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HURRICANE KATRINA:

A NATION STILL UNPREPARED

SPECIAL REPORT

OF THE

COMMITTEE ON HOMELAND SECURITY

AND GOVERNMENTAL AFFAIRS

UNITED STATES SENATE

TOGETHER WITH

ADDITIONAL VIEWS

Printed for the Use of the Committee on Homeland Security and Governmental A? airs http://hsgac.senate.gov/

ORDERED TO BE PRINTED

U.S. GOVERNMENT PRINTING OFFICE

WASHINGTON : 2006

FOR SALE BY THE SUPERINTENDENT OF DOCUMENTS

Cover Photo: Helicopter Rescue, New Orleans (Courtesy of U.S. Coast Guard)109th Congress

2nd Session

SPECIAL REPORT

S. Rept. 109-322For sale by the Superintendent of Documents, U.S. Government Printing OfficeInternet: bookstore.gpo.gov Phone: toll free (866) 512-1800; DC area (202) 512-1800Fax: (202) 512-2250 Mail: Stop IDCC, Washington, DC 20402-0001

ISBN 0-16-076749-0

TED STEVENS, Alaska

GEORGE V. VOINOVICH, Ohio

NORM COLEMAN, Minnesota

TOM COBURN, M.D., Oklahoma

LINCOLN D. CHAFEE, Rhode Island

ROBERT F. BENNETT, Utah

PETE V. DOMENICI, New Mexico

JOHN W. WARNER, VirginiaJOSEPH I. LIEBERMAN, Connecticut

CARL LEVIN, Michigan

DANIEL K. AKAKA, Hawaii

THOMAS R. CARPER, Delaware

MARK DAYTON, Minnesota

FRANK LAUTENBERG, New Jersey

MARK PRYOR, Arkansas

Majority Sta?

Arthur W Adelberg, Senior Counsel

Melvin D. Albritton, Counsel

Kate C. Alford, Research Assistant

Jennifer C. Boone, FBI Detailee

Erin M. Bouchard, Intern

Allison J. Boyd, Counsel

Codias M. Brown, Legislative Correspondent

Donald L. Bumgardner, GAO Detailee

Jennifer S. Burita, Communications Director

Cyrus E. Cheslak, Intern

John H. Cobb, Senior Counsel

? omas R. Eldridge, Senior Counsel

Ann C. Fisher, Deputy Sta? Director

Keith A. Fleming, CBP Detailee

Jennifer E. Gagnon, Executive Assistant

Amy L. Hall, Professional Sta? Member

Catherine A. Harrington, Intern

Jennifer A. Hemingway, Professional Sta? Member

David E. Hunter, Sta? Scientist

Clark T. Irwin, Editor/Professional Sta? Member

Keith B. Janssen, USCG Detailee

Kathleen L. Kraninger, Professional Sta? Member

Gordon N. Lederman, Special Counsel

Brian J. Lepore, GAO Detailee

Mira L. Lezell, Intern

Jay W. Maroney, Counsel

Asha A. Mathew, Counsel

James R. McKay, Counsel

Jonathan T. Nass, Counsel

David K. Porter, Counsel

Chad T. Sarchio, DOJ Detailee

Debra J. Schlagenhauf, Assistant Clerk

Kurt A. Schmautz, Counsel

Robert L. Strayer, Counsel

Jennifer L. Tarr, Research Assistant

Sarah V. Taylor, Research Assistant

Debra M. ? omas, Executive Assistant

Larry F. Vigil, Professional Sta? Member

Monica A. Wickey, Legislative CorrespondentMinority Sta?

Michael L. Alexander, Professional Sta? Member*

Alistair F. Anagnostou, Sta? Assistant

Eric P. Andersen, Professional Sta? Member

David M. Berick, Professional Sta? Member

Dan M. Berkovitz, Counsel, PSI

Stacey M. Bosshardt, Counsel

Janet L. Burrell, O? ce Manager/Executive Assistant

Scott G. Campbell, Communications Advisor

William E. Corboy, Professional Sta? Member

Troy H. Cribb, Counsel

Heather R. Fine, Counsel

Boris Y. Fishman, Editor

Susan A. Fleming, GAO Detailee

Je? rey E. Greene, Counsel

Elyse F. Greenwald, Sta? Assistant

Beth M. Grossman, Counsel

R. Denton Herring, GAO Detailee

Holly A. Idelson, Counsel

Kristine V. Lam, Sta? Assistant

Kevin J. Landy, Senior Counsel

Joshua A. Levy, Counsel

Alysha S. Liljeqvist, Sta? Assistant

F. James McGee, Professional Sta? Member

Lawrence B. Novey, Senior Counsel

Siobhan C. Oat-Judge, Deputy Press Secretary

Leslie J. Phillips, Communications Director

A. Patricia Rojas, Professional Sta? Member

Mary Beth Schultz, Counsel

Adam R. Sedgewick, Professional Sta? Member

Todd M. Stein, Counsel, O? ce of Senator Lieberman

Traci L. Taylor, DOI Detailee

Donny Ray Williams, Jr., Professional Sta? Member

Jason M. Yanussi, Professional Sta? MemberMichael D. Bopp, Majority Sta? Director and Chief Counsel

David T. Flanagan, Majority General Counsel, Katrina Investigation Joyce A. Rechtscha? en, Minority Sta? Director and Counsel

Laurie R. Rubenstein, Minority Chief Counsel

Robert F. Muse, Minority General Counsel, Katrina Investigation

Trina Driessnack Tyrer, Chief Clerk

Elisabeth F. Butler, Archivist

John S. Gleason, Financial Clerk

Megan T. Gorski, Documents Manager

Patricia R. Hogan, Publications Clerk/GPO Detailee

Daniel M. Muchow, Systems Administrator

* Succeeded Ms. Rechtsha? en as Minority Sta? Director on May 1, 2006. Committee on Homeland Security and Governmental A? airs

SUSAN M. COLLINS, Maine, Chairman

iii

Note to Readers

Fellow Citizens:

In the late summer of 2005, millions of us watched the satellite images of Hurricane Katrina as it moved through the Gulf of Mexico and drove menacing swells of water toward the American coastline. We watched in sympathy as hundreds of thousands of lives were upended when the hurricane struck the coasts of Louisiana, Mississippi, and Alabama. We watched in hor- ror as hundreds died in collapsed or ? ooded houses and nursing homes. We were heartened by acts of initiative, perseverance, and heroism by local responders and the U.S. Coast Guard but, to add bewilderment and outrage to our sense of tragedy, we were horri? ed when the response to the Katrina catastrophe revealed - all too o? en, and for far too long - confusion, delay, misdirection, inactivity, poor coordination, and lack of leadership at all levels of government. Meanwhile, thousands languished in heat and squalor on islands of concrete highway, in darkened stadiums, in nursing homes, or on roo? ops, waiting for rescue, sometimes dying before help arrived. All of this unfolded nearly four years a? er the terror attacks of September 11, 2001; a? er a massive reorganization of federal plans and organizations for disaster response and billions of dollars of expenditures; and a? er a closely observed hurricane struck when and where forecasters said it would. We knew Katrina was coming. How much worse would the nightmare have been if the disaster had been unannounced - an earthquake in San Francisco, a burst levee near St. Louis or Sacramento, a biological weapon smuggled into Boston Harbor, or a chemical- weapon terror attack in Chicago? Hurricane Katrina found us - still - a nation unprepared for catastrophe. ? e United States Senate Committee on Homeland Security and Governmental A? airs has prepared this bipartisan report to acknowledge what was done well, to identify what was done poorly or not at all, and to recommend changes in our national system for emergency response that will put local, state, federal, and private responders in a better position to provide prompt and e? ective relief when disaster strikes again. ? e Com- mittee conducted a long and thorough investigation of these issues, and is grateful for the work of its sta? of investigators, writers, researchers, and other professionals that made this report possible. We hope you ? nd it informative and, above all, useful. Senator Susan M. Collins Senator Joseph I. Lieberman

Maine, Chairman Connecticut, Ranking Member

Table of Contents

iv

Hurricane Katrina: A Nation Still Unprepared

Contents Page

Preliminaries

Committee Members and Sta? List . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ii

Note to Readers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iii

Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Narrative

Chapter 1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

Chapter 2 Hurricane Katrina: Indicators of Impact . . . . . . . . . . . . . . . . . . . . . 37

Chapter 3 Hurricanes and the Gulf Coast . . . . . . . . . . . . . . . . . . . . . . . . . . . 41

Chapter 4 Katrina Strikes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51

Chapter 5 Hurricane Katrina: Timeline of Key Events. . . . . . . . . . . . . . . . . . . . 67

Analysis

Chapter 6 Emergency Management: Louisiana . . . . . . . . . . . . . . . . . . . . . . . . 77

Chapter 7 Emergency Management: Mississippi . . . . . . . . . . . . . . . . . . . . . . . 99

Chapter 8 "Hurricane Pam": Warning Flag for Katrina . . . . . . . . . . . . . . . . . . 109

Chapter 9 E? ects of Environmental and Engineering Changes . . . . . . . . . . . . . . 121

Chapter 10 Levees: Who"s in Charge? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 129

Chapter 11 "? e New Orleans Scenario": State and Local Preparations . . . . . . . . . . 149

Chapter 12 Federal Preparations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 163

Chapter 13 Department of Homeland Security. . . . . . . . . . . . . . . . . . . . . . . . 203

Chapter 14 ? e Federal Emergency Management Agency . . . . . . . . . . . . . . . . . 211

Chapter 15 Government Response: ? e Role of the White House . . . . . . . . . . . . . 233

Chapter 16 Pre-Storm Evacuations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 243

Chapter 17 Why the New Orleans Levees Failed . . . . . . . . . . . . . . . . . . . . . . . 275

Chapter 18 Communication Voids . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 287

Chapter 19 Lack of Situational Awareness . . . . . . . . . . . . . . . . . . . . . . . . . . 303

Chapter 20 Protecting Infrastructure; Public Communication;

Role of the Media. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 321

Chapter 21 Search and Rescue . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 331

Chapter 22 Post-Landfall Evacuation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 359

Table of Contents

v

Chapter 23 Logistics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 375

Chapter 24 Medical Assistance. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 399

Chapter 25 Public Safety and Security. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 439

Chapter 26 Military Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 467

Chapter 27 Failures in National Response Plan: Uni? ed Command. . . . . . . . . . . . 551

Chapter 28 FEMA Waste and Fraud. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 577

Results

Overview: Conclusions and Findings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 585

Findings. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 589

Recommendations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 607

Appendices

Appendix 1 Common Acronyms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 631

Appendix 2 Emergency Support Functions (ESFs) . . . . . . . . . . . . . . . . . . . . . . 635

Appendix 3 Committee Hearings on Hurricane Katrina. . . . . . . . . . . . . . . . . . . 637

Appendix 4 HSGAC Interviews. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 643

Appendix 5 Members" Additional Views

Senators Collins, Stevens, Coleman, Coburn, Bennett, and Domenici . . 665 Senators Lieberman, Levin, Akaka, Carper, Lautenberg, and Pryor . . . 667

Senator Voinovich . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 701

Senator Coburn. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 705

Senator Domenici . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 709

Senator Warner. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 713

Senator Levin . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 717

Senators Akaka, Lautenberg, and Pryor . . . . . . . . . . . . . . . . . . . 721

Senator Dayton . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 725

Senator Lautenberg . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 729

1

Executive Summary

Hurricane Katrina:

A Nation Still

Unprepared

2

Executive Summary

H urricane Katrina was an extraordinary act of nature that spawned a human trag- edy. It was the most destructive natural disaster in American history, laying waste to 90,000 square miles of land, an area the size of the United Kingdom. In Mis- sissippi, the storm surge obliterated coastal communities and le thousands destitute. New Orleans was overwhelmed by ? ooding. All told, more than 1,500 people died. Along thequotesdbs_dbs46.pdfusesText_46

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