Preparing for Disasters: FEMA's New National Preparedness Report Released

Preparing for Disasters: FEMA's New National Preparedness Report Released

CRS Insights
Preparing for Disasters: FEMA's New National Preparedness Report Released
Jared T. Brown, Analyst in Emergency Management and Homeland Security Policy
(jbrown@crs.loc.gov, 7-4918)
August 12, 2014 (IN10134)
The United States is exposed to risk from numerous hazards, including natural disasters, acts of
terrorism, viral pandemics, and technical hazards such as the Deepwater Horizon oil spill. To help
reduce this risk, Congress requires the Federal Emergency Management Agency (FEMA) to develop
national policies on how the nation can better prepare for all hazards. These policy and planning
requirements are primarily found in the Post-Katrina Emergency Reform Act of 2006 (PKEMRA; P.L.
109-295). These legal requirements were reinforced and expanded with additional mandates in
President Barack Obama's 2011 Presidential Policy Directive 8: National Preparedness (PPD-8).
On August 6, 2014, FEMA released the 3rd annual National Preparedness Report (NPR). The annually-
developed NPR provides a retrospective analysis of the nation's progress towards achieving the
National Preparedness Goal of:
a secure and resilient Nation with the capabilities required across the whole community to prevent,
protect against, mitigate, respond to, and recover from the threats and hazards that pose the greatest
risk.
Table 1 summarizes completed preparedness policy documents that have been gradually released by
FEMA in fulfilment of PKEMRA and PPD-8 requirements. Many of these policies have precedents before
the enactment of PKEMRA. A week before the release of the latest NPR, FEMA published the final
National Planning Framework (addressing Protection) and Federal Interagency Operational Plans
(FIOPs) to accompany the Frameworks for Prevention, Mitigation, Response, and Recovery. The only
significant unreleased document is the National Protection Framework's FIOP.
Table 1. Published National Preparedness Policies
Related
PKEMRA
Title
Purpose
Provision
National
Provides the end-state objective for
6 U.S.C. §743
Preparedness
preparedness in the nation. Identifies the 31
Goal
core capabilities required to achieve the end-
state.
National
Describes elements of the national preparedness
6 U.S.C. §744
Preparedness
system that are needed to develop and sustain
System
the 31 core capabilities nationally.
Description
National
Acts as an annual "status report" assessing the
6 U.S.C. §752
Preparedness
nation's progress towards developing the 31
Report (past
core capabilities outlined in the National
version 2012 and Preparedness Goal.
version 2013 are
also available)
National Planning In general, the five Frameworks provide an

Frameworks
overarching strategy for how the whole
community can provide the necessary core
capabilities for each mission area. They also
identify the chief responsibilities and authorities

of states, local governments, the private and
non-profit sectors, and the public in each
mission area.
National
Encompasses the mission to avoid, prevent, or
No specific
Prevention
stop a threatened or actual act of terrorism.
provision, but
Framework
is an
additional
PPD-8
requirement.
National
Encompasses the mission to secure the nation
No specific
Protection
against acts of terrorism, and manmade or
provision, but
Framework
natural disasters.
is an
additional
PPD-8
requirement.
National
Encompasses the mission to reduce loss of life
No specific
Mitigation
and property by lessening the impact of
provision, but
Framework
disasters.
is an
additional
PPD-8
requirement.
National
Encompasses the mission to save lives, protect
6 U.S.C. §319
Response
property and the environment, and meet basic
Framework
human needs after a disaster.
National Disaster
Encompasses the mission to assist communities
6 U.S.C. §771
Recovery
effectively recover from the long-term
Framework
consequences of a disaster.
Federal
One FIOP to support each of the five National
6 U.S.C.
Interagency
Planning Frameworks. In general, they include a
§753(b)
Operational Plans federal concept of operations (CONOPs) on how
(FIOPs)
federal resources, personnel, and authorities will
(available
integrate with state/local to build and sustain
documents:
core capabilities. May also include detailed
Mitigation,
support function annexes, incident-specific plans,
Response, and
and other support material.
Recovery.
Prevention is For
Official Use
Only).
Source: CRS analysis of P.L. 109-295, PPD-8, and hyperlinked component policies.
In the latest assessment of national preparedness, the NPR incorporates an estimated 1,178 data
sources with information about national core capabilities. NPR data illustrate, for example, a 41%
increase in cyber incident reports to DHS from stakeholders in 2013. The Report also uses self-reported
data from expert stakeholders at the state and territorial level to identify the core capabilities requiring
the most improvement (such as cybersecurity and post-disaster housing) or to demonstrate relative
strength (such as providing on-scene security and protection, and operational communications during
incidents). The state-reported data also reveal, in the opinion of those surveyed, what capability gaps
the federal government is most responsible for addressing in the future, such as fatality management
services. (See Figure 3 of the NPR.)
Issues for Congress
The latest National Preparedness Report and each national preparedness policy described in Table 1
may have broad implications for homeland security. In its oversight of the nation's preparedness for all

hazards, Congress may wish to consider the following:
Do national preparedness policies conform to the full intent of all PKEMRA legal requirements? For
example, in the past, GAO has critiqued FEMA for lacking quantifiable performance metrics to
measure national preparedness capabilities, as is required by PKEMRA (6 U.S.C. §749). If certain
requirements have not been met, why not, and are those outstanding requirements pertinent to
national preparedness?
What effects have the NPR and other national preparedness policies had on the resource
allocation decisions of federal, state, and local government officials for homeland security
functions? Ultimately, for preparedness policies and the Report to serve a broader purpose, they
should influence decision makers as they dedicate future resources to address identified core
capability shortcomings and to fulfill their agencies' assigned roles in preparedness frameworks
and operational plans.
How are roles and responsibilities to federal departments and agencies under the National
Planning Frameworks and subsequent FIOPs assigned? These frameworks and plans delegate
varied amounts of additional homeland security responsibilities to departments and agencies
across the federal government. Are there instances where assigned responsibilities conflict with
the broader intent of Congress for each agency's missions? If so, Congress may wish to direct
alternative agencies to achieve the stated responsibility.
How effective are preparedness policies within each Member's own district or state? What are the
overall levels of community preparedness for the unique set of threats faced by each district or
state?