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Disaster Recovery: Experiences from Past Disasters Offer Insights for Effective Collaboration after Catastrophic Events.



GAO-09-811 July 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 The Loma Prieta earthquake was a major earthquake that struck the San Francisco Bay Area of California on October 17, 1989 at 5:04 p.m. The earthquake lasted approximately 15 seconds and measured 6.9 on the moment magnitude scale (surface-wave magnitude 7.1).  (California, 1989), Hurricane Andrew This article is about the 1992 hurricane; there was also a Tropical Storm Andrew during the 1986 Atlantic hurricane season.

Hurricane Andrew is the second-most-destructive hurricane in U.S. history, and the last of three Category 5 hurricanes that made U.S.
 (Florida, 1992), the Northridge earthquake The Northridge earthquake occurred on January 17, 1994 at 4:31 AM Pacific Standard Time in the city of Los Angeles, California. The earthquake had a "strong" moment magnitude of 6.  (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 The Federal Highway Administration (FHWA) is a division of the United States Department of Transportation that specializes in highway transportation. The agency's major activities are grouped into two "programs," The Federal-aid Highway Program and the Federal Lands Highway  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 “Bay Area” redirects here. For other uses, see Bay Area (disambiguation).

The San Francisco Bay Area, colloquially known as the Bay Area or The Bay
 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 sys·tem·a·tize  
tr.v. sys·tem·a·tized, sys·tem·a·tiz·ing, sys·tem·a·tiz·es
To formulate into or reduce to a system: "The aim of science is surely to amass and systematize knowledge" 
 the sharing of this information so that recovery lessons are better captured and disseminated for use in the future.

Recommendations

Our recommendations from this work are listed below with a Contact for more information. Status will change from "In process" to "Open," "Closed - implemented," or "Closed - not implemented" based on our follow up work.

Director: Stanley J. Czerwinski Team: Government Accountability Office The Government Accountability Office (GAO) is the audit, evaluation, and investigative arm of the United States Congress, and thus an agency in the Legislative Branch of the United States Government. : Strategic Issues Phone: (202) 512-6520

Recommendations for Executive Action

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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 LLIS Lessons Learned Information Sharing (homeland security)
LLIS Lessons Learned Information System (NASA) 
) 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 Noun 1. Department of Homeland Security - the federal department that administers all matters relating to homeland security
Homeland Security

executive department - a federal department in the executive branch of the government of the United States
 

Status: In process

Comments: When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.

Categories: Homeland Security, Communication, Disaster planning, Disaster recovery, Disaster recovery plans, Emergency management, Emergency preparedness, Evaluation, Federal/state relations, Floods, Grand Forks/Red River Flood (1997), Homeland security, HUD Hud (hd), a pre-Qur'anic prophet of Islam. Hud unsuccessfully exhorted his South Arabian people, the Ad, to worship the One God.  Community Development Block Grant Program, Hurricane Andrew, Hurricanes, Interagency relations, Kobe Earthquake (1995), Lessons learned, Loma Prieta earthquake, Monitoring, Natural disasters, Northridge earthquake, Reporting requirements, State/local relations, Strategic planning
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Publication:General Accounting Office Reports & Testimony
Date:Sep 1, 2009
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