Federal Emergency Management Agency

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“FEMA” redirects here. For other uses, see FEMA (disambiguation).

New FEMA seal

The Federal Emergency Management Agency, or FEMA, is an agency of the United States Department of Homeland Security (DHS). FEMA's purpose is to coordinate the response to a disaster which has occurred in the United States and which overwhelms the resources of local and state authorities. The governor of the state in which the disaster occurred must declare a state of emergency and formally request from the President of the United States that FEMA and the Federal Government respond to the disaster. The only exception is when an emergency or disaster occurs on federal property or to a federal asset, for example the Alfred P. Murrah Federal Building in Oklahoma City, Oklahoma in 1995, or the Space Shuttle Columbia in 2003.

While on-the-ground support of disaster recovery efforts is a major part of FEMA's charter, the agency provides state and local governments with experts in specialized fields and funding for rebuilding efforts and relief funds for individual citizens and infrastructure, in conjunction with the Small Business Administration (SBA). FEMA also assists individuals and businesses with low interest loans. FEMA also provides funds for training of response personnel throughout the United States and its territories as part of the agency's preparedness effort.

[edit] History

Federal emergency management in the United States has existed in one form or another for over 200 years. The history of FEMA can be divided into the following parts.

[edit] Pre-1930

The first major disaster in the history of the United States was a series of devastating fires in the port city of Portsmouth, New Hampshire. The 7th Congress passed a number of measures in the Congressional Act of 1803, which provided relief for the merchants of Portsmouth by waiving duties and tariffs on goods. This is widely considered the first piece of legislation passed by the federal government that provided relief after a disaster and can be viewed as the beginnings of federal policies to provide relief after a disaster.

Between 1803 and 1930, ad hoc legislation was passed more than 100 times for relief or compensation after a disaster. Examples of these include the waiving of duties and tariffs to the merchants of New York City after a fire in the mid 1830s. After President Abraham Lincoln's assassination at Ford's Theatre, the 54th Congress passed legislation compensating those who were injured in the theatre.

[edit] Piecemeal Approach (1930s–1960s)

After the start of the Great Depression in 1929, President Herbert Hoover had commissioned the Reconstruction Finance Corporation (RFC) in 1932. The purpose of the RFC was to lend money to banks and institutions to stimulate economic activity. RFC was also responsible for dispensing federal dollars in the wake of a disaster. RFC can be considered the first organized federal disaster response agency.

The Bureau of Public Roads in 1934 was given authority to finance the reconstruction of highways and roads after a disaster. The Flood Control Act of 1944 also gave the U.S. Army Corps of Engineers authority over flood control and irrigation projects and thus played a major role in disaster recovery from flooding.

This section overlaps with other sections; it should be combined with the rest of the article.
Please post any comments on this issue on the talk page.

This "piecemeal approach" to disaster recovery was troubled by poor interagency cooperation and bureaucratic red tape.Until 1979, there was no single federal agency to carry out the various functions of disaster assistance and civil defense. From 1950 until 1979, Congress met the nation’s needs for disaster preparedness and assistance somewhat reactively, by enacting various forms of legislation in response to recognized needs.^[1] Over the years, Congress increasingly extended the range of covered categories for assistance, and several presidential executive orders did the same. By enacting these various forms of legislative direction, Congress established a category for annual budgetary amounts of assistance to victims of various types of hazards or disasters, it specified the qualifications, and then it established or delegated the responsibilities to various federal and non-federal agencies.^[2] In time, this expanded array of agencies themselves required reorganization, as the evidence of their history reflects. One of the first such federal agencies was the Federal Civil Defense Administration (FCDA), which operated within the Executive Office of the President (EOP). Then, functions to administer disaster relief were given to the President himself, who delegated to the Housing and Home Finance Administration; subsequently, a new office of the Office of Defense Mobilization was created; then, the new Office of Defense and Civilian Mobilization (ODCM), managed by the EOP; after that, the Office of Civil and Defense Mobilization, which renamed the former agency; then, the Office of Civil Defense, under the Department of Defense (DoD); the Department of Health, Education and Welfare (HEW); the Department of Agriculture; the Office of Emergency Planning (OEmP); the Defense Civil Preparedness Agency (replacing the OCD in the DoD); the Department of Housing and Urban Development(HUD) and the General Services Administration (GSA)(upon termination of the OEmP).^[3]

These actions demonstrated that during those years, the nation’s domestic preparedness was addressed by several disparate legislative actions, motivated by policy and budgetary earmarking, and not by a single, unifying, comprehensive strategy to meet the nation’s needs over time.^[4] Then, in 1978 an effort was made to consolidate the several singular functions; FEMA was created to house civil defense and disaster preparedness under one roof. This was a very controversial decision.^[5] Many felt the coordination of federal preparedness functions would be too challenging, and the needs of developing civil defense preparedness might lose its priority if it was included within the same organization handling natural disaster response. In the end, FEMA was created as the primary federal source for both financial and technical support assistance to victims in need of emergency aid. The controversy was not resolved by the decision, though. Those who managed the mandates of the agency still held their particular points of view concerning which function of FEMA was more important, civil defense or natural disaster preparedness, and the issue failed to resolve itself due to Congress’ prior history of placing value on policy and the budgetary concerns of the times. Eventually, these points of view developed their separate cultures within FEMA, causing a “stovepiping” within the agency, thus creating insularity and preventing a mutuality and collegial sharing of interests and resources.^[6] Many feel that the hybrid that FEMA became never was able to meld the two separate and distinct functions, those of counterterrorism and natural disaster management. They feel that this essentially unyielding dichotomy has created the several problems for which FEMA has been criticized over the years.^[7]

After FEMA’s creation through reorganization and executive orders, Congress continued to expand FEMA’s authority by assigning responsibilities to it. Those responsibilities include dam safety under the National Dam Safety Program Act; disaster assistance under the Robert T. Stafford Disaster Relief and Emergency Assistance Act; earthquake hazards reduction under the Earthquake Hazards Reduction Act of 1977 and further expanded by Executive Order 12699, regarding safety requirements for federal buildings and Executive Order 12941, concerning the need for cost estimates to seismically retrofit federal buildings; emergency food and shelter under the Stewart B. McKinney Homeless Assistance Act of 1987; fire control, under the Federal Fire Prevention and Control Act of 1974; hazardous materials, under the Emergency Planning and Community Right-to-Know Act of 1986; insurance, under the National Flood Insurance Act of 1968; national security, under the National Security Act of 1947, the Defense Production Act of 1950; and various executive orders under presidents Eisenhower, Reagan, H. W. Bush, Clinton, and G.W. Bush.^[8] In addition, FEMA received authority for counterterrorism through the Nunn-Lugar-Domenici amendment under the Weapons of Mass Destruction Act of 1996, which was a response to the recognized vulnerabilities of the U.S. after the sarin gas attack on the Tokyo subway in 1995.^[9] These actions reveal that no real effort was made to seriously unify the nation’s continuing and evolving needs for homeland security, beyond the act of creating a single agency to manage these different functions. Again, there was no overarching strategy to streamline and consolidate the functions and focus of FEMA. The actions of Congress continued to show a pattern of short-term responses to long-term needs. FEMA has had to manage its expanding responsibilities while sources of funding would vary year-after-year, as Congress would react and respond to various natural disasters and national security threats. Various mandates would have their own budgets, and even those were not dedicated from year to year. They were subject to recisions and reallocations as various other needs superseded them, requiring financial adjustments to budgetary limitations.^[10]

With the creation of the Department of Homeland Security, President G.W. Bush intended to rectify the causes of the criticisms that have continued to plague FEMA throughout the years. Yet, after the DHS’s creation in 2003, Hurricane Katrina in 2005 demonstrated that the vision of further unification of functions and another reorganization could not address the problems FEMA had previously faced. The Final Report of the Select Bipartisan Committee to Investigate the Preparation for and Response to Hurricane Katrina, released February 15, 2006 by the U.S. Government Printing Office, revealed that federal funding to states for “all hazards” disaster preparedness needs was not awarded unless the local agencies made the purposes for the funding a “just terrorism” function.^[11] Emergency management professionals testified that funds for preparedness for natural hazards was given less priority than preparations for counterterrorism measures. Testimony also expressed the opinion that the mission to mitigate vulnerability and prepare for natural hazard disasters before they occurred had been separated from disaster preparedness functions, making the nation more vulnerable to known hazards, like hurricanes.^[12] These issues continue to be debated, and have not been resolved with FEMA’s inclusion in DHS.

[edit] Department of Housing and Urban Development (1960–1979)

By the start of the 1960s, federal disaster relief and recovery was brought under the umbrella of the Department of Housing and Urban Development (HUD), which created the Federal Disaster Assistance Administration. This agency would oversee disasters such as Hurricane Carla in 1961, Hurricane Betsy in 1965, Hurricane Camille in 1969 and Hurricane Agnes in 1972, the Alaskan (Good Friday) Earthquake of 1964 and the San Fernando Earthquake of 1971.

Many government agencies were still involved in disaster relief; in some cases, more than 100 separate agencies might be jockeying for control and jurisdiction of a disaster.

[edit] FEMA as an Independent Agency (1979–2003)

FEMA seal before 2003

In 1979, President Jimmy Carter, at the prompting of the National Governors Association, signed Executive Order 12148 which put a new agency, FEMA, in charge of coordinating all disaster relief efforts at the federal level. FEMA absorbed the Federal Insurance Administration, the National Fire Prevention and Control Administration, the National Weather Service Community Preparedness Program, the Federal Preparedness Agency of the General Services Administration and the Federal Disaster Assistance Administration activities from HUD. FEMA was also given the responsibility for overseeing the nation's Civil Defense, a function which had previously been performed by the Department of Defense’s Defense Civil Preparedness Agency.

One of the first disasters FEMA responded to was the dumping of toxic waste into Love Canal in Niagara Falls, New York in the late 1970s. FEMA also responded to the Three Mile Island nuclear accident where the nuclear generating station suffered a partial core meltdown. These disasters, while showing the agency could function properly, also uncovered some inefficiencies.

In 1993, President Bill Clinton elevated FEMA to a cabinet level position and appointed James Lee Witt as FEMA Director. Witt initiated reforms that would help to streamline the disaster recovery and mitigation process. The end of the Cold War also allowed the agency’s resources to be turned away from civil defense to natural disaster preparedness.

[edit] FEMA under DHS (2003–Present)

President George W. Bush signs the Homeland Security Appropriations Act of 2004.

Following September 11th, 2001, President Bush created the Department of Homeland Security (DHS) to better coordinate among the different federal agencies that deal with law enforcement, disaster preparedness and recovery, border protection and civil defense. FEMA was absorbed into DHS as of 2003. As a result, FEMA became part of the Emergency Preparedness and Response Directorate of DHS, and employs more than 2,600 full time employees. In September 2003, Michael D. Brown, FEMA’s director and DHS Undersecretary, warned that the shift would make a mockery of FEMA’s new motto, "A Nation Prepared," and would "fundamentally sever FEMA from its core functions," "shatter agency morale" and "break longstanding, effective and tested relationships with states and first responder stakeholders." The inevitable result of the reorganization of 2003, warned Brown, would be "an ineffective and uncoordinated response" to a terrorist attack or a natural disaster. [Washington Post Dec 23, 2005]

FEMA and DHS both came under intense criticism for their handling of the Hurricane Katrina disaster in 2005 (see Katrina and Criticism sections below). As a result, FEMA Director Brown was relieved of command of the Gulf Coast region and resigned shortly thereafter.

[edit] Organization

Today FEMA exists as a major agency of the Department of Homeland Security. The Administrator for Federal Emergency Management reports directly to the Secretary of Homeland Security.

FEMA currently manages the National Flood Insurance Program. Other programs FEMA previously administered have since been internalized or shifted under direct DHS control.

The Administrator for Federal Emergency Management is R. David Paulison, who was confirmed to fill the position.

FEMA is home the Office of National Security Coordination (ONSC). ONSC is responsible for developing, exercising, and validating agency wide continuity of operations (COOP) and continuity of government (COG) plans as well as overseeing and maintaining COOP and COG readiness including the Mount Weather Emergency Operations Center. ONSC also coordinates the COOP and COG efforts of other Federal Executive Agencies.

[edit] Response Capabilities

FEMA's emergency response is based around small, decentralized teams trained in such as the National Disaster Medical System (NDMS), Urban Search and Rescue (USAR), Disaster Mortuary Operations Response Team (DMORT), Disaster Medical Assistance Team (DMAT), and Mobile Emergency Resource Support (MERS).

[edit] National Disaster Medical System (NDMS)

These teams provide medical and allied care to disaster victims. Teams are made up of doctors, nurses, pharmacists, etc., and are typically sponsored by hospitals, public safety agencies or private organizations.

Disaster Medical Assistance Teams (DMAT) provide medical care at disasters and are typically made up of doctors and paramedics. There are also National Nursing Response Teams (NNRT), National Pharmacy Response Teams (NPRT) and Veterinary Medical Assistance Teams (VMAT). Disaster Mortuary Operational Response Teams (DMORT) provide mortuary and forensic services. National Medical Response Teams (NMRT) are equipped to decontaminate victims of chemical and biological agents.

[edit] Urban Search and Rescue (US&R)

The Urban Search and Rescue Task Forces perform rescue of victims from structural collapses, confined spaces, and other disasters, for example mine collapses and earthquakes.

[edit] Mobile Emergency Resource Support (MERS)

These teams provide communications support to local public safety. For instance, they may operate a truck with satellite uplink, computers, telephone and power generation at a staging area near a disaster so that the responders can communicate with the outside world. There are also Mobile Air Transportable Telecommunications System (MATTS) assets which can be airlifted in. Also portable Cellphone towers can be erected to allow local responders to access telephone systems.

[edit] Training

FEMA offers a large number of training classes, either at its own centers, through programs at the state level, in cooperation with colleges and universities, or online. The latter are free classes available to anyone, although only those with U.S. residency or work eligibility can take the final examinations. More information is available on the FEMA website under the "Emergency Personnel" and "Training" subheadings. Other emergency response information for citizens is also available at its website.

[edit] Response to Major Disasters

[edit] Hurricane Andrew – 1992

See also: Hurricane Andrew

In August 1992, Hurricane Andrew struck the Florida and Louisiana coasts with 165 mph (265 km/h) sustained winds. FEMA was widely criticized for the agency’s response to Andrew, summed up by the famous exclamation, "Where in the hell is the cavalry on this one?" by Dade County, Florida, emergency management director Kate Hale. FEMA and the federal government at large were accused of not responding fast enough to house, feed and sustain the approximately 250,000 people left homeless in the affected areas. Within five days the federal government and neighboring states had dispatched 20,000 National Guard and active duty troops to South Dade County to set up temporary housing. FEMA had previously been criticized for its response to Hurricane Hugo, which hit South Carolina in September 1989, and many of the same issues that plagued the agency during Hurricane Andrew were also evident during the response to Hurricane Katrina in 2005.

[edit] Terrorist Attacks on September 11, 2001

See also: September 11, 2001 attacks

In the minutes after the first hijacked plane slammed into the World Trade Center towers, FEMA, as well as emergency services all over the city and state of New York, were mobilized. FEMA had deployed 25 of the 28 Urban Search and Rescue teams at its disposal to the World Trade Center site; however, the New York City Office of Emergency Management was in charge of the WTC recovery effort. FEMA played its largest role in the appropriation of federal funds to aid local and state governments in paying for the disaster. As of 2003, FEMA had received $5.5 billion USD to distribute among local and state agencies to help offset the cost of recovery. Within the $5.5 billion, FEMA was also allotted funds to pay for its own recovery efforts.

[edit] Hurricane Katrina – 2005

Evacuees taking shelter at the Reliant Astrodome.

See also: Criticism of government response to Hurricane Katrina

August 2005 saw one of the worst natural disasters in United States history. FEMA received intense criticism for its response to the disaster. FEMA had pre-positioned response personnel in the Gulf Coast region, however many were only able to report of dire situation along the Gulf Coast, especially from New Orleans. FEMA was responsible for the evacuation of the thousands of people who remained in New Orleans during the storm, as well as initial recovery work and appropriations. Within three days, a large contingent of National Guard and active duty troops were deployed to the region.

The enormous number of evacuees simply overwhelmed rescue personnel. The situation was compounded by flood waters in the city that hampered transportation and poor communication among the federal government, state and local entities. FEMA was widely criticized for what is seen as a slow initial response to the disaster and an inability to effectively manage, care for and move those trying to leave the city.

Then-FEMA Director Michael D. Brown was criticized personally for a slow response and an apparent disconnection with the situation. Michael Brown would eventually be relieved of command of the Katrina disaster and soon thereafter resign.

Katrina was seen as the first major test of the nation’s new disaster response plan under DHS. It is widely held that many things did not function as planned. However, formal investigations have yet to determine who exactly is to blame (and to what extent) for the Katrina disaster.

Pursuant to a temporary restraining order issued by Hon. Stanwood R. Duval, United States District Court Judge, Eastern District of Louisiana as a result of the McWaters v. FEMA class-action, February 7, 2006 was set as the deadline for the official end of any further coverage of temporary housing costs for Katrina victims. See Court orders on December 12, 2005 and January 12, 2006.

After the February 7 deadline, Katrina victims were left to their own devices either to find permanent housing for the long term, or to continue in social welfare programs set up by other organizations. There are many Katrina evacuees living in temporary shelters and/or trailer parks set up by FEMA and other relief organizations in the first months after the disaster hit, but many more are still unable to find housing.

A second round of evictions is tentatively planned for March 15th, and in response, activists from across the United States are holding a mass march in Washington, D.C. the afternoon of the previous day. Meanwhile, March 11th is said by many news sources to be the deadline for filing Hurricane Katrina disaster relief applications (though one source does mention this deadline applies only to those who have never contacted FEMA in regards to Katrina before).

The telephone number to receive disaster assistance from FEMA is 1-800-621-3362. Survivors of Katrina can learn more about FEMA assistance, and get forms for FEMA recertification, at a wiki web site FEMAanswers.org.

[edit] Buffalo Snowstorm – October 13, 2006

FEMA came under attack for their response to the October 2006 snowstorm in Buffalo, New York. Claims state that FEMA officials did not arrive until October 16th, three days after the storm hit. The damage by this time, which had been compared to that of Hurricane Katrina, included downed power wires, downed trees, and structural damage to homes and businesses.

[edit] Criticism

In 1997, James Bovard criticized FEMA for subsidizing rebuilding in places that are vulnerable to natural disasters, asking, "[D]o we really want to help rebuild homes and government property in areas that should never have been built on in the first place?" He also claimed that localities are less likely to fund their own snow removal if they know the federal government will bail them out in the event of snow emergencies [1]. Moreover, he said that FEMA is used by incumbent presidents to shore up political support [2]. The Cato Institute's Handbook for Congress argues that private companies could perform the tasks carried about by FEMA, and that this would encourage home construction in safer areas[3]:

Any time there is a natural disaster FEMA is trotted out as an example of how well government programs work. In reality, by using taxpayer dollars to provide disaster relief and subsidized insurance, FEMA itself encourages Americans to build in disaster-prone areas and makes the rest of us pick up the tab for those risk decisions. In a well-functioning private marketplace, individuals who chose to build houses in flood plains or hurricane zones would bear the cost of the increased risk through higher insurance premiums. FEMA's activities undermine that process. Americans should not be forced to pay the cost of rebuilding oceanfront summer homes. This $4 billion-a-year agency should be abolished.

FEMA does encourage disaster victims to reduce future losses by considering "taking steps to rebuild safer and smarter," advising them to [4]:

Take measures to reduce losses in the future;
Encourage community to participate in National Flood Insurance Program (NFIP);
Consider buying flood insurance.

South Florida newspaper Sun-Sentinel has an extensive list of documented criticisms of FEMA during the four hurricanes that hit the region in 2004.[5] Some of the criticisms include:

When Hurricane Frances hit South Florida on Labor Day weekend (over 100 miles north of Miami-Dade County), 9,800 Miami-Dade applicants were approved by FEMA for $28 million in storm claims for new furniture; clothes; thousands of new televisions, microwaves and refrigerators; cars; dental bills; and a funeral even though the Medical Examiner recorded no deaths from Frances. A U.S. Senate committee and the inspector general of the Department of Homeland Security found that FEMA inappropriately declared Miami-Dade county a disaster area and then awarded millions, often without verifying storm damage or a need for assistance. [6][7]
FEMA used hurricane aid money to pay funeral expenses for at least 203 Floridians whose deaths were not caused by the 2004 Hurricanes, the state's coroners have concluded. Ten of the people whose funerals were paid for were not even in Florida at the time of their deaths. [8]

Since Hurricane Katrina, some critics have called for FEMA to be removed from the Department of Homeland Security, saying that its position in the department badly hindered the agency's response, and that FEMA is beyond repair. Sen. Joe Lieberman called for Congress to dissolve FEMA and rebuild it from scratch, but within the Department of Health and Human Services.

A Senate panel has also come to the conclusion that it would be better to abolish FEMA. Sen. Susan Collins, R-Maine, who was the leader of an inquiry by the Senate said FEMA was in "shambles and beyond repair." The panel called for a new agency which will be called the National Preparedness and Response Authority if FEMA is abolished. The rest of the Senate panel's recommendations included less dramatic changes, such as creating a Homeland Security Academy, which would better prepare FEMA officials.

The Rex 84 program, short for Readiness Exercise 1984, was an alleged exercise to test the government's response to National Security threats through the internment of citizens. Many theories suggest that FEMA was a participant in this program. Some civil rights advocates and conspiracy theorists claim this program is proof that FEMA's role extends beyond the stated mission of the agency and into the policing of civilians. [9][10]

Other theories suggest that FEMA maintains internment camps throughout the United States. One popular online video walks viewers through an alleged camp in Beech Grove, Indiana. Conjecture in this arena has lead to the development of elaborate conspiracy theories regarding the coming of a "FEMA police state." [11]

[edit] List of FEMA Heads

As director of the agency:

James K. Hafer, E.O.P. Office of Emergency Preparedness, May 1975 – April 1979
Gordon Vickery (acting), April 1979 – July 1979
Thomas Casey (acting), July 1979
John Macy, August 1979 – January 1981
Bernard Gallagher (acting), January 1981 – April 1981
John W. McConnell (acting), April 1981 – May 1981
Louis O. Giuffrida, May 1981 - September 1985
Robert H. Morris (acting), September 1985 – November 1985
Julius W. Becton, Jr., November 1985 – June 1989
Robert H. Morris (acting), June 1989 – May 1990
Jerry D. Jennings (acting), May 1990 – August 1990
Wallace E. Stickney, August 1990 – January 1993
William C. Tidball (acting), January 1993 – April 1993

As Director of Cabinet-level agency:

James Lee Witt, April 1993 – January 2001
John Magaw (acting), January 2001 – February 2001
Joe M. Allbaugh, February 2001 – March 2003

As Undersecretary of Emergency Preparedness and Response within the Department of Homeland Security

Michael D. Brown, March 2003 – September 2005
R. David Paulison (acting), September 2005 (Deactivated)

As Director of the Federal Emergency Management Agency within the Department of Homeland Security

R. David Paulison (acting), September 2005 (Upgraded)

As Undersecretary for Federal Emergency Management within the Department of Homeland Security

R. David Paulison (acting), September 2005 – May 2006
R. David Paulison, May 2006 – March 2007

As Administrator of the Federal Emergency Management Agency within the Department of Homeland Security

R. David Paulison, March 2007 - Present

[edit] FEMA in Fiction

Most fictional representations play off the Agency’s supposed ability to assume dictatorial powers in the event of a catastrophic disaster.

In the film The X-Files, Alvin Kurtzweil tells Fox Mulder that FEMA is at the forefront of a global conspiracy, and is actually a secret government designed to take over when extraterrestrials begin colonization of Earth.
In the computer game Deus Ex, Walton Simons, who is also second in command of MJ12, is the director of FEMA. He apparently acquired this position by using a plague vaccine as a form of extortion.
In an episode of the TV cartoon series The Boondocks, Huey Freeman claims that "'nigga moments' are the biggest killer of young black males, right behind pork chops and FEMA."
In an episode of the TV series Jericho, in Episode 8 Rogue River.
In the 2006 movie Supervolcano by BBC TV programs, FEMA takes care of a volcanic winter that strikes all of a sudden Northern America from a fictious supereruptive situation of the Yellowstone Caldera.
comedian George Lopez joked on his stand up show called "America's Mexican" ,that F.E.M.A. means 'find every Mexican available' (in order to re-construct)