Experiences from Past Disasters Offer Insights for Effective Collaboration after Catastrophic Events
GAO-09-811, Jul 31, 2009
In the wake of the 2005 Gulf Coast Hurricanes, coordination and collaboration challenges created obstacles during the government's response and recovery efforts. Because of the many stakeholders involved in recovery, including all levels of government, it is critical to build collaborative relationships. Building on GAO's September 2008 report which provided several key recovery practices from past catastrophic disasters, this report presents examples of how federal, state, and local governments have effectively collaborated in the past. GAO reviewed five catastrophic disasters--the Loma Prieta earthquake (California, 1989), Hurricane Andrew (Florida, 1992), the Northridge earthquake (California, 1994), the Kobe earthquake (Japan, 1995), and the Grand Forks/Red River flood (North Dakota and Minnesota, 1997)--to identify recovery lessons. GAO interviewed officials involved in the recovery from these disasters and experts on disaster recovery. GAO also reviewed relevant legislation, policies, and the disaster recovery literature.
Effective collaboration among stakeholders can play a key role in facilitating long-term recovery after a catastrophic event. Toward that end, GAO has identified four collaborative practices that may help communities rebuild from the Gulf Coast hurricanes as well as future catastrophic events: (1) Develop and communicate common goals to guide recovery. Defining common recovery goals can enhance collaboration by helping stakeholders overcome differences in missions and cultures. After the Grand Forks/Red River flood, federally-funded consultants convened various stakeholders to develop recovery goals and priorities for the city of Grand Forks. The city used these goals as a basis to create a detailed recovery action plan that helped it to implement its recovery goals. (2) Leverage resources to facilitate recovery. Collaborating groups bring different resources and capacities to the task at hand. After the Northridge earthquake, officials from the Federal Highway Administration and California's state transportation agency worked together to review highway rebuilding contracts, discuss changes, and then approve projects all in one location. This co-located, collaborative approach enabled the awarding of rebuilding contracts in 3 to 5 days--instead of the 26 to 40 weeks it could take using normal contracting procedures. This helped to restore damaged highways within a few months of the earthquake. (3) Use recovery plans to agree on roles and responsibilities. Organizations can collectively agree on who will do what by identifying roles and responsibilities in recovery plans developed either before or after a disaster takes place. Learning from its experiences from the Loma Prieta earthquake, San Francisco Bay Area officials created a plan that clearly identifies roles for all participants in order to facilitate regional recovery in the event of a future disaster. (4) Monitor, evaluate, and report on progress made toward recovery. After the 1995 earthquake, the city of Kobe and the surrounding region established processes to assess and report on recovery progress. These jurisdictions required periodic external reviews over 10 years on the progress made toward achieving recovery goals. As a result of one of these reviews, the city of Kobe gained insight into unintended consequences of how it relocated elderly earthquake victims, which subsequently led to a change in policy. Past recovery experiences--including practices that promote effective collaboration--offer potentially valuable lessons for future catastrophic events. FEMA has taken some steps to facilitate the sharing of such experiences among communities involved in disaster recovery. However, the agency can do more to build on and systematize the sharing of this information so that recovery lessons are better captured and disseminated for use in the future.
- Review Pending
- Closed - implemented
- Closed - not implemented
Recommendation for Executive Action
Recommendation: To improve the ability of the federal government to capture and disseminate recovery information, the Secretary of Homeland Security should direct the Administrator of FEMA to establish a mechanism for sharing information and best practices focused on disaster recovery, including practices that promote effective collaboration such as those discussed in this report. Options for doing this could include (1) creating an approach, similar to the Lessons Learned Information Sharing (LLIS) Web site or the mitigation best practices portfolio, through which disaster recovery lessons can be compiled and shared, and personal networks among interested recovery officials encouraged; and/or (2) modifying the LLIS Web site to add a focus on recovery by taking steps such as including more recovery documents, creating a recovery topic area within LLIS, and creating an online directory for recovery officials to encourage networking and facilitate further sharing of recovery experiences.
Agency Affected: Department of Homeland Security
Comments: In its 60-day letter for GAO-10-811, FEMA confirms that the agency concurs with GAO's recommendation and outlines some steps it has taken to address it. Specifically, the letter states that in 2011 conversations are underway with the managers of the DHS Lessons Learned Information Sharing system (LLIS) to "maximize the platform for exchanging recovery lessons learned." The letter further notes that managers of the LLIS have agreed to establish a Recovery topic page and that FEMA's Recovery Directorate will assist by providing material with which to populate the site. In addition to these steps, FEMA states that its Recovery Directorate plans to make this type of information available to a broader public audience through the National Disaster Recovery Framework (NDRF), web releases, and other information sharing mechanisms. GAO is currently seeking additional details and supporting documentation demonstrating that these actions have been implemented.