The DHS experiment is so far-flung that the department's leadership has focused much of its attention simply on the massive complications that resulted from creating one entity out of agencies as varied as the U.S. Coast Guard, the Immigration and Naturalization Service and the Transportation Security Administration. When Chertoff took office earlier this year, he made his top priority an entirely new bureaucratic reorganization less than two years after the department's creation, dubbed the "second-stage review." The review, still pending, recommends taking away a key remaining function, preparedness planning, from FEMA and giving it to "a strengthened department preparedness directorate."
The procedures for what to do when the inevitable disaster hit were also subjected to a bureaucratic overhaul, still unfinished, by the department. Indeed, just last Tuesday, as New Orleans was drowning and DHS officials were still hours away from invoking the department's highest crisis status for the catastrophe, some department contractors found an important e-mail in their inboxes.
Attached were two documents -- one more than 400 pages long -- that spelled out in numbing, acronym-filled detail the planned "national preparedness goal." The checklist, called a Universal Task List, appeared to cover every eventuality in a disaster, from the need to handle evacuations to speedy urban search and rescue to circulating "prompt, accurate and useful" emergency information. Even animal health and "fatality management" were covered.
But the documents were not a menu for action in the devastated Gulf Coast. They were drafts, not slated for approval and release until October, more than four years after 9/11.
"Basically, this is the rules of engagement for national emergency events, whether natural or manmade. It covers every element of what you would have expected to already have been in place," said the contractor who provided the e-mail to The Washington Post on the condition of anonymity because he feared jeopardizing his firm's work. "This is the federal government template to engage, and this is being discussed in draft form."
FEMA Lost in the Shuffle
Until 1979, the federal government had no one agency responsible for dealing with disaster.
But that year, President Jimmy Carter created FEMA out of a patchwork of smaller agencies. Born at the tail end of the Cold War, FEMA had a mission largely defined as nuclear fallout shelters and other civil defense measures, though in reality it dealt with "hurricane after hurricane," as Jane Bullock, a 22-year agency veteran who was FEMA chief of staff in President Bill Clinton's administration, noted.
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.). In creating DHS, "people were thinking about the possibility of terrorism," said Walter Gillis Peacock, director of the Hazard Reduction and Recovery Center at Texas A&M University. "They weren't thinking about the reality of a hurricane."
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.
