FEMA, within DHS, has responsibility for administering the provisions of  the Stafford Act. 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. The Post-Katrina Reform Act includes provisions that  address each of these issues. 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. GAO Recommendations Stress Changes in Leadership, Capabilities, and Accountability

In line with a recommendation we made following Hurricane Andrew, the  nation's most destructive hurricane prior to Katrina, we recommended  that Congress give federal agencies explicit authority to take actions to  prepare for all types of catastrophic disasters when there is warning. We  also recommended that DHS (1) rigorously retest, train, and exercise its  recent clarification of the roles, responsibilities, and lines of authority for  all levels of leadership, implementing changes needed to remedy identified  coordination problems; (2) direct that the NRP base plan and its  supporting Catastrophic Incident Annex be supported by more robust and  detailed operational implementation plans; (3) provide guidance and  direction for federal, state, and local planning, training, and exercises to  ensure such activities fully support preparedness, response, and recovery  responsibilities at a jurisdictional and regional basis; (4) take a lead in  monitoring federal agencies’ efforts to prepare to meet their  responsibilities under the NRP and the interim National Preparedness  Goal; and (5) use a risk management approach in deciding whether and  how to invest finite resources in specific capabilities for a catastrophic  disaster. However, there is little  information available on the extent to which these changes are operational  and they also have not yet been tested in a major disaster. 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. In the Post-Katrina Reform Act, Congress required FEMA to  make its logistics system more flexible and responsive. 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 multi-state planning and  preparation, (4) determining the status of preparedness exercises, and   (5) examining DHS polices regarding oversight assistance. The Post- Katrina Reform Act directs many organizational, mission, and policy  changes to respond to these findings and challenges. Homeland Security: Management and Programmatic Challenges Facing  the Department of Homeland Security. Catastrophic Disasters: Enhanced Leadership, Capabilities, and  Accountability Controls Will Improve the Effectiveness of the Nation’s  Preparedness, Response, and Recovery System.
Why GAO Did This Study

The Post-Katrina Emergency Management Reform Act of 2006 stipulates major changes to the Federal Emergency Management Agency (FEMA) within the Department of Homeland Security (DHS) to improve the agency's preparedness for and response to catastrophic disasters. For example, the act establishes a new mission for and new leadership positions within FEMA. As GAO has reported, DHS faces continued challenges, including clearly defining leadership roles and responsibilities, developing necessary disaster response capabilities, and establishing accountability systems to provide effective response while also protecting against waste, fraud, and abuse. This testimony discusses the extent to which DHS has taken steps to overcome these challenges This testimony summarizes earlier GAO work on: (1) leadership, response capabilities, and accountability controls; (2) organizational changes provided for in the Post-Katrina Reform Act; and (3) disaster management issues for continued Congressional attention.

What GAO Found

GAO reported in the aftermath of Hurricane Katrina that DHS needs to more effectively coordinate disaster preparedness, response, and recovery efforts. GAO analysis showed improvements were needed in leadership roles and responsibilities, development of necessary disaster capabilities, and accountability systems that balance the need for fast, flexible response with 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. Improved capabilities were needed for catastrophic disasters--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. Effectively implementing the provisions of the Post-Katrina Reform Act will address many of these issues, and FEMA has initiated reviews and some actions in each of these areas. But their operational impact in a major disaster has not yet been tested. As a result of its body of work, GAO's recommendations included that DHS (1) rigorously re-test, train, and exercise its recent clarification of the roles, responsibilities, and lines of authority for all levels of leadership; (2) direct that more robust and detailed operational implementation plans support the National Response Plan (NRP); (3) provide guidance and direction for all planning, training, and exercises to ensure such activities fully support preparedness, response, and recovery responsibilities at a jurisdictional and regional basis; (4) take a lead in monitoring federal agencies' efforts to prepare to meet their responsibilities under the NRP and the interim National Preparedness Goal; and (5) use a risk management approach in making its investment decisions. We also recommended that Congress give federal agencies explicit authority to take action to prepare for all types of catastrophic disasters when there is warning. In his oversight letter to Congress, the Comptroller General suggested that one area needing fundamental reform and oversight is ensuring a strategic and integrated approach to prepare for, respond to, recover, and rebuild from catastrophic events. Congress may wish to consider several specific areas for immediate oversight. These include (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 to enhance those capabilities; (3) examining regional and multi-state planning and preparation; (4) determining the status of preparedness exercises; and (5) examining DHS polices regarding oversight assistance.