Disaster Recovery: Actions Needed to Improve the Federal Approach
Fast Facts
The federal government has provided billions of dollars to communities recovering from disasters, such as floods, hurricanes, and wildfires. But federal disaster recovery programs are spread across more than 30 agencies, making it difficult for communities to figure out who to turn to for help. We recommended that federal agencies identify and take steps to better manage this fragmentation across these programs.
We also identified 11 options—including strengths and limitations of each—that could improve the federal approach to disaster recovery. Congress should consider establishing an independent commission that could recommend reforms.
Debris from Hurricane Irma in Marathon, Florida
Highlights
What GAO Found
The federal approach to disaster recovery is fragmented across more than 30 federal entities. This approach is the product of over 40 years of incremental efforts to address emerging issues in disaster recovery through legislative reform as well as differing agency regulations and policies.
There have been benefits to having multiple entities involved in disaster recovery, but it has also created challenges. Specifically, state and local officials GAO met with said that they experienced challenges navigating multiple federal recovery programs, including their differing requirements and time frames; multiple federal authorities; and limited data sharing. They noted that these challenges could make it harder for communities—and particularly vulnerable communities, such as lower income areas—to successfully navigate multiple federal programs. Congress and federal agencies have taken steps to address aspects of these challenges—by creating interagency agreements to increase communication and by reducing program complexity—but the challenges remain.
Based on a literature review, interviews with federal, state and local officials, and a panel of experts, GAO identified 11 options that could improve the federal approach to disaster recovery. Determining the best option is a policy choice and requires complex tradeoff decisions. Other than where GAO has made prior recommendations related to certain options, GAO does not endorse any particular option. This report identifies ways the options could be implemented and the strengths and limitations of each.
Options to Improve the Federal Government's Approach to Disaster Recovery
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1. Develop new efforts to clearly and consistently communicate about recovery programs. |
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2. Provide coordinated technical assistance throughout disaster recovery. |
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3. Develop models to more effectively coordinate across disaster recovery programs. |
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4. Develop a single online application portal for disaster recovery that feeds into one repository. |
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5. Standardize requirements of federal disaster recovery programs. |
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6. Simplify requirements of federal disaster recovery programs. |
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7. Further incentivize investments in disaster resilience as part of federal recovery programs. |
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8. Identify desired recovery outcomes and develop a mechanism to track these across programs. |
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9. Prioritize disaster recovery funding for vulnerable communities across all federal programs. |
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10. Consolidate federal disaster recovery programs. |
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11. Adjust the role of the federal government in disaster recovery. |
Source: GAO analysis of relevant literature; interviews with federal, state, and local officials; and a panel of experts. | GAO-23-104956
Experts who participated in GAO's panel agreed that the federal approach to disaster recovery needs to be improved. They discussed ways to make it more efficient and effective; better incentivize disaster resilience; and more equitably distribute assistance. No single federal entity or Congressional committee oversees disaster recovery as a whole. Establishing an independent commission to recommend disaster recovery reforms—including consideration of these 11 options—could provide Congress and agencies specific actions to improve the federal approach.
Short of government-wide reform, GAO found that agencies could do more to effectively manage fragmentation across federal disaster recovery programs. Doing so could improve service delivery to disaster survivors and communities; reduce federal fiscal exposure; and improve the effectiveness of recovery efforts.
Why GAO Did This Study
Each year, disasters such as floods, hurricanes, and wildfires affect hundreds of American communities. The federal government provides billions of dollars to support community recovery. According to the U.S. Global Change Research Program, extreme weather events are projected to become more frequent and intense in parts of the U.S. as a result of changes in the climate. This and an increasing reliance on federal assistance are key sources of federal fiscal exposure.
Federal law included a provision for GAO to review issues related to federal response and recovery following the 2018 disasters. This report addresses: 1) the federal approach to disaster recovery and challenges state and local officials have identified in using federal recovery assistance, and 2) actions Congress or federal agencies could take to improve the federal approach.
GAO analyzed relevant statutes, policies, and other documentation; interviewed state and local officials involved in recovery for a non-generalizable sample of nine disasters selected to capture a range of experiences; and convened 20 experts to discuss options for improving federal disaster recovery efforts.
Recommendations
Congress should consider establishing an independent commission to recommend reforms to the federal government's approach to disaster recovery. GAO is also making four new recommendations for agencies to identify and take steps to better manage fragmentation across disaster recovery programs. All three agencies concurred.
Matter for Congressional Consideration
| Matter | Status | Comments |
|---|---|---|
| Congress should consider establishing an independent commission to recommend reforms to the federal government's approach to disaster recovery, which may include the options identified in this report. (Matter for Consideration 1) | As of February 2024, Congress has not passed legislation that would address the matter. |
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| Federal Emergency Management Agency |
Priority Rec.
The FEMA Administrator should, in consultation with the Recovery Support Function Leadership Group, identify and take steps to better manage fragmentation between its disaster recovery programs and other federal programs, including consideration of the options identified in this report. If FEMA determines that it needs authority for actions that it seeks to implement, it should request that authority from Congress. (Recommendation 1) |
DHS agreed with this recommendation. In March 2024, FEMA stated that efforts to develop a single disaster assistance application with the Small Business Administration (SBA) and the U.S. Department of Housing and Urban Development (HUD) were unsuccessful. FEMA officials added that they need authority and funding to create a common application. They noted that the three agencies remain committed to working on a collaborative cross-agency approach including establishing consolidated application, aligned with one of the options identified by GAO. In December 2024, FEMA along with its partners in the RSFLG, issued an updated National Disaster Recovery Framework (NDRF). According to FEMA, the...
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| Department of Housing and Urban Development |
Priority Rec.
The Secretary of Housing and Urban Development should, in consultation with the Recovery Support Function Leadership Group, identify and take steps to better manage fragmentation between its disaster recovery programs and other federal programs, including consideration of the options identified in this report. If HUD determines that it needs authority for actions that it seeks to implement, it should request that authority from Congress. (Recommendation 2) |
HUD agreed with this recommendation. In February 2025, HUD officials stated they were continuing to coordinate with Federal partners through its role in the National Disaster Recovery Framework. HUD officials told us that HUD and FEMA continue to coordinate on sharing data to inform program and funding decisions for disaster survivor assistance. Officials reported they are finalizing plans to introduce a data sharing portal to expedite the process of sharing data with CDBG-DR grantees. In addition, HUD officials told us that HUD continues to partner with FEMA on a Disaster Housing Pilot to help states assess housing needs prior to disasters. HUD completed the second round of the pilot...
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| Department of Transportation | The Secretary of Transportation should, in consultation with the Recovery Support Function Leadership Group, identify and take steps to better manage fragmentation between its disaster recovery programs and other federal programs, including consideration of the options identified in this report. If DOT determines that it needs authority for actions that it seeks to implement, it should request that authority from Congress. (Recommendation 3) | The Department of Transportation agreed with this recommendation. In February 2024, DOT reported that it had taken steps to reduce fragmentation within own programs. For example, DOT officials noted that applicants to the Federal Transit Administration's (FTA) Emergency Relief Program use the same forms as applicants to other FTA discretionary funding programs. As of February 2025, DOT had established quarterly coordination meetings with FEMA to regularly communicate and coordinate on their respective programs. DOT has also hosted training sessions and policy discussions with FEMA. However, the recommendation calls for DOT to work with federal partners to identify ways to reduce...
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| Federal Emergency Management Agency |
Priority Rec.
The FEMA Administrator should identify and take steps to better manage fragmentation across its disaster recovery programs, including consideration of the options identified in this report. If FEMA determines that it needs authority for actions that it seeks to implement, it should request that authority from Congress. (Recommendation 4) |
DHS agreed with this recommendation. In response, FEMA has taken steps to streamline applications within its Individual Assistance, Public Assistance, and Hazard Mitigation Grant Programs to reduce the complexity and time it takes to apply. As of December 2024, FEMA coordinated with stakeholders on its Hazard Mitigation Grant Program to make that process more streamlined and standardized some program requirements. FEMA officials explained that they were also in the process of revising their Public Assistance intake forms to eliminate duplicate requests for information by pre-populating answers the applicant already provided. FEMA officials estimate that the changes to these forms will...
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