ISO/PRF TS 22393

TECHNICAL ISO/TS
SPECIFICATION 22393
First edition
Security and resilience — Community
resilience — Guidelines for planning
recovery and renewal
PROOF/ÉPREUVE
Reference number
ISO/TS 22393:2021(E)
ISO 2021
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ISO/TS 22393:2021(E)
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© ISO 2021

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Foreword ..........................................................................................................................................................................................................................................v

Introduction ................................................................................................................................................................................................................................vi

1 Scope ................................................................................................................................................................................................................................. 1

2 Normative references ...................................................................................................................................................................................... 1

3 Terms and definitions ..................................................................................................................................................................................... 1

4 Concepts in recovery and renewal ..................................................................................................................................................... 2

4.1 General ........................................................................................................................................................................................................... 2

4.2 Principles of recovery ....................................................................................................................................................................... 2

4.3 Principles of renewal ......................................................................................................................................................................... 3

4.4 Resilience partners for recovery and renewal ............................................................................................................. 4

4.5 Differentiating recovery and renewal ................................................................................................................................. 5

4.6 Impacts and needs to recover and renew ........................................................................................................................ 5

4.7 Cross-cutting systemic themes for planning recovery and renewal ......................................................... 6

4.8 Arrangements to activate recovery and renewal....................................................................................................... 7

5 Setting up a recovery coordination group ................................................................................................................................. 7

5.1 General ........................................................................................................................................................................................................... 7

5.2 Agreeing the membership of the RCG ................................................................................................................................. 7

5.3 Agreeing the terms of reference of the RCG ................................................................................................................... 8

5.4 Initiating the work of the RCG ................................................................................................................................................... 9

5.5 Accessing resources for recovery and renewal ........................................................................................................... 9

5.6 Communicating with interested parties ........................................................................................................................10

6 Assessing the impacts of the crisis and community needs ....................................................................................10

6.1 General ........................................................................................................................................................................................................10

6.2 Understanding the context of the crisis .........................................................................................................................10

6.3 Identifying themes on which to commission impact and need assessments ................................11

6.4 Designing and setting up the impact and need assessments .......................................................................12

6.5 Collecting information for the impact and need assessments ....................................................................14

6.6 Calculating net economic loss .................................................................................................................................................14

6.7 Analysing and presenting results from the impact and need assessments .....................................14

6.8 Selecting action areas to recover and renew .............................................................................................................15

7 Developing a recovery plan ....................................................................................................................................................................15

7.1 General ........................................................................................................................................................................................................15

7.2 Identifying transactional activity to implement in the recovery plan ..................................................16

7.3 Managing delivery of the recovery plan .........................................................................................................................16

8 Developing renewal strategies ............................................................................................................................................................16

8.1 General ........................................................................................................................................................................................................16

8.2 Organizing a renewal summit .................................................................................................................................................17

8.3 Identifying transformational initiatives to implement in the renewal strategies ......................18

8.4 Considering challenges to renewal .....................................................................................................................................19

8.5 Encouraging commitments to deliver the renewal initiatives ....................................................................19

9 Continuous improvement ........................................................................................................................................................................20

9.1 General ........................................................................................................................................................................................................20

9.2 Identifying lessons ............................................................................................................................................................................20

9.3 Acting on lessons ................................................................................................................................................................................21

9.4 Scenario planning and exercising future crises .......................................................................................................21

Annex A (informative) Examples of impact areas to consider in an impact and need assessment ..22

Annex B (informative) Examples of affected community groups to be considered in an

impact and need assessment ................................................................................................................................................................28

Annex C (informative) Example template for impact and need assessment ............................................................31

Annex D (informative) Example presentation of high-level results from the impact and

need assessments .............................................................................................................................................................................................33

Annex E (informative) Examples of how three action areas can be pursued as transactional

activities or transformational initiatives .................................................................................................................................34

Annex F (informative) Examples of transactional recovery activities for people, places and

processes ...................................................................................................................................................................................................................35

Bibliography .............................................................................................................................................................................................................................36

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The invasive and often far-reaching impacts of major emergencies, disasters and crises (such as

pandemics like COVID-19) can bring the need for short-term recovery and ambitious renewal of

communities. Such events disrupt normal conditions, expose system fragilities and have impacts that

can cause widespread suffering. This document provides a framework for how to assess the impacts of

major emergencies, disasters and crises on communities, and address these by planning transactional

Despite the sometimes complex and prolonged nature of responding to a crisis, the general planning

for recovery starts before a crisis happens. Tailoring those general recovery plans to the specific

conditions being faced in the crisis is initiated early, during the response. Tailored recovery plans can

be produced while the crisis is ongoing so that swift action can be taken at an appropriate time and

scale to begin the journey of recovery. In this context, recovery means different things to different

people but, in this document, recovery is the design, coordination, and delivery of transactional

activities to quickly overcome the negative impacts of a crisis to prepare for the next emergency and

initiate positive outcomes for communities. Recovery is delivered in the short term with the aims of,

for example, re-starting basic services, temporarily supporting livelihoods, providing governance, and

encouraging the new behaviours needed to enable work and social lives. These transactional activities

address immediate needs by reflecting on the crisis and learning lessons to inform future activities,

reviewing preparedness for future crises, and reinstating parts of the system impacted by the crisis.

While compelling in some situations, the goal of quickly “getting back to normal” is often too simplistic,

underestimates the disruption caused, and fails to reflect the opportunity to address chronic underlying

issues that have been exposed by the crisis. Such recovery should build preparedness following a crisis.

Beyond such transactional activity, the disruption caused by crises creates conditions that can

encourage major strategic change; what is called here “renewal”. In undermining much of what we regard

to be normal, and in bringing the intensity of vulnerability to each of our doorsteps, a crisis presents

a more radical opportunity where recovery is only the beginning. Renewal is the transformation of

parts of a system through longer-term, ambitious strategic initiatives that have been co-developed

with communities. Renewal should seek to reconcile broken relationships with communities, and to

improve and amend the shortcomings, inequalities and strategic vulnerabilities that were laid bare

by the impacts of the crisis and shown now to be insufficient as a basis for the future. This involves

changing the environment to create more favourable conditions or reshaping operations in the light of

In terms of what needs to be recovered and renewed, this document focuses on the people who have

been affected by the crisis, the places where the impact and response has happened, and the processes

that have been configured to meet the needs of the response. Key to addressing the people, places and

processes is the need to have the right partners to support recovery and renewal, and acknowledge the

emerging power relations to ensure that meaningful recovery and renewal can happen.

Recovery and renewal can aim to establish a new way of life that, in some cases, resembles life before

the crisis but that is also adapted to, and conditioned by, the crisis. For this, it is necessary to learn

during the crisis from what has happened as well as how communities and organizations in other cities/

The first reported cases of COVID-19 were identified in late December 2019 in Wuhan, Hubei Province,

China. Since then, COVID-19 has had devastating impacts globally in terms of loss of life, societal

wellbeing and economic stability, and has brought widespread concern among vulnerable persons.

Among other impacts, the virus has exposed systemic weaknesses in resilience capabilities, changed

how we interact with each other, and imposed new emergency legislation that has curtailed the freedom

of citizens. In March 2020, the World Health Organization (WHO) declared a pandemic.

The development of the guidelines in this document began during March 2020 in the early months of

the COVID-19 pandemic when a research project began to identify lessons on recovery from across the

world. Lessons were identified via 64 interviews with experts in risk, resilience and recovery and by

searching publicly available information for notable practices from across the world. After collecting this

information, analyses by researchers from The University of Manchester (UK) led to the development of

an early framework for recovery and renewal. That early framework was shared, critiqued, and refined

in small group meetings with a range of local and national government recovery practitioners. The

framework has been developed and shared through a document called “The Manchester Briefing on

COVID-19: International lessons for local and national government recovery and renewal” which, since

April 2020, has been disseminated weekly via a global distribution network. The framework has been

further shared via global webinars and other local and national dissemination activities – all seeking

feedback and improvements to align with good practice. The culmination of this work resulted in a set

of principles and approaches that were mature enough to be developed into guidelines for planning

This document presents the results from an international expert group that has further enhanced

those guidelines in alignment with their professional experience and their countries’ practices. The

aim of this document is to support an international community of recovery practitioners who will lead

national and local organizations as they deal with the aftermath of COVID-19. The virus has created

new challenges as well as opportunities for recovery on a scale that most resilience partners have not

before encountered. This encourages an important change in mindset from “recovery” to “recovery

and renewal” which reflects the need to quickly review preparedness for future crises and initiate

This document gives guidance on how to develop recovery plans and renewal strategies from a major

emergency, disaster or crisis (such as the COVID-19 pandemic). It provides guidelines on how to identify

the short-term, transactional activities needed to reflect and learn, review preparedness of parts of the

system impacted by the crisis, and reinstate operations to build preparedness. It also distinguishes a

longer-term perspective of recovery, called “renewal”. In describing renewal, the document provides

guidelines on how to identify visionary initiatives to address the strategic impacts and opportunities

that have been exposed by the crisis and need to be addressed through transformational, ambitious

initiatives. Recovery plans enhance preparedness following a crisis and renewal strategies enhance

resilience. The guidelines cover how, in both recovery and renewal, there is a need to identify scalable

This document is applicable to those involved in community, local, national and international recovery

and renewal including staff from public, private, voluntary, community and social enterprise sectors,

The following documents are referred to in the text in such a way that some or all of their content

constitutes requirements of this document. For dated references, only the edition cited applies. For

undated references, the latest edition of the referenced document (including any amendments) applies.

For the purposes of this document, the terms and definitions given in ISO 22300 and the following apply.

ISO and IEC maintain terminological databases for use in standardization at the following addresses:

operational, transactional and short-term activity to enhance preparedness following a crisis

Note 1 to entry: Recovery is focused on communities, i.e. the people, places and processes, and is underpinned by

strategic, transformational, systemic endeavour to build resilience following a crisis

Note 1 to entry: Renewal is more ambitious than recovery (3.2), potentially tackling chronic societal issues that

the crisis has exposed as offering significant opportunities to enhance people, places and processes.

collaborating entity that focuses on enhancing the ability of communities to absorb and adapt in a

Note 1 to entry: Local resilience partners are entities that collaborate in a geographic area.

The depth and breadth of impacts on communities from a major emergency, disaster or crisis can be

so widespread that “recovery” as a term is not suitably descriptive of the full spectrum of dealing with

the aftermath of the crisis. This document differentiates the short-term, transactional recovery of

— aims to design positive outcomes to enhance preparedness following a crisis by addressing the

— is a social and developmental process of supporting communities towards the management of their

own immediate future in a way that recognizes their different needs and priorities;

— is evidence-led in recovering the system based on a detailed appreciation of the impacts of the crisis;

— involves a series of short-term actions, each of which can be addressed by a transactional activity

— occurs at a pace that depends on the residual impact of the crisis, ongoing demands, backlogs, fatigue

— begins being planned during the preparedness phase so that recovery can begin as soon as is

feasible, even though it might not seem appropriate or possible to discuss it during response;

— is applicable to all levels of society (e.g. from national government through to individuals);

— covers a wide range of activities (e.g. environmental, cultural, technological, partnership working,

— reports to a group of local resilience partners that create and ensure local preparedness for crises.

— reflect and learn to understand what has happened during the crisis and its impacts, and to identify

where transactional change is needed to renovate the system and reinstate preparedness;

— review preparedness to assess where the system can be made more ready for other crises or future

— reinstate operations in parts of the system impacted by the crisis as soon as possible, such as getting

— co-develops, with communities, the vision of new foundations through transformational activity to

— focuses on ambitious, transformational change that can bring significant improvements, e.g. to

create a more resilient society through equality, equity, sustainability and prosperity;

— recognizes that a crisis has compromised societal foundations (e.g. by bringing about the exacerbation

of inequalities, the imposition of emergency legislation, the removal of liberties, undermining

cultural norms and redefining vulnerability) so those foundations are now insufficient on which to

— addresses enduring human, physical, environmental and economic strategic impacts and

opportunities through a complex social, developmental and political approach that takes a holistic,

— addresses impacts and opportunities that are so intractable, complex, far-reaching and multi-

perspective that complex interventions and wider partners are needed to address them satisfactorily;

— begins with a period of pause to appreciate what has happened during the crisis, giving time for

healing to begin, strategic thinking and wider strategic partners to be established;

— continues with a period of multiple strategic partners working to implement transformational

— reconciliation with people by developing new pathways for collective healing and renewed

relationships with people, particularly with those who have suffered systemic inequalities and

— reparations to people by compensating those affected by the crisis to make amends for their losses;

— repurposing places by reimagining how spaces can be used, their purposes, how people interact

— relocating to new places from understanding new local needs and by moving services into new

places where they are needed, or away from areas where they are no longer needed;

— regenerating places to improve the growth, prospects and strength of places to avert or reverse

decline and tackle inequalities by, for example, removing economic barriers, encouraging investment

— reshaping the external environment to create an operating context that better accommodates

external influences on internal activities, e.g. through influencing the expectations of services

— reorganizing processes by changing how activities are done to respond to environmental

requirements, e.g. to accommodate new behavioural, cultural, technical or process-related needs;

— repairing the system (people, places and processes) through the reconceptualization of a service’s

proposition, value, location and ethics through appreciating that it is no longer functional, has

violated its contract with beneficiaries, and needs to change broadly and fundamentally.

Effective collaboration with resilience partners is key to recovering and renewing from a crisis.

— sharing information, coordinating efforts, and promoting consistent media and communications

— coordinating the co-production of recovery plans and renewal strategies with communities to