Voluntary Organizations: FEMA Should More Fully Assess Organization's Mass Care Capabilities and Update the Red Cross Role in Catastrophic Events
GAO-08-823
Published: Sep 18, 2008. Publicly Released: Sep 18, 2008.
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Highlights
Voluntary organizations have traditionally played a major role in the nation's response to disasters, but the response to Hurricane Katrina raised concerns about their ability to handle large-scale disasters. This report examines (1) the roles of five voluntary organizations in providing mass care and other services, (2) the steps they have taken to improve service delivery, (3) their current capabilities for responding to mass care needs, and (4) the challenges they face in preparing for large-scale disasters. To address these questions, GAO reviewed the American Red Cross, The Salvation Army, the Southern Baptist Convention, Catholic Charities USA, and United Way of America; interviewed officials from these organizations and the Federal Emergency Management Agency (FEMA); reviewed data and laws; and visited four high-risk metro areas--Los Angeles, Miami, New York, and Washington, D.C.
Recommendations
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| Department of Homeland Security | To help ensure that the Catastrophic Incident Supplement reflects the American Red Cross's current role under Emergency Support Function 6--Mass Care, Emergency Assistance, Housing and Human Services Annex (ESF-6) as a support agency for mass care, the Secretary of Homeland Security should direct the Administrator of FEMA to establish a time frame for updating the mass care section of the Supplement so that it is consistent with the changes in the ESF-6 under the new Framework, and no longer requires the Red Cross to direct federal government resources. In the meantime, FEMA should develop an interim agreement with the Red Cross to document the understanding they have on the Red Cross's role and responsibilities in a catastrophic event. |
FEMA and the American Red Cross signed a new memorandum of agreement in 2010 that clarifies each organization's responsibilities during a disaster. Under the new agreement, FEMA and the Red Cross will jointly lead the planning and coordination of mass care services in a disaster.
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| Department of Homeland Security | To more fully capture the disaster capabilities of major voluntary organizations that provide mass care services, the Secretary of Homeland Security should direct the Administrator of FEMA to take steps to better incorporate these organizations' capabilities into assessments of mass care capabilities, such as FEMA's GAP Analysis, and to broaden its assessment to include feeding capabilities outside of shelters. Such steps might include (1) soliciting the input of voluntary organizations, such as through National Voluntary Organizations Active in Disasters (NVOAD); (2) integrating voluntary organization data on capabilities into FEMA's analyses; and (3) encouraging state governments to include voluntary mass care organization data in studies. |
FEMA does not concur with this recommendation, but indicated that FEMA Voluntary Agency Liaisons and Mass Care staff continue to coordinate with National Voluntary Organizations Active in Disasters (NVOAD). However, there is no indication that FEMA has taken steps to better incorporate voluntary organizations' capabilities into assessments of mass care capabilities.
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| Department of Homeland Security | To help these voluntary organizations better prepare for providing mass care in major and catastrophic disasters, the Secretary of Homeland Security should direct the Administrator of FEMA to clarify the Homeland Security Grant Program funding guidance for states so it is clear that voluntary organizations and local Voluntary Organizations Active in Disaster (VOADs) are among those eligible to be subgrantees under the program. |
FEMA released updated guidance for the Homeland Security Grant Program in December 2009. This guidance clarifies that grant funds can be used to increase the capacity of non-governmental entities working to meet the human service response and recovery needs of victims. The guidance also specifies that grant funds can be used to engage private sector and non-governmental entities that are involved in disaster response.
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Agency missionsCharitable organizationsDisaster planningDisaster recoveryDisaster recovery plansDisaster relief aidEmergency managementEmergency medical servicesEmergency preparednessEmergency responseEmergency response personnelEmergency response proceduresFederal agenciesFederal aid to statesstate relationsFunds managementGrant monitoringHomeland securityHurricane KatrinaHurricanesLocal governmentsNatural disastersRelief agenciesStrategic planningVolunteer forcesVolunteer servicesDisaster housingAssessments