Storm Exposed Disarray at the Top
The killer hurricane and flood that devastated the Gulf Coast last week exposed fatal weaknesses in a federal disaster response system retooled after the terrorist attacks of Sept. 11, 2001, to handle just such a cataclysmic event.
Despite four years and tens of billions of dollars spent preparing for the worst, the federal government was not ready when it came at daybreak on Monday, according to interviews with more than a dozen current and former senior officials and outside experts.
Among the flaws they cited: Failure to take the storm seriously before it hit and trigger the government's highest level of response. Rebuffed offers of aid from the military, states and cities. An unfinished new plan meant to guide disaster response. And a slow bureaucracy that waited until late Tuesday to declare the catastrophe "an incident of national significance," the new federal term meant to set off the broadest possible relief effort. [..]
If Hurricane Katrina represented a real-life rehearsal of sorts, the response suggested to many that the nation is not ready to handle a terrorist attack of similar dimensions. [..] Clark Kent Ervin, DHS's former inspector general [said] "it obviously raises very serious, troubling questions about whether the government would be prepared if this were a terrorist attack. It's a devastating indictment of this department's performance four years after 9/11." [..]
Indeed, the warnings about New Orleans's vulnerability to post-hurricane flooding repeatedly circulated at the upper levels of the new bureaucracy, which had absorbed the old lead agency for disasters, the Federal Emergency Management Agency, among its two dozen fiefdoms. "Beyond terrorism, this was the one event I was most concerned with always," said Joe M. Allbaugh, the former Bush campaign manager who served as his first FEMA head.
But several current and former senior officials charged that those worries were never accorded top priority -- either by FEMA's management or their superiors in DHS. Even when officials held a practice run, as they did in an exercise dubbed "Hurricane Pam" last year, they did not test for the worst-case scenario, rehearsing only what they would do if a Category 3 storm hit New Orleans, not the Category 4 power of Katrina. And after Pam, the planned follow-up study was never completed, according to a FEMA official involved. [..]
The roots of last week's failures will be examined for weeks and months to come, but early assessments point to a troubled Department of Homeland Security that is still in the midst of a bureaucratic transition, a "work in progress," as Mencer put it. Some current and former officials argued that as it worked to focus on counterterrorism, the department has diminished the government's ability to respond in a nuts-and-bolts way to disasters in general, and failed to focus enough on threats posed by hurricanes and other natural disasters in particular.
From an independent Cabinet-level agency, FEMA has become an underfunded, isolated piece of the vast DHS, yet it is still charged with leading the government's response to disaster.
"It's such an irony I hate to say it, but
we have less capability today than we did on September 11," said a veteran FEMA official involved in the hurricane response. "We are so much less than what we were in 2000," added another senior FEMA official. "We've lost a lot of what we were able to do then." [..]
After Hurricane Hugo hit in 1989 and Hurricane Andrew in 1992, federal response was panned, and FEMA was due for an overhaul. It got it in 1993, when
Clinton brought in James Lee Witt, a veteran emergency manager and political ally, to take over, granted the agency Cabinet-level status and gave it a highly visible role it had not previously had. Its response to crises such as the 1995 Oklahoma City bombing received high marks, though some Republicans complained that it was used as a pot of money doled out to bolster Clinton's political standing.
But after 9/11, FEMA lost out in the massive bureaucratic shuffle.
Not only did its Cabinet status disappear, but it became one of 22 government agencies to be consolidated into Homeland Security. For a time, recalled Ervin, even its name was slated to vanish and become simply the directorate of emergency preparedness and response until then-DHS Secretary Tom Ridge relented.
On Capitol Hill, lawmakers from hurricane-prone states fought a rear-guard action against FEMA's absorption. "What we were afraid of, and what is coming to pass, is that FEMA has basically been destroyed as a coherent, fast-on-its-feet, independent agency," said Rep. David E. Price (D-N.C.). [..]
Hurricanes were not totally absent from the calculations about the new department, according to several former Bush administration officials. Bush tapped his chief of staff, Andrew H. Card Jr., to supervise DHS's creation; a decade earlier, Card had been personally deputized by Bush's father to go to Florida and take charge of the much-criticized response to Hurricane Andrew.
"We definitely did worry about it," recalled Richard A. Falkenrath, who served as a White House homeland security adviser at the time DHS was being formed. "We knew we should do no harm to the disaster management side. The leadership of the White House knows the political significance of disasters."
From the day it came into existence on March 1, 2003, the department of 180,000 employees and a nearly $40 billion annual budget was tasked by a presidential directive with developing a comprehensive new plan for disasters. The National Response Plan was supposed to supersede the confusing overlay of federal, state and local disaster plans, and to designate a "principal officer in the event of an incident of national significance." [..]
"The problem was, who was in charge on 9/11? Who the hell knew? They kept asking and asking. You needed some clarity," Falkenrath recalled. "It was supposed to pull it all together. . . . But FEMA was grousing about that; they thought it was taking things away from them." [..]
Yet DHS in reality emphasized terrorism at the expense of other threats, said several current and former senior department officials and experts who have closely monitored its creation, cutting funding for natural disaster programs and downgrading the responsibilities and capabilities of the previously well-regarded FEMA. [..]
"The federal system that was perfected in the '90s has been deconstructed," said Bullock. Citing a study that found that the United States now spends $180 million a year to fend off natural hazards vs. $20 billion annually against terrorism, Bullock said, "FEMA has been marginalized.... There is one focus and the focus is on terrorism." [..]
By this year, almost three of every four grant dollars appropriated to DHS for first responders went to programs explicitly focused on terrorism, the Government Accountability Office noted in a July report. [..] At the same time,
the budget for much of what remained of FEMA has been cut every year; for the current fiscal year, funding for the core FEMA functions went down to $444 million from $664 million.
New leaders such as Allbaugh were critical of FEMA's natural disaster focus and lectured senior managers about the need to adjust to the post-9/11 fear of terrorism. So did his friend Michael D. Brown, a lawyer with no previous disaster management experience whom Allbaugh brought in as his deputy and who now has the top FEMA post.
"Allbaugh's quote was 'You don't get it,' " recalled the senior FEMA official, who spoke on the condition of anonymity. "If you brought up natural disasters, you were accused of being a pre-9/11 thinker." The result, the official said, was that "FEMA was being taxed by the department, having money and slots taken. Because we didn't conform with the mission of the agency." [..]
But experts in emergency response inside and outside the government sounded warnings about the changes at FEMA. Peacock said FEMA's traditional emphasis on emergency response "all went up in smoke" after 9/11, creating a "blind spot" as a result of a "police-action, militaristic view" of homeland security. When it came to natural disasters, "It was not only forgetting about it, it was not funding it."
Jack Harrald, director of the Institute for Crisis, Disaster, and Risk Management at George Washington University, said FEMA's natural disaster focus was nearly liquidated. "We ended up spending a lot of money on infrastructure protection and not the resiliency of the actual infrastructure," Harrald said. "The people who came in from the military and terrorist world thought we had the natural disaster thing fixed."
On the Friday before Katrina hit, when it was already a Category 2 hurricane rapidly gathering force in the Gulf, a veteran FEMA employee arrived at the newly activated Washington headquarters for the storm. Inside, there was surprisingly little action. "It was like nobody's turning the key to start the engine," the official recalled. [..]
In the run-up to the current crisis, Allbaugh said he knew "for a fact" that officials at FEMA and other federal agencies had requested that New Orleans issue a mandatory evacuation order earlier than Sunday morning.
But
DHS did not ask the U.S. military to assist in pre-hurricane evacuation efforts, despite well-known estimates that a major hurricane would cause levees in New Orleans to fail. In an interview, the general charged with operations for the military's Northern Command said such a request to help with the evacuation "did not come our way." [..]
Others who went out of their way to offer help were turned down, such as Chicago Mayor Richard M. Daley, who told reporters his city had offered emergency, medical and technical help as early as last Sunday to FEMA but was turned down. Only a single tank truck was requested, Daley said. Red tape kept the American Ambulance Association from sending 300 emergency vehicles from Florida to the flood zone, according to former senator John Breaux (D-La.) They were told to get permission from the General Services Administration. "GSA said they had to have FEMA ask for it," Breaux told CNN. "As a result they weren't sent."
