Federal Disaster Assistance:
FEMA's Progress in Aiding Individuals with Disabilities Could Be Further Enhanced
GAO-17-200: Published: Feb 7, 2017. Publicly Released: Feb 7, 2017.
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What GAO Found
The Federal Emergency Management Agency (FEMA) has taken steps to improve its disaster services for people with disabilities and its support to other entities, such as state and local governments. FEMA established the Office of Disability Integration and Coordination (ODIC) following enactment of the Post-Katrina Emergency Management Reform Act of 2006 (Post-Katrina Act) to lead the agency's efforts to promote inclusiveness in disaster planning, response, and recovery. However, there is no established procedure for FEMA Regional Administrators, who oversee disability integration staff in the regions, to involve ODIC in the activities of these staff. As a result, regions vary in the extent to which they consult with ODIC, which has led to a lack of clarity in regional disability integration staff roles, a lack of awareness of potentially underperforming staff, and inconsistent communication between the regions and headquarters. Federal internal control standards state that organizational structures should allow the organization's components to communicate information necessary to fulfill their respective responsibilities. Communication gaps between ODIC and the regions may prevent regional disability integration staff from effectively supporting state and local governments in meeting the needs of individuals with disabilities affected by disasters. ODIC also has not established goals for how many state and local emergency managers should take its key training on integrating the needs of individuals with disabilities into disaster planning. Nor has ODIC evaluated alternative methods to deliver the training more broadly, such as virtually in addition to classroom training. As a result, state and local emergency managers may be ill-prepared to provide effective disaster services to those with disabilities.
FEMA and other entities assist individuals with limited English proficiency by translating information on disaster assistance programs. FEMA provides information about its assistance programs using print materials in other languages, bilingual staff, and a helpline with translators for more than 50 languages. State, local, and voluntary organizations also disseminate information on health and safety information, such as evacuations and sheltering: In five of the six disasters GAO reviewed where translation was needed, these entities reported using a range of services, from bilingual staff to multilingual helplines.
FEMA worked with the National Center for Missing and Exploited Children (NCMEC) to establish a national call center designed to field calls with information about children separated from their families during disasters. NCMEC also maintains a registry that serves as a web-based repository created to collect this information. However, according to FEMA officials, no disasters since Hurricane Katrina have required national child reunification support. Nevertheless, FEMA continues to work with NCMEC on maintaining reunification resources, such as by funding the deployment of NCMEC personnel following disasters.
Why GAO Did This Study
In 2005, individuals with disabilities, individuals with limited English proficiency, and families with children were disproportionately affected by Hurricane Katrina. For example, some of those who had to abandon their wheelchairs could not evacuate because they were unable to wait in long lines for evacuation buses. The Post-Katrina Act required FEMA and other entities to take certain actions to assist these individuals, such as through the establishment of a Disability Coordinator within FEMA. GAO was asked to examine implementation of the Post-Katrina Act.
This report assesses the extent to which FEMA and other entities provide disaster services to individuals with disabilities, individuals with limited English proficiency, and children in need of family reunification. GAO examined federal, state, and local disaster assistance efforts for six major disasters that occurred from March 2014 through October 2015, where federal response and recovery efforts included assistance to the three target groups and that varied in location and type of disaster. GAO interviewed relevant officials, visited three of the six sites, and analyzed emergency operations plans and disaster summary reports.
What GAO Recommends
FEMA should establish written procedures for involving ODIC in regional activities; set goals for the number of state and local emergency managers who will take a key training on disability integration; and evaluate alternative delivery methods for the training. FEMA concurred with all of the recommendations.
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Recommendations for Executive Action
Comments: FEMA agreed with this recommendation and FEMA's Office of Disability Integration and Coordination (ODIC) is in the process of establishing a working group that will clarify and codify the roles, responsibilities, and expectations among the various agency offices and personnel involved in carrying out the agency's disability integration mission. In January 2018, FEMA reported that it had created Regional Integration Teams in the regions to improve the efficiency and efficacy of mission delivery. In August 2018, ODIC reported its goal to meet with Regional Administrators and other senior leaders across the agency by the end of CY 2018 to refine the role for disability integration staff. The reported intent of refining the role is to better align it with the FEMA Administrator's goal of empowering emergency managers in states, localities, tribes, and territories. Finally, ODIC reported hiring three additional disability integration staff in one region, with plans to expand across other regions through 2019. GAO is encouraged by FEMA's efforts to engage Regional Administrators and other senior leaders in its refinement of the role of disability integration staff, and awaits evidence of FEMA establishing documentation of the agency's procedures for carrying out its disability integration mission.
Recommendation: To better ensure FEMA's regional activities effectively support individuals with disabilities, the Secretary of Homeland Security should direct the FEMA Administrator to take steps to establish written procedures for how regions should involve the Office of Disability Integration and Coordination in clarifying disability integration staff's roles, evaluating staff performance, and setting expectations for how staff communicate with headquarters and the regions.
Agency Affected: Department of Homeland Security
Comments: FEMA agreed with this recommendation and reported that it will explore options for updating one of its existing online courses--IS-368 "Including People with Disabilities and Other with Access and Functional Needs in Disaster Operations"--to tailor the content for a broader audience, including members of the public. The agency also reported that it will evaluate the need for alternative cost-effective methods for delivering other courses on inclusive emergency management it currently offers, such as its classroom course, "Integrating Access and Functional Need into Emergency Planning." As of January 2018, the Office of Disability Integration and Coordination reported plans to hire a permanent staff person to review, assess, and recommend how FEMA should incorporate disability into all internal and external training. In August 2018, FEMA reported hiring a new Program and Policy Branch Chief in July 2018, and noted that this individual will formulate a plan to incorporate the needs of people with disabilities into internal and external training over several weeks. In the meantime, FEMA reported providing just-in-time training in the field to support field staff in providing services to people with disabilities. The agency anticipates completing these efforts by December 31, 2019. When these efforts are complete, GAO will await documentation that the agency has evaluated its delivery of key training on incorporating access and functional needs into emergency planning.
Recommendation: To better position FEMA to expand access to key training on incorporating access and functional needs into emergency planning for state, local, and voluntary organization emergency management officials, the Secretary of Homeland Security should direct the FEMA Administrator to evaluate alternative cost-effective methods for delivering its course on access and functional needs, such as via virtual classes.
Agency Affected: Department of Homeland Security
Comments: FEMA agreed with this recommendation and reported that it will work with its regional staff to map potential training participants in each state and set goals for delivery of the course to state and local emergency managers. The agency also reported that it may be able to use data in the State Preparedness Report and states' self-reporting on the need for training on integrating the needs of people with access and functional needs into emergency management. As of January 2018, the Office of Disability Integration and Coordination reported plans to hire a permanent staff person to review, assess, and recommend how FEMA should incorporate disability into all internal and external training. In August 2018, FEMA reported hiring a new Program and Policy Branch Chief in July 2018, and noted that this individual will formulate a plan to incorporate the needs of people with disabilities into internal and external training over several weeks. However, FEMA did not address whether this individual will seek information about the potential pool of external participants, or set goals for the number of state and local emergency managers who could participate in external training. FEMA also reported providing just-in-time training in the field to support field staff in providing services to people with disabilities. The agency anticipates completing these efforts by December 31, 2019 and we will consider closing this recommendation when the agency can document it has addressed the recommendation.
Recommendation: To help ensure its key training on incorporating access and functional needs into emergency planning reaches a sufficiently wide audience, the Secretary should direct the FEMA Administrator to collect information about the potential pool of participants, set general goals for the number of state and local emergency managers that will take this course, and implement the delivery methods needed to meet these goals.
Agency Affected: Department of Homeland Security