While keeping FEMA within DHS, the act  enhances FEMA’s responsibilities and its autonomy within DHS. FEMA continues to evolve within DHS  as it implements the changes required by the Post-Katrina Reform Act,  whose details are discussed later. Leadership Is Critical to Prepare for, Respond to, and Recover from Catastrophic Disasters

In preparing for, responding to, and recovering from any catastrophic  disaster, the legal authorities, roles and responsibilities, and lines of  authority at all levels of government must be clearly defined, effectively  communicated, and well understood to facilitate rapid and effective  decision making. As we have previously reported, developing the capabilities  needed for catastrophic disasters requires an overall national  preparedness effort that is designed to integrate and define what needs to  be done, where, and by whom (roles and responsibilities), how it should  be done, and how well it should be done—that is, according to what  standards. The nation’s experience with hurricanes Katrina and Rita reinforces some  of the questions surrounding the adequacy of capabilities in the context of  a catastrophic disaster—particularly in the areas of (1) situational  assessment and awareness, (2) emergency communications,   (3) evacuations, (4) search and rescue, (5) logistics, and (6) mass care   and sheltering. According to FEMA, the agency has described a number of  actions it has taken or has underway to address identified deficiencies in  each of these areas. Emergency Communications. Balance Needed between Quick Provision of Assistance and Ensuring Accountability to Protect against Waste, Fraud, and Abuse

Controls and accountability mechanisms help to ensure that resources are  used appropriately. Several Disaster Management Issues Should Have Continued Congressional Attention

In November 2006, the Comptroller General wrote to the congressional  leadership suggesting areas for congressional oversight. He suggested  that one area needing fundamental reform and oversight was preparing  for, responding to, recovering from, and rebuilding after catastrophic  events. Congress might consider starting with several specific areas for  immediate oversight, such as (1) evaluating development and  implementation of the National Preparedness System, including  preparedness for an influenza pandemic, (2) assessing state and local  capabilities and the use of federal grants in building and sustaining those  capabilities, (3) examining regional and multistate planning and  preparation, (4) determining the status of preparedness exercises, and   (5) examining DHS policies regarding oversight assistance. DHS Has Reorganized Pursuant to the Post- Katrina Reform Act

On January 18, 2007, DHS provided Congress a notice of implementation  of the Post-Katrina Reform Act reorganization requirements and additional  organizational changes made under the Homeland Security Act of 2002. As noted earlier, our analysis in the aftermath of Hurricane Katrina  showed the need for (1) clearly defined and understood leadership roles  and responsibilities; (2) the development of the necessary disaster  capabilities; and (3) accountability systems that effectively balance the  need for fast and flexible response against the need to prevent waste,  fraud, and abuse. DHS’s Office for Interoperability and Compatibility (OIC) was established  to strengthen and integrate interoperability and compatibility efforts to  improve local, tribal, state, and federal emergency preparedness and  response. Homeland Security: Management and Programmatic Challenges Facing  the Department of Homeland Security.
Why GAO Did This Study

As a new hurricane season approaches, the Federal Emergency Management Agency (FEMA) within the Department of Homeland Security (DHS) faces the simultaneous challenges of preparing for the season and implementing the reorganization and other provisions of the Post-Katrina Emergency Management Reform Act of 2006. The Act stipulates major changes to FEMA intended to enhance its preparedness for and response to catastrophic and major disasters. As GAO has reported, FEMA and DHS face continued challenges, including clearly defining leadership roles and responsibilities, developing necessary disaster response capabilities, and establishing accountability systems to provide effective services while protecting against waste, fraud, and abuse. This testimony (1) summarizes GAO's findings on these challenges and FEMA's and DHS's efforts to address them; and (2) discusses several disaster management issues for continued congressional attention.

What GAO Found

Effective disaster preparedness and response require defining what needs to be done, where and by whom, how it needs to be done, and how well it should be done. GAO analysis following Hurricane Katrina showed that improvements were needed in leadership roles and responsibilities, development of the necessary disaster capabilities, and accountability systems that balance the need for fast, flexible response against the need to prevent waste, fraud, and abuse. To facilitate rapid and effective decision making, legal authorities, roles and responsibilities, and lines of authority at all government levels must be clearly defined, effectively communicated, and well understood. Adequacy of capabilities in the context of a catastrophic or major disaster are needed--particularly in the areas of (1) situational assessment and awareness; (2) emergency communications; (3) evacuations; (4) search and rescue; (5) logistics; and (6) mass care and shelter. Implementing controls and accountability mechanisms helps to ensure the proper use of resources. FEMA has initiated reviews and some actions in each of these areas, but their operational impact in a catastrophic or major disaster has not yet been tested. Some of the targeted improvements, such as a completely revamped logistics system, are multiyear efforts. Others, such as the ability to field mobile communications and registration-assistance vehicles, are expected to be ready for the coming hurricane season. The Comptroller General has suggested one area for fundamental reform and oversight is ensuring a strategic and integrated approach to prepare for, respond to, recover, and rebuild after catastrophic events. FEMA enters the 2007 hurricane season as an organization in transition working simultaneously to implement the reorganization required by the Post-Katrina Reform Act and moving forward on initiatives to address the deficiencies identified by the post-Katrina reviews. This is an enormous challenge. In the short-term, Congress may wish to consider several specific areas for immediate oversight. These include (1) evaluating the development and implementation of the National Preparedness System, including preparedness for natural disasters, terrorist incidents, and an influenza pandemic; (2) assessing state and local capabilities and the use of federal grants to enhance those capabilities; (3) examining regional and multi-state planning and preparation; (4) determining the status and use of preparedness exercises; and (5) examining DHS polices regarding oversight assistance.