supplanting existing State or provider
positions.
Fringe benefit costs above the
customary fringe benefit rate for
temporary State and local provider staff.
Out-of-State travel for CCP personnel.
Providing transportation for survivors.
Rental or leasing of vehicles, unless
unusual circumstances indicate that the
use of personal vehicles is not a
reasonable option.
Consult with the FEMA and CMHS
Project Officer for specific nonfundable
expenses.

CCP Guidance Page 44 of 54

Typical In-Kind Contributions
Ï

Salaries and wages of existing
State and local staff, such as
the State disaster mental
health coordinator and local
area provider agency
managers who dedicate a
percentage of time to the CCP
in addition to their existing
duties.

Ï

The State may offer to use the
motor-pool as an in-kind
contribution.

Appendix B: Instructions for the Budget Narrative
Budget Category

Fundable Expenses
Ï

Ï
Consultants/
Trainers
Ï

Ï
Ï

Nonfundable Expenses

CMHS-approved, qualified consultants
used to provide technical assistance or
consultation to State and local project
staff on program development and
project management.
CMHS-approved, qualified trainers used
to provide standardized CCP training or
training concerning special disasterrelated issues (e.g., cultural competence,
working with children, at-risk
populations).
For contracted consultants, the
maximum FEMA reimbursement rate is
$750 per day, which includes
preparation, materials, and travel time.
Travel costs, lodging, and per diem for
consultants.
Basic office equipment, such as
computers, mobile phones, printers,
pagers, fax machines, or photocopiers.

Ï
Ï
Ï
Ï
Ï
Ï

Ï
Ï
Ï
Ï

Supplies
Ï
Ï

Typical In-Kind Contributions

Consultants or trainers not approved by
CMHS.
Consultant charges exceeding $750 per
day.
Conferences or workshops not directly
related to the project.
Out-of-State training.
Disaster preparedness training.
CISD or CISM training.

Ï

Costs and time associated
with the use of State and local
in-house consultants.

Food and beverages.
Refreshments for meetings and
trainings.
Medications.
Toys or playground items for
recreational programs.
Disaster kits.
Video cameras, video recording
equipment, televisions, and other types
of video production equipment (see
Media/Public Information Efforts below).

Ï

Use of existing equipment,
such as office furniture,
computers, fax machines,
printers, or photocopiers.
Food and beverages.
Toys and recreational items.

CCP Guidance Page 45 of 54

Ï
Ï

Appendix B: Instructions for the Budget Narrative
Budget Category

Fundable Expenses
Ï
Ï
Ï
Ï
Ï
Ï

Media/Public
Information

Ï

Nonfundable Expenses

Advertisements to recruit crisis
counselors.
Educational materials, pamphlets, and
handouts.
Flyers or other materials to promote
access to CCP services.
Staff identification items, such as t-shirts
or name badges.
Media messaging and public service
announcements.
Duplication of appropriate existing
materials, such as FEMA and CMHS
disaster mental health materials, should
the State require more copies of these
materials than can be provided.
Video and multimedia product
development may be funded only if it is
carefully justified and the following three
criteria are met:
– No comparable resource is available
from another CCP, any Federal or
State agency, or any private entity;
– The State has provided a
comprehensive description of the
objectives and format of the product,
and has demonstrated the disaster
mental health expertise to develop a
quality product; and
– The product can be completed to be
used as an educational or training tool
during the CCP.

Ï

Ï
Ï

Items or activities not included as part
of the grant application program plan or
not approved by the FEMA and CMHS
Project Officers.
Disaster preparedness materials.
Expensive print, television, or radio
advertisements.

CCP Guidance Page 46 of 54

Typical In-Kind Contributions
Ï

For print advertisements and
broadcast time, FEMA and
CMHS advise that programs
seek donations as a public
service for space and airtime
announcements. If this is not
possible, list these media
costs as a budget item, and
provide ample justification in
the narrative.

Appendix B: Instructions for the Budget Narrative
Budget Category

Fundable Expenses
Ï

Nonfundable Expenses

The budget may identify costs that are
unique to the disaster and area impacted
but do not fall into one of the prescribed
categories.

Note: Costs must not be identified as
miscellaneous (i.e., they must be described
in detail).

Ï
Ï
Ï
Ï
Ï
Ï
Ï
Ï
Ï

Other

Ï
Ï
Ï

Ï
Ï
Ï
Ï

Typical In-Kind Contributions

Facility renovation, repair, or
construction.
Transportation for survivors.
Childcare.
Case management.
Diagnostic testing.
Toys or recreational equipment or
activities.
Food and beverages.
Refreshments
Video or multimedia recording
equipment.
Longer term, more formal mental health
services to existing or new clients.
Medications.
Longer term, more formal substance
abuse services to existing or new
clients.
Advocacy.
Financial assistance for survivors.
Fundraising activities.
Disaster preparedness

Categories Typically Listed as “Other”
17B

Budget Category

Fundable Expenses
Ï

Other:

Rental Office
Space

Ï

Ï
Other: Telephone
and Utilities

Nonfundable Expenses

Minimal office space for the management
and administration functions of the
program when donated space is not
available.
Appropriate telephone and utility costs
for CCP operations when not located
within existing SMHA or provider space.
Additional costs to conduct CCP
evaluation and data collection in
compliance with the Evaluating the
Reach, Quality, and Consistency of
Crisis Counseling Programs guidance.

Typical In-Kind Contributions

Ï

Facility renovation, repair, or
construction.

Ï

Office space within SMHA and
CCP provider facilities.

Ï

Telephone and utility charges not
directly related to CCP operations

Ï

Utilities such as heat, water,
or electricity.

Ï

Evaluation activities not in compliance
with the Evaluating the Reach, Quality,
and Consistency of Crisis Counseling
Programs guidance.
More formal research activities.

Ï

Note: As a supplemental program, the CCP does not fund a line-item category for indirect costs. All charges must be direct.
CCP Guidance Page 47 of 54

Appendix B: Instructions for the Budget Narrative
Required Supporting Documentation to be Maintained by the CCP
Salaries and Wages: Salary compensation must be reasonable in amount and supported by daily employee activity sheets (timesheets)
that document charged hours. Timesheets must be prepared by employees and be approved by management.
Fringe: Fringe benefits may be charged directly using established practices. Claimed costs must be reasonable in amount and conform to
an established policy. Use of a pre-established provisional rate requires allocation to total salary costs. Rates must be adjusted to actual at
year-end. Rates should be reviewed at least once annually. Direct charging requires equitable allocation and supporting documentation.
Indirect Costs: As a supplemental program, the CCP does not fund a line-item category for indirect costs. All charges must be direct.
Consultants: Consultant costs must be supported by a consulting agreement that documents the service to be performed, cost, and
applicable time periods. Documentation to support need, reasonability of rates, adherence to the FEMA training policy, and consultant
expertise must be maintained, together with evidence of work product.
Equipment: Acquisition of equipment for the project requires prior Government approval. Costs may be charged directly only for items fully
dedicated to the project. Costs associated with personal use are unallowable. Items that either benefit the organization as a whole or have
a useful life beyond the life of the project should be capitalized and depreciated; only applicable depreciation should be charged to the
grant.
Supplies: Supplies may be charged directly if used solely for the SAMHSA grant. Support in the form of invoices or payment receipts
should be maintained.
Travel: Travel must be preapproved and supported by travel expense reports detailing employee name, reason for trip, and itemized
expenses claimed. Claimed costs should be charged according to a detailed travel policy that requires prior approval, complies with OMB
Cost Principles, and provides expenditure limitations. Major items of expense (e.g., airfare, lodging) should be supported by receipts.
Expense reports should be reviewed for allowability prior to payment.
Other: Costs may be charged only if they are specific to the SAMHSA grant; costs must be supported by adequate documentation
(invoices, receipts, etc.).
Contracts: Contractual costs include all subcontracts and subrecipient grants. Costs should be awarded in accordance with the Code of
Federal Regulations. Agreements must be in writing and include a statement of work, applicable dates, and cost ceilings. Need and cost
and price analyses should be documented. Awards should be competitive; any sole-source awards must be adequately justified.

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Appendix C: Federal Financial Report SF-425

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Appendix D: Federal Financial Report SF-425 Instructions

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