I have been told by survivors of Isabel that one of the key problems has always been the way FEMA is structured. It is all about being on standby until local officials formally ask for help; they are officially 'second responders'. This does not work when all phones are out and towns have been destroyed and mayors have had to evacuate and the 'first responders' are busy trying to pull people off roofs.   

So to some extent the legal structure of FEMA was and is part of the problem. The other part is the people in charge were people like Brown.   Thank God for the Coast Guard which did not have to ask permission to operate in its own waters and shores and just went in and rescued people. And Thank God for private citizens and churches who just got their act together, found some fuel, and went to help. The only positive thing in this mess is the great help people have given their fellow man.