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. As of February 2024, FEMA officials stated that they were continuing to work with the White House and senior executives across the federal government through an Interagency Policy Committee and the Recovery Support Function Leadership Group (RSFLG) to consider options to improve disaster recovery, including those identified by GAO. For example, FEMA has worked with SBA, HUD, OMB and other interagency partners to explore the viability of a single disaster assistance application, aligned with one of the options identified by GAO. As of February 2024, FEMA officials told us they were working with HUD to determine a path forward for HUD to be the inaugural partner in a consolidated application for individual disaster assistance. FEMA officials stated that they were not able to identify an approach for a consolidated application with SBA, but they were working together toward improved sharing of common applicant data elements and a "no wrong door" approach. According to FEMA officials, this approach would ensure that disaster survivors who could benefit from working with both agencies are fully aware of the types of assistance available to them and are appropriately guided directly into each Agency's intake process with their common data. FEMA's work through the Interagency Policy Committee, RSFLG, and directly with HUD and SBA on the possibility of a common application could help FEMA identify and take steps to better manage fragmentation between FEMA's disaster recovery programs and other federal programs, including consideration of the options in this report. To fully address this recommendation, FEMA will need to demonstrate that it has worked with interagency partners and thoroughly considered available options, identified those FEMA intends to implement, and then take steps to do so. By taking these steps, FEMA could improve service delivery to disaster survivors and communities; and improve the effectiveness of recovery efforts.
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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) |
The Department of Housing and Urban Development agreed with this recommendation. In March 2024, 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, FEMA and other partners are coordinating to share data to inform program and funding decisions for disaster survivor assistance. HUD anticipates completion of the data-sharing efforts to conclude in 2024. HUD officials also told us that HUD and FEMA completed the first round of a Disaster Housing Pilot to help communities assess housing needs prior to disasters. HUD anticipates conducting a second round of the pilot in 2024. In May 2023, officials also stated that HUD also was seeking public input on ways to improve CDBG-DR fund delivery and working with agency partners to improve the customer experience for survivors. To fully address this recommendation, HUD will need to demonstrate that it has worked with interagency partners and thoroughly considered available options, identified those HUD intends to implement, and then taken steps to do so. By taking these steps, HUD could improve service delivery to disaster survivors and communities; and improve the effectiveness of recovery efforts.
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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. However, the recommendation calls for DOT to work with federal partners to identify ways to reduce fragmentation across agencies and programs. DOT has described its ongoing participation in the Recovery Support Function Leadership Group and coordination with FEMA and other federal agencies, such as the US Army Corps of Engineers. However, it is unclear how, if at all, DOT is working with other federal agencies to identify ways to reduce fragmentation across federal programs. To fully address this recommendation, DOT will need to demonstrate that it has worked with interagency partners to consider available options to reduce fragmentation, identify those it plans to implement, and take steps to do so. By identifying and taking such steps DOT could improve service delivery to disaster affected communities and survivors and improve the effectiveness of recovery efforts.
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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 for its Individual Assistance and Public Assistance programs to reduce the complexity and time it takes to apply. According to FEMA documentation, as of February 2024, FEMA had begun implementing some of these changes, such as streamlining the online disaster survivor registration intake process in fall 2023. FEMA officials explained that they were 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 estimated that the changes to these forms will reduce the administrative burden by around 20 percent. FEMA officials stated that other changes, such as removing the requirement that survivors apply for an SBA loan before being considered for certain types of financial assistance, will go into effect for disasters declared after March 22, 2024. These steps, once fully implemented, could be a great start toward reducing fragmentation across FEMA programs. To fully address this recommendation FEMA will need to demonstrate that they have thoroughly considered available options to reduce fragmentation across its own programs, identified those FEMA intends to implement, and then taken steps to do so. By taking these steps, FEMA could make its programs simpler, more accessible, and more user-friendly, thereby improving their effectiveness.
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