Continuity By Design: What a Prudent Pre-Disaster Purchase Program Really Looks Like

Moving communities from reactive response to continuity by design. Check out our next webinar on February 11, 2026 if you are interested in learning more!

Disasters are not random acts of fate. The storms, hurricanes, fires, and other extreme events that naturally occur are not disasters in themselves. What causes the disasters are the failures of power, water, communications, logistics, and finance—and communities that prepare for those failures recover faster, cheaper, and with far less human cost.

As we're seeing now in the aftermath of Winter Storm Fern, the difference between rapid recovery and prolonged suffering can come down to a simple question: Have communities done the hard work before the storm to secure access, negotiate contracts, and establish vendor relationships? Those that have will recover days, weeks, or even months faster. Those that haven't can face a scramble for resources at inflated prices with limited availability.

Yet most jurisdictions still approach pre-disaster procurement as either last-minute scrambling after the event or stockpiling supplies that expire, break, or sit unused.

There is a better way.

A prudent pre-disaster purchase program is not about warehouses or hoarding equipment. It is about pre-positioning access, contracts, decision authority, and financing so that when disruption occurs, communities can act within hours—not days.

At the Institute for Sustainable Development (ISD), we view this as a core element of community continuity architecture.

The Core Principle: Access Beats Ownership

The most resilient communities do not own everything they need. They have already done the hard work—before the crisis—to ensure:

• Priority access to suppliers

• Pre-negotiated pricing and surge clauses

• Pre-authorized spending authority

• Logistics and delivery plans that work when normal systems fail

Physical stockpiles are kept small, modular, and intentional, reserved only for items where delay would be catastrophic. The goal isn't warehousing everything but rather securing guaranteed access at predetermined prices.

What "Prudent" Actually Means

A well-designed program follows four non-negotiable principles:

1. Continuity Over Heroics

The goal is not perfection—it is minimum viable community function for the first 72 hours to two weeks. That means keeping hospitals open, water flowing, communications online, and basic commerce functioning.

2. Modular and Scalable

Resources are organized into deployable kits, not vague categories. Each module works independently and scales based on need.

3. Financial Readiness

If procurement authority is not cleared in advance, the response will fail. Spending thresholds, legal approvals, and audit requirements must be resolved before the event.

This requires creative funding mechanisms that don't strain normal operating budgets: FEMA Pre-Disaster Mitigation grants, state emergency management funding, capital improvement budgets for dual-use infrastructure, municipal bond provisions for resilience investments, or dedicated reserve funds built through small annual contributions.

4. Quiet Competence

The best programs are invisible to the public—until they are needed. No press releases. No improvisation. Just execution.

The Six Core Systems: What Fails First

A prudent program focuses on six systems that fail first and cascade fastest:

1. Power Continuity

Generators, fuel contracts, transfer switches, battery buffers, and load-planning tools to keep critical nodes alive. The key is identifying dual-use investments—a community generator that powers a recreation center during normal operations but serves as an emergency shelter backup during disasters justifies itself through daily use while providing crisis capability.

2. Communications & Connectivity

Satellite internet kits, priority cellular access, routers, and cabling to ensure command, coordination, and public information never go dark.

3. Water & Sanitation

Pre-arranged bottled water, treatment units, water purification systems, sanitation services, and basic testing to prevent secondary public-health crises.

4. Heating, Cooling & Shelter Support

Life-safety equipment for extreme heat and cold, paired with ventilation and carbon-monoxide protection for emergency shelters and critical facilities.

5. Medical & Cold Chain Continuity

Portable refrigeration, power redundancy, and resupply agreements to protect medications, vaccines, insulin, and oxygen at community health centers.

6. Food & Essential Goods Access

Agreements with distributors and retailers to keep food systems and payment access functioning, preventing community-wide commerce collapse.

The Power of the "Kit" Model

Instead of abstract line items, effective programs define deployable continuity kits that simplify procurement, training, deployment, and reimbursement.

For example:

• A Community Continuity Kit might include a generator, fuel plan, satellite connectivity, lighting, and deployment instructions—everything needed to stand up an emergency operations center or critical facility within hours.

• A Medically Fragile Resident Kit might include battery backup, refrigeration, and priority refueling access to protect vulnerable populations.

• A Communications Continuity Kit ensures emergency management teams can coordinate when normal systems fail.

Kits dramatically reduce friction during emergencies and create clear accountability for maintenance and readiness.

Stockpiling vs. Pre-Arranged Access

Not everything should be stored.

Stockpile only what is cheap, durable, and time-critical—cables, adapters, connectivity kits, emergency communications equipment, and deployment documentation.

Fuel, large equipment, and consumables are better handled through pre-event contracts with surge and priority clauses. This approach reduces waste, lowers costs, and increases flexibility while avoiding the trap of managing inventory that expires or degrades.

Some of the most valuable pre-disaster arrangements involve services rather than products: debris removal contractors, temporary housing providers, engineering and assessment firms, and construction companies. These agreements should include deployment timelines, pricing structures, and performance standards—creating a ready network when time is critical.

Regional Cooperation Multiplies Impact

Individual communities can accomplish much, but regional collaboration multiplies effectiveness:

• Joint purchasing agreements leverage collective bargaining power

• Shared warehousing reduces individual storage costs

• Mutual aid agreements extend resource access

• Coordinated planning prevents regional resource competition during disasters

The collective approach ensures no single disaster can overwhelm the resource pool.

Similarly, this approach can work for VOADs (Voluntary Organizations Active in Disasters) as well. One of the under-recognized assets of US disaster response is how much VOADs can contribute. However, there is often not as much coordination and collaboration between public, private and nonprofit organizations as there could be. Looking to cooperate across sectors can be enormously beneficial in terms of mobilizing resources.

Governance and Oversight

Effective programs require clear structures:

• Designated program managers with authority to execute pre-approved purchases

• Council or commission oversight for major commitments

• Regular inventory audits and contract reviews

• Integration with comprehensive emergency management planning

Transparency matters. Communities should publish their pre-disaster purchase inventories, contract summaries, and expenditure reports. This accountability builds public trust and ensures resources align with genuine community needs rather than vendor interests.

Why This Matters

Communities with prudent pre-disaster purchase programs:

• Make their first purchases within hours

• Avoid emergency sole-source contracts at inflated prices

• Protect hospitals and shelters from outages

• Reopen businesses sooner

• Recover faster—and at lower cost

• Document cleanly for FEMA and insurance reimbursement

Most importantly, they reduce avoidable suffering. ISD has seen this pattern repeatedly: jurisdictions with pre-positioned access demonstrate measurably faster recovery, often reopening critical services and commerce weeks or months ahead of unprepared neighbors.

What This Is Not

A prudent program is:

• Not a warehouse of random supplies

• Not a FEMA replacement

• Not a political talking point

• Not dependent on last-minute donations

It is infrastructure. It is governance. It is discipline.

Implementation Roadmap

Communities beginning this journey should start with assessment: What are your most likely disaster scenarios? What resources do your emergency plans identify as critical? What's your current response capacity?

From there:

Prioritize high-impact, dual-use purchases that justify themselves outside disaster contexts

Build vendor relationships gradually, testing smaller agreements before major commitments

Integrate pre-disaster purchases into capital improvement planning and emergency management training exercises

Measure success through cost savings versus emergency procurement prices, deployment speed, vendor performance during actual events, and inventory utilization rates

Most importantly, start now. The best time to negotiate generator contracts isn't during a power emergency. The ideal moment to establish debris removal agreements isn't when debris blocks your streets.

Building Community Continuity

Disasters will continue to happen. Supply chains will continue to fail.

The question is whether communities meet that moment with improvisation—or with prepared access, clear authority, and continuity by design.

At ISD, we help communities design pre-disaster purchase programs that actually work—aligned with emergency management, public finance, private-sector capacity, and federal reimbursement frameworks. Our approach combines emergency management expertise with economic development principles, ensuring resilience investments strengthen communities in calm times while providing crucial capacity during crises.

Strategic pre-disaster purchasing transforms uncertainty into preparedness, replacing panic with planning. For communities serious about resilience, the question isn't whether to invest in these programs—it's how quickly they can begin.

If you'd like help translating this framework into a local action plan—model resolutions, procurement language, or starter kits—the Institute for Sustainable Development is ready to assist and/or sign up for our next webinar to find out more. Contact us at info@isdus.org.