However, in response to the events of September 11,  2001, the federal government has provided billions of dollars to state and  local governments for planning, equipment, and training to enhance the  capabilities of first responders to respond to terrorist attacks and, to a  lesser extent, natural and accidental disasters. First Responders are Responsible for Carrying out Emergency Management Efforts

The nation’s first responders have the lead responsibilities for carrying out  emergency management efforts. These attacks have resulted in greater public and  governmental focus on the role of first responders and their capabilities to  respond to large-scale emergency events. DHS  also plans to develop national strategies for assessing and reporting the  status of first responders’ capabilities, prioritizing federal, state, and local  resource investments to enhance these capabilities, and standardizing  training and exercise programs for first responders to practice and  improve emergency response capabilities. While NIMS defines “how” to  manage a large-scale emergency event and NRP defines “what” needs to be  done, the National Preparedness Goal is intended to generally define “how  well” it needs to be done. These stakeholder groups, called Integrated  Concept Teams, developed the three program implementation requirement  plans. Our analysis of DHS’s Target Capabilities List and our  discussions with first responders and other emergency management  stakeholders revealed that the capabilities required to address terrorist  attacks and to address natural and accidental disasters are most similar  for protection, response, and recovery, and differ most for prevention. Terrorist Attacks Share Common Characteristics with Natural and Accidental Disasters, and Most Preparedness Capabilities are Similar for All Emergency Events

Because terrorist attacks share many common characteristics with natural  and accidental disasters, many of the capabilities first responders need to  support national preparedness efforts are similar. The remaining   30 capabilities address preparedness for all hazards. As a result, all five of the prevention capabilities on DHS’s target  capabilities list focus exclusively on terrorist attacks. Legislative language has directed DHS to use these funds chiefly to  prevent, protect, respond to and recover from acts of terrorism. Additionally, HSPD-8 directs DHS to take an all-hazards approach to  national emergency preparedness with a special emphasis on terrorism. Appendix I: Homeland Security Presidential Directive 5

Appendix II: Homeland Security Presidential Directive 8

Appendix III: Objectives, Scope and Methodology

This report addresses the following questions: 1) What actions has DHS  taken to provide policies and strategies that promote the development of  the all-hazards emergency management capabilities of first responders? 2) How do first responders’ emergency management capabilities for  terrorist attacks compare to capabilities needed for natural or accidental  disasters? 3) What emphasis has DHS placed on funding awarded to state  and local first responders to enhance all-hazards emergency management  capabilities? Using a structured interview guide, we solicited local first responder  officials’ insights and perspectives on a variety of topics, including: the  extent to which DHS uses an all-hazards approach in assisting state and  local first responders’ emergency management capabilities, how DHS  coordinates its activities, how locations use federal homeland security  grant funds, what mechanisms DHS has in place to ensure that grant funds  are spent in accordance with grant guidelines, how local departments  assess and report their preparedness status, what gaps, if any, they believe  exist between current and needed capabilities in selected locations, and  what challenges, if any, they face in their emergency management  responsibilities.
Why GAO Did This Study

The events of September 11, 2001, have resulted in a greater focus on the role of first responders in carrying out the nation's emergency management efforts. The Department of Homeland Security (DHS) is the primary federal entity responsible for ensuring that first responders, such as police, fire, emergency medical, and public health personnel, have the capabilities needed to provide a coordinated, comprehensive response to any large-scale crisis. In the last 4 years DHS has awarded $11.3 billion to state and local governments to enhance capabilities, primarily to prevent, prepare for, respond to and recover from acts of terrorism. Presidential directives instruct DHS to develop a national all-hazards approach--preparing all sectors of society for any emergency event including terrorist attacks and natural or accidental disasters. This report addresses the following questions: (1) What actions has DHS taken to provide policies and strategies that promote the development of the all-hazards emergency management capabilities of first responders? (2) How do first responders' emergency management capabilities for terrorist attacks differ to capabilities needed for natural or accidental disasters? (3) What emphasis has DHS placed on funding awarded to state and local first responders to enhance all-hazards emergency management capabilities?

What GAO Found

DHS has undertaken three major policy initiatives aimed at creating a national, all-hazards coordinated and comprehensive response to large-scale incidents: (1) a national response plan (what needs to be done); (2) a command and management process (how it needs to be done); and (3) a national preparedness goal (how well it should be done). GAO reviewed these products and determined that each supports a national, all-hazards approach. DHS has developed plans to implement three related programs to enhance first responder capabilities: (1) to assess and report on the status of first responders' capabilities; (2) to prioritize national resource investments; and (3) to establish a national training and exercise program. Implementing these programs will likely pose a number of challenges for DHS including integrating internal and external assessment approaches, assessing state and local risks in a national context to effectively prioritize investments, and establishing common training requirements across responder disciplines. Because terrorist attacks share some common characteristics with natural and accidental disasters, 30 of DHS' 36 capabilities first responders need to support preparedness and response efforts are similar. GAO's analysis found that the baseline capabilities required for terrorist attacks and natural or accidental disasters are more similar for response and recovery and differ most for prevention. Because terrorist attacks are planned, intentional acts, all of DHS' prevention capabilities focus on terrorist attacks, while almost all other baseline capabilities focus on all hazards. Legislation and presidential directives call for DHS to place special emphasis on preparedness for terrorism and DHS has directed that the majority of first responder grant funding be used to enhance first responder capabilities to prevent, protect against, respond to, and recover from terrorist attacks. Nonetheless, grants funds can have all-hazards applications.