Department of Homeland Security

Office of Inspector General 

Federal Emergency Management Agency's 


Exit Strategy for Temporary Housing 


in the Gulf Coast Region 


OIG-09-02 October 2008 
 

Office of Inspector General 

U.S. Department of Homeland Security 

Washington, DC 20528 

October 2, 2008 

Preface 

The Department of Homeland Security, Office of Inspector General, was established by the 

Homeland Security Act of 2002 (Public Law 107-296) by amendment to the Inspector General 

Act of 1978. This is one of a series of audit, inspection, and special reports prepared as part of 

our oversight responsibilities to promote economy, efficiency, and effectiveness within the 

department. 

Our report addresses the Federal Emergency Management Agency’s strategy for ending its 

direct housing assistance program in the aftermaths of hurricanes Katrina and Rita. It is based 

on interviews with employees and officials of relevant agencies, direct observations, and a 

review of applicable documents. 

The analysis herein has been developed to the best knowledge available to our office, and has 

been discussed with those responsible for implementation. It is our hope that this report will 

result in more effective, efficient, and economical operations. We express our appreciation to 

all of those who contributed to the preparation of this report. 

Richard L. Skinner 

Inspector General 

FEMA’s Exit Strategy for Temporary Housing 

 in the Gulf Coast Region 
 

 

 

 

 

 

 

 

 

 

Table of Contents/Abbreviations 

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

Background ................................................................................................................................... 2 

Results of Review ......................................................................................................................... 5 

Exit Strategy ............................................................................................................................ 5 

Progress Recovering Temporary Housing Units .................................................................... 6 

Eligibility Recertification ........................................................................................................ 7 

Permanent Housing Plans .................................................................................................... 9 

Periodic Recertification Visits ............................................................................................. 9 

Documentation Supporting Progress ................................................................................. 10 

Communication of Responsibility ..................................................................................... 10 

Termination for Not Accepting Reasonable Housing Offer .............................................. 10 

Conclusion and Recommendations ............................................................................................. 10 

Management Comments and OIG Analysis ............................................................................... 11 

Appendices 

Appendix A: Objective, Scope, and Methodology .......................................................... 13 

Appendix B: Management Comments to the Draft Report................................................14 

Appendix C: Types of FEMA Housing Assistance ......................................................... 19 

Appendix D: FEMA’s Gulf Coast Inventory of Temporary Housing Units ................... 21 

Appendix E: Major Contributors to this Report .............................................................. 22 

Appendix F: Report Distribution .................................................................................... 23 

Abbreviations 

CDC Centers for Disease Control and Prevention 

CFR Code of Federal Regulations 

DHS Department of Homeland Security 

FEMA Federal Emergency Management Agency 

IA Individual Assistance 

OIG Office of Inspector General 

Stafford Act The Robert T. Stafford Disaster Relief and Emergency Assistance Act 

TRO Transitional Recovery Office 

FEMA’s Exit Strategy for Temporary Housing 

in the Gulf Coast Region 
OIG 

Department of Homeland Security 

Office of Inspector General 

 Executive Summary 

The Federal Emergency Management Agency’s (FEMA) strategy for ending 

its direct housing assistance program for Hurricanes Katrina and Rita is 

generally sound, and FEMA has made considerable progress recovering its 

temporary housing units, i.e., travel trailers, mobile homes, and park models. 

However, FEMA’s strategy is not complete because it has not been 

periodically reassessing resident eligibility for the direct housing assistance 

program or taking action to recover temporary housing units from ineligible 

residents. Unless FEMA begins this process, it will not recover all temporary 

housing units by March 1, 2009; the scheduled ending date of FEMA’s direct 

housing assistance program. 

FEMA’s process for recertifying resident eligibility includes: 

•	 Permanent housing plans developed by each head of household that 

include timelines for relocating. 

•	 Periodic recertification visits that include monitoring progress in 

meeting the timelines. 

•	 Documentation supporting that residents continue to qualify for direct 

housing assistance and are making satisfactory progress in meeting 

housing plans. 

•	 Regular communication with residents that they are expected to find 

permanent housing at the earliest possible time and that FEMA will 

remove temporary housing units on March 1, 2009; the scheduled 

program termination date. 

•	 Regular communication with residents that they may no longer qualify 

for FEMA direct housing assistance should they decline FEMA’s first 

reasonable offer of alternative housing. 

Due to the unprecedented magnitude of Hurricanes Katrina and Rita, it is 

understandable that FEMA did not immediately begin reassessing resident 

eligibility. However, over 2 years have passed and the program is scheduled 

to end in less than a year. Therefore, we are recommending that FEMA 

implement the periodic recertification of eligibility process outlined in federal 

regulations. FEMA also should implement procedures to terminate resident 

participation in the program and, when appropriate, evict uncooperative 

residents. 

FEMA’s Exit Strategy for Temporary Housing 

in the Gulf Coast Region 

Page 1 
 

 Background 

The magnitude and scope of the devastation caused by the 2005 hurricanes 

presents unprecedented challenges. These storms destroyed wide swaths of 

housing, infrastructure, and businesses, and displaced hundreds of thousands 

of people. Hurricane Katrina made landfall in Mississippi and Louisiana in 

August 2005, and caused more damage than any other single natural disaster 

in the history of the United States. Hurricane Katrina destroyed over 300,000 

homes and affected approximately 90,000 square miles - an area larger than 

Great Britain. Hurricane Rita followed a few weeks later, making landfall in 

Texas and Louisiana, and severely damaging or destroying 23,600 homes. 

The Robert T. Stafford Disaster Relief and Emergency Assistance Act 

(Stafford Act) grants the President the authority to provide assistance in 

mitigating, responding to, and preparing for disasters and emergencies such as 

earthquakes, hurricanes, floods, tornadoes, and terrorist acts.1 FEMA 

administers the Stafford Act and provides direct temporary housing assistance, 

generally in the form of travel trailers, mobile homes, and park models, under 

its Individuals and Households Program. FEMA provides direct temporary 

housing assistance in response to disasters for a period of up to 18 months. 

FEMA extended this period an additional 24 months due to the magnitude of 

the disasters. 

FEMA provided these temporary housing units to satisfy the short-term 

housing needs of residents whose homes were damaged or destroyed. FEMA 

placed these units on private sites while homeowners make repairs, and in 

group configurations to support displaced renters. FEMA also placed units on 

pre-existing commercial trailer park sites, as well as on industrial sites, to 

support the operations of critical infrastructure. 

As an alternative to direct housing assistance, FEMA provides hurricane 

victims with other types of housing assistance including financial housing 

assistance for monthly rent expenses. FEMA also places disaster victims in 

hotels for a limited time when rental units are not immediately available. 

Recently, the U.S. Department of Housing and Urban Development began 

working with FEMA under an interagency agreement to provide housing and 

case management services to hurricane victims under the Disaster Housing 

Assistance Program. (See Appendix C) 

1 The Stafford Act is codified as amended at 42 U.S.C. §§ 5121-5207. 

FEMA’s Exit Strategy for Temporary Housing 

in the Gulf Coast Region 

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Figure 1: FEMA Provided Temporary Housing on Private Sites 

Source: FEMA 

Figure 2: FEMA Built Group Sites to House Multiple Residents 

Source: FEMA 

FEMA placed over 130,000 temporary housing units in the four hurricaneimpacted states - Texas, Louisiana, Mississippi, and Alabama. As of 

May 31, 2008, FEMA reported 1,002 units on group sites; 3,111 on 

commercial sites; and 20,845 on private sites for a total of 24,958 travel 

trailers and mobile homes in the gulf region. The vast majority of FEMA’s 

remaining temporary housing units are located in Louisiana followed by 

Mississippi. Few remain in Texas and Alabama. See Appendix C for data on 

FEMA’s progress in recovering Gulf Coast temporary housing. 

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in the Gulf Coast Region 

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Figure 3: Breakdown of Temporary Housing by State 

Remaining Manufactured Housing by State 

as of May 31, 2008 

Alabama 

0.3% - 66 Texas 

0.0% - 3 

Louisiana 

74.5% - 18,605 

Mississippi 

25.2% - 6,284 

Source: FEMA Individual Assistance Global Report 

Starting in March 2006, residents raised concerns about air quality in the 

temporary housing units and the occurrence of respiratory and other 

symptoms. The Centers for Disease Control and Prevention (CDC) has been 

working with FEMA to investigate these health concerns and take action to 

protect residents. On February 14, 2008, the CDC released preliminary results 

from testing that found high indoor levels of formaldehyde. Formaldehyde is 

a common chemical irritant that can come from a variety of sources including 

fiberglass, carpets, and manufactured wood products. In response to these 

findings, FEMA increased its efforts to find residents alternative forms of 

housing, including moving individuals to hotels/motels or subsidized rental 

units. 

Disaster victims, especially in Louisiana, face significant challenges repairing 

their homes or securing other permanent housing. A December 2007 survey 

conducted by a FEMA consultant indicated that FEMA staff in Louisiana said 

that renters prior to the storms have had difficulty finding affordable housing 

in desired areas.2 

2 Louisiana Transitional Recovery Office Assessment Report, January 10, 2008, Hagerty Consulting. 

FEMA’s Exit Strategy for Temporary Housing 

in the Gulf Coast Region 

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The FEMA staff surveyed also responded that homeowners faced financial 

obstacles including insufficient insurance coverage and limited Road Home 

Program funding.3

 High construction costs, competition for available 

contractors, as well as new disaster mitigation requirements compounded 

these financial problems. The FEMA staff surveyed said residents with 

special needs also faced additional challenges finding permanent housing. 

Half of the FEMA staff responding to the survey did not believe there were 

sufficient rental resources available in areas where residents wished to live. 

Results of Review 

FEMA’s strategy for ending its direct housing assistance program is generally 

sound, and FEMA has made considerable progress recovering temporary 

housing units. However, FEMA’s strategy is not complete since FEMA’s 

strategy has not recertified resident eligibility or taken action to recover 

temporary housing units from ineligible residents. FEMA must implement the 

recertification of eligibility process to ensure recovery of all temporary 

housing units by March 1, 2009, which is the ending date of FEMA’s direct 

housing assistance program. 

Exit Strategy 

FEMA’s Gulf Coast housing strategy generally is to pursue all available and 

legal means, resources, and programs to move individuals out of temporary 

housing units and into more permanent housing. To that end, FEMA staff at 

group sites work closely with residents to find permanent housing. FEMA 

then closes each group site after the final resident moves out or is located to 

another group site. FEMA staff also work with state and local governments as 

well as non-profit organizations to help residents locate suitable housing and 

meet other needs. 

FEMA is near meeting its goal of closing all group sites by June 2008. As of 

the end of May, only 14 sites remain open. Further, concerns over the 

potential adverse health effects of formaldehyde exposure have accelerated 

FEMA’s efforts to help group site residents find alternate housing solutions. 

FEMA then plans to direct resources toward helping commercial site residents 

find permanent housing. Concurrent with this effort, FEMA plans to continue 

to work with state, local and voluntary organizations to help private site 

residents repair and move back into their homes. 

3

 Louisiana’s Road Home program is funded by the U.S. Department of Housing and Urban Development and is 

designed to provide eligible homeowners up to $150,000 in compensation for the loss of their homes. 

FEMA’s Exit Strategy for Temporary Housing 

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Progress Recovering Temporary Housing Units 

FEMA has made considerable progress recovering its temporary housing 

units. FEMA reported installing over 130,000 travel trailers and mobile 

homes following the 2005 hurricanes. By the end of May 2008, FEMA 

reported about 25,000 units remaining in the four states affected by hurricanes 

Katrina and Rita - an 81% reduction. More recently, during the eight months 

ending May 2008, FEMA reported recovering approximately 37,000 units or 

about 150 per day. 

Figure 4: Temporary Housing Units Remaining in Gulf Coast 

Remaining Gulf Coast Manufactured Housing 

-

10,000 

20,000 

30,000 

40,000 

50,000 

60,000 

70,000 

Oct. 07 Nov. 07 Dec. 07 Jan. 08 Feb. 08 Mar. 08 Apr. 08 May 08 

Source: Gulf Coast Recovery Office Individual Assistance Global Report. 

Although FEMA’s temporary housing unit recovery rate, if maintained, would 

result in recovering all units by the program end date, there is no guarantee 

this recovery rate will continue. For example, FEMA managers said they 

anticipate it will become more difficult to find suitable, affordable housing in 

many areas as the program ending date approaches. 

FEMA’s strategy in 2007 and early 2008 was to emphasize helping group site 

residents find permanent housing and closing group sites. During the eight 

months ending May 2008, FEMA reported reducing the number of group site 

units from approximately 5,800 to 1,000 (83%) while the number of occupied 

group sites fell from 96 to 14 (85%). 

FEMA’s Exit Strategy for Temporary Housing 

in the Gulf Coast Region 

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Figure 5: Group Site Temporary Housing Units 

Remaining Manufactured Housing in Group Sites 

0 

1,000 

2,000 

3,000 

4,000 

5,000 

6,000 

Oct. 07 Nov. 07 Dec. 07 Jan. 08 Feb. 08 Mar. 08 Apr. 08 May 08 

Source: Gulf Coast Recovery Office Individual Assistance Global Report. 

Eligibility Recertification 

Although FEMA’s strategy for closing group sites during 2008 is generally 

sound, more can be done. FEMA needs to periodically recertify the eligibility 

of the approximately 21,000 private-site residents and 3,000 commercial-site 

residents.4 Also, FEMA needs to implement policies and procedures for 

terminating participation in the program and removing temporary housing 

units when it determines that residents no longer qualify for direct housing 

assistance. 

Failure to recertify resident eligibility could result in residents remaining 

longer than appropriate while others could remain indefinitely. For example, 

private site residents could keep temporary housing units even when they have 

completed repairs, or conversely, made little or no progress toward repairing 

their homes. Further, some residents could remain even though they were not 

making efforts to find permanent housing. Others may have simply moved 

out and failed to notify FEMA. 

It is FEMA’s goal to help residents find permanent housing solutions as soon 

as possible because of the high costs and potential dangers of prolonging the 

program. FEMA pays millions of dollars each month for housing 

4 Results reported by FEMA as of May 31, 2008, Gulf Coast Recovery Office Individual Assistance Global Report, 

Executive Summary. 

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maintenance while residents remain vulnerable to severe weather and 

exposure to potential formaldehyde-related health risks. However, limited 

affordable housing along the coastal areas of Louisiana and Mississippi, 

especially in the New Orleans area, has made finding suitable affordable 

housing extremely difficult. 

According to FEMA officials, it has not been recertifying eligibility and 

terminating participation for several reasons, including: 

•	 The large number (over 130,000) of temporary housing units originally 

installed made it impractical for FEMA staff to routinely visit and 

recertify tens of thousands of residents; 

•	 The number of variables, e.g., contractor availability, affecting 

rebuilding efforts on private sites made assessing the occupant’s 

permanent housing plan too dynamic and subjective; 

•	 FEMA has not implemented a termination policy that would require 

ending participation in the program for those individuals who are no 

longer eligible for direct assistance, or who have not voluntarily 

vacated the temporary housing unit; and 

•	 FEMA officials believed it would have been inequitable to begin 

recertifying direct housing assistance recipients when court decisions 

prevented FEMA from actively recertifying the eligibility of residents 

receiving financial housing assistance, i.e., rental assistance payments, 

rather than FEMA-provided temporary housing units. 

FEMA officials further emphasized that, even though it has not been 

recertifying eligibility, it continues to work with residents to find permanent 

housing solutions. 

Recertification guidance is outlined in federal regulations and FEMA internal 

procedures.5

 This guidance sets out a recertification process that includes the 

following elements: 

•	 Permanent housing plans developed by each head of household that 

includes timelines for achieving planning milestones. 

•	 Periodic recertification visits that include monitoring progress toward 

meeting these housing plan timelines. 

•	 Documentation supporting that residents continue to qualify for direct 

housing assistance and are making satisfactory progress in meeting 

their housing plans. 

5

 44 CFR § 206.114 and FEMA Disaster Assistance Policy 9451.5, Termination of Leases and Occupancy Agreements 

Under Direct Assistance (Temporary Housing Units), December 7, 2007. 

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in the Gulf Coast Region 

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•	 Regular communication with residents that they are expected to find 

permanent housing at the earliest possible time and that FEMA will 

remove the temporary housing unit before March 1, 2009, the program 

termination date. 

•	 Regular communication with residents conveying that they may no 

longer qualify for FEMA direct housing assistance should they decline 

FEMA’s first reasonable offer of permanent housing. 

FEMA has only been terminating resident participation when the resident 

violates the terms of the lease agreement, generally for breaking group site 

rules, e.g., illegal or disruptive behaviors. FEMA has developed, but not yet 

implemented, a more comprehensive policy for terminating assistance for 

ineligible residents. 

Permanent Housing Plans 

FEMA has not required residents in Louisiana to provide permanent housing 

plans, including timelines for meeting the plans, as a condition for continued 

direct housing assistance. FEMA officials in Mississippi did obtain housing 

plans. FEMA should use the housing plans to monitor progress toward 

securing permanent housing. FEMA should also emphasize to residents that 

working to meet the plans is a requirement for continued participation in the 

program and that failure to meet milestones set forth in the plans is grounds 

for FEMA to terminate their participation in the program and remove the 

temporary housing unit. 

Periodic Recertification Visits 

FEMA needs to routinely visit private sites in Louisiana to recertify residents 

and monitor their progress in meeting permanent housing plans. FEMA 

officials in Mississippi said their staff periodically visit residents, but do not 

recertify the residents during those visits. Requirements for direct housing 

assistance are in federal regulations and discussed in FEMA internal 

documents.6

 To administer these requirements, FEMA should recertify 

residents periodically, typically about every 30 days.7

 When FEMA 

determines that the residents are no longer eligible for direct housing 

assistance, it should provide the residents written notices of termination.8 

On-site visits would also provide FEMA an opportunity to identify any unmet 

needs and refer the residents to the appropriate agency or voluntary assistance 

organization. 

6 44 CFR § 206.117(b)(ii).
 7 Individuals and Households Program—Direct Assistance Specialist & Support Specialist Operations Manual, page 37.
 8 44 CFR § 206.117(b)(ii)(H).
 

FEMA’s Exit Strategy for Temporary Housing 

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Documentation Supporting Progress 

FEMA needs to enforce the requirement that residents in Louisiana provide 

documentation supporting their continued eligibility for the direct housing 

assistance program. FEMA officials in Mississippi obtained supporting 

documentation from residents. This documentation is important to show that 

the residents are making progress toward obtaining permanent housing. 

Failure to document the efforts made to find permanent housing is also 

grounds for terminating residents from the program.9 

Communication of Responsibility 

FEMA needs to regularly communicate to residents that they are expected to 

find permanent housing at the earliest possible time10 and, when the program 

ends on March 1, 2009, any remaining units will be scheduled for removal. 

FEMA staffs have been encouraging residents to find permanent housing. 

Although federal regulations limit the period of assistance to 18 months, 

FEMA extended the timeline to 42 months due to the extraordinary 

circumstances presented by Hurricanes Katrina and Rita.11 Periodic reminders 

to residents during recertification visits of their responsibility to secure 

permanent housing should help ensure a higher level of cooperation when the 

time comes to remove any remaining temporary housing units. 

Termination for Not Accepting Reasonable Housing Offer 

FEMA needs to continue to communicate to residents that they are expected 

to accept FEMA’s first offer of alternative housing assistance and that 

unwarranted refusal of assistance could result in their termination from the 

housing program and removal of their temporary housing unit. This provision 

is addressed in federal regulations12 and is a condition for use of the 

temporary housing unit on FEMA Form 90-69D, Receipt for Government 

Property. Although this expectation is listed on the resident’s receipt, to help 

ensure a higher level of cooperation, FEMA should remind residents of the 

requirement during periodic recertification visits. 

Conclusion and Recommendations 

Due to the unprecedented magnitude of the disasters, it is understandable that 

FEMA did not immediately begin recertifying residents for continued 

9 44 CFR § 206.117(b)(ii)(G)(5).

10 44 CFR § 206.114(a). 

11 44 CFR § 206.110(e). 

12 44 CFR § 206.110.(c). 

FEMA’s Exit Strategy for Temporary Housing 

in the Gulf Coast Region 

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eligibility. However, over 2 years have passed and the program is scheduled 

to end in less than a year. Therefore, to help end the direct housing assistance 

program by March 1, 2009, FEMA should implement the periodic 

recertification process as outlined in federal regulations and its internal policy. 

Failure to include this process in its exit strategy could jeopardize its ability to 

vacate and recover all temporary housing units by the scheduled ending date 

of the program. 

We recommend that the Administrator, Federal Emergency Management 

Agency: 

Recommendation #1: Obtain permanent housing plans from each resident, 

including timelines for achieving permanent housing. 

Recommendation #2: Perform periodic recertification visits to: 

(1) reestablish eligibility, (2) monitor progress in finding permanent housing, 

(3) identify unmet needs, (4) obtain support for continued eligibility, and 

(5) communicate resident responsibility for finding permanent housing. 

Recommendation #3: Implement policies and procedures for terminating 

residents from the direct housing assistance program that no longer qualify for 

the assistance, and evicting uncooperative residents from temporary housing 

units. 

Management Comments and OIG Analysis 

FEMA provided written comments on the draft of this report (See 

Appendix B). FEMA concurred with the three recommendations in this 

report. The following summarizes FEMA’s responses to each 

recommendation, our analysis of FEMA’s responses, and the status of each 

recommendation. 

Recommendation #1: Obtain permanent housing plans from each resident, 

including timelines for achieving permanent housing. 

FEMA concurs with this recommendation. The Louisiana Transitional 

Recovery Office (TRO) Individual Assistance (IA) -Recertification 

Department has obtained permanent housing plans along with timelines for 

completion for applicants housed in FEMA temporary housing units. 

Through periodic site visits and phone contacts, each TRO has continued to 

monitor and update these permanent housing plans. 

OIG Analysis: We consider FEMA’s planned action responsive to the 

recommendation. However, we reiterate that FEMA should ensure that the 

FEMA’s Exit Strategy for Temporary Housing 

in the Gulf Coast Region 

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requirement for permanent housing plans is emphasized in the recertification 

process, for current and future disasters. Therefore, the recommendation is 

resolved and closed. 

Recommendation #2: Perform periodic recertification visits to: 

(1) reestablish eligibility, (2) monitor progress in finding permanent housing, 

(3) identify unmet needs, (4) obtain support for continued eligibility, and 

(5) communicate resident responsibility for finding permanent housing. 

FEMA concurs with this recommendation. The Louisiana TRO IARecertification Department has obtained permanent housing plans along with 

timelines for completion for applicants housed in FEMA temporary housing 

units and have continued to make site visits to monitor and update these 

permanent housing plans. They require applicants to provide documentation 

to support their continued eligibility. This has included insurance settlements 

information, Road Home information, contractor information, income 

information, documentation regarding issues with local and state permitting 

and various other types of documentation that supports the progress or lack 

thereof with regards to completing their permanent housing plans. 

OIG Analysis: We consider FEMA’s planned action responsive to the 

recommendation. However, we reiterate that FEMA should ensure that the 

requirement for monitoring of continued applicant eligibility is emphasized in 

the recertification process, for current and future disasters. Therefore, the 

recommendation is resolved and closed. 

Recommendation #3: Implement policies and procedures for terminating 

residents from the direct housing assistance program that no longer qualify for 

the assistance, and evicting uncooperative residents from temporary housing 

units. 

FEMA concurs with this recommendation. FEMA is currently developing 

policies and procedures that will address this issue. Further information will 

be provided in their 90-day status update upon issuance of the final report. 

OIG Analysis: We consider FEMA’s planned action responsive to the 

recommendation. Therefore, the recommendation is resolved and open 

pending FEMA’s issuance and our review of the indicated policies and 

procedures. 

FEMA’s Exit Strategy for Temporary Housing 

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Appendix A 

Objective, Scope, and Methodology 

Our objective was to determine whether FEMA has developed and 

implemented an effective strategy for ending its direct housing assistance 

program and recovering temporary housing units, i.e., travel trailers, mobile 

homes, and park models. Our fieldwork consisted of interviews with FEMA 

and state officials, document reviews, and analysis of program performance 

data. We did not test the accuracy of statistical data provided by FEMA in its 

Individual Assistance Global Report. 

We reviewed relevant laws, federal regulations, and FEMA policies. We also 

reviewed Congressional testimony and prior Office of Inspector General and 

Government Accountability Office audit reports. In January 2008, we visited 

FEMA temporary housing sites and interviewed FEMA and state officials in 

New Orleans and Baton Rouge, Louisiana, and Biloxi, Mississippi. We 

limited our analysis to a review of FEMA’s exit strategy regarding temporary 

housing units located in Louisiana and Mississippi because these two states 

comprised 99% of the remaining temporary housing units as of May 31, 2008. 

We did not assess the adequacy of FEMA’s controls over its direct housing 

program because it was not necessary to accomplish our audit objective. 

We conducted this audit from September 2007 to May 2008 under the 

authority of the Inspector General Act of 1978, as amended, and according to 

Generally Accepted Government Auditing Standards. 

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Appendix B 

Management Comments to the Draft Report 

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Appendix B 

Management Comments to the Draft Report 

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Appendix B 

Management Comments to the Draft Report 

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Appendix B 

Management Comments to the Draft Report 

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Appendix B 

Management Comments to the Draft Report 

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Appendix C 

Types of FEMA Housing 

In the aftermath of a declared disaster, FEMA's actions focus on supporting 

state efforts to ensure that all disaster victims are provided safe and secure 

shelters, with access to food and other necessary life-sustaining commodities 

and resources. As the situation stabilizes, FEMA works with the state to 

transition shelter residents back to their pre-disaster dwellings or, if those 

dwellings cannot be re-inhabited, temporary housing. 

For most disasters, individuals are generally able to return to their homes 

within hours or days. However, for more serious disasters, where numerous 

dwellings have been destroyed or rendered uninhabitable for an extended 

period, additional housing assistance may be needed. The type of housing 

assistance provided during the intermediate housing period (generally up to 18 

months) covers the gap between sheltering and securing permanent housing 

and is referred to as interim housing. 

FEMA's approach is to provide safe, flexible interim housing assistance that 

can be adjusted to the range of requirements generated by a disaster. 

Types of Assistance: 

Immediate Temporary Repairs. FEMA provides plastic roof tarps, through 

the U.S. Army Corps of Engineers, to limit further damage to homes and 

make them habitable until permanent roof repairs can be made. 

Repair and Replacement Assistance. Following inspection and verification 

of damages, FEMA provides eligible homeowners up to $28,800 for repairs to 

make their home habitable, or to replace a destroyed or condemned home. 

Financial Rental Assistance. If a damaged home is destroyed or cannot be 

repaired quickly, FEMA provides financial assistance. This assistance can be 

used to rent an apartment or other temporary housing while repairs are 

underway or for disaster victims to look for permanent housing. 

Transitional Shelters. If emergency shelters are overwhelmed or FEMA 

determines that evacuees will not be able to return to their homes for an 

extended period of time, FEMA may authorize eligible disaster victims to 

receive temporary hotel-motel funding assistance under the Transitional 

Shelter Protocol. 

Host-State Housing Protocol. If significant numbers of disaster victims have 

been displaced to other states, FEMA may implement the Host-State Housing 

Protocol. This protocol enables FEMA to make rental assistance payments 

directly to property owners through federal partners or a contract agent and 

FEMA’s Exit Strategy for Temporary Housing 

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Appendix C 

Types of FEMA Housing 

can be provided for up to 18 months. While this protocol is designed for use 

in situations where states are hosting large numbers of evacuees from another 

state over an extended period of time, it may also be used within the affected 

home state. 

Manufactured Housing Assistance. If no apartments or other rentable 

properties are available within a reasonable commuting distance, temporary 

housing units may be needed. When requested by a state, FEMA provides a 

range of options for temporary housing units, which may include mobile 

homes, park models, or other alternative forms of temporary housing. Once 

the appropriate options are determined acceptable by the state, temporary 

housing can be located on an eligible victim's private property, on a preexisting commercial pad, or, as a last resort, on a new group site approved by 

local officials and constructed and maintained by FEMA. 

Alternative Forms of Direct Housing. FEMA works with states to identify 

eligible households for alternative housing. In general, the priority for such 

housing goes to private site applicants whose property is too small to 

accommodate a mobile home or park model, but may accommodate an 

alternative form of housing. 

. 

FEMA’s Exit Strategy for Temporary Housing 

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Appendix D 

FEMA’s Gulf Coast Inventory of Temporary Housing Units 

July 2007 Aug. 2007 Sept. 2007 Oct. 2007 Nov. 2007 Dec. 2007 Jan. 2008 Feb. 2008 Mar

Louisiana Group 5,729 5,314 4,374 3,801 3,023 2,312 1,990 1,499 

Private 38,396 37,842 34,651 32,934 30,414 27,820 26,016 23,213 

Commercial 5,581 5,532 5,170 5,060 4,655 4,251 3,842 3,333 

Industrial 1,109 1,064 1,012 969 882 843 781 652 

Totals 50,815 49,752 45,207 42,764 38,974 35,226 32,629 28,697 

Mississippi Group 1,524 1,499 1,402 1,309 1,153 1,071 991 850 

Private 14,017 13,585 12,290 11,343 10,344 9,408 8,512 7,315 

Commercial 2,171 1,499 2,019 1,892 1,742 1,625 1,633 1,568 

Industrial Totals 17,712 16,583 15,711 14,544 13,239 12,104 11,136 9,733 

Alabama Group Private 282 248 228 192 132 109 98 88 

Commercial 53 46 38 34 20 23 19 17 Industrial Totals 335 294 266 226 152 132 117 105 

Texas units: Group Private 1,074 1,038 881 773 612 470 354 187 

Commercial 31 28 

Industrial Totals 1,105 1,066 881 773 612 470 354 187 

Total Units 69,967 67,695 62,065 58,307 52,977 47,932 44,236 38,722 3

Source: FEMA Gulf Coast Recovery Individual Assistance Global Report 

FEMA’s Exit Strategy for Temporary Housing 

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Appendix E 

Major Contributors to this Report 

Gina Smith, Director 

Christopher Dodd, Audit Manager 

John Polledo, Auditor-in-Charge 

Stuart Josephs, Auditor 

FEMA’s Exit Strategy for Temporary Housing 

in the Gulf Coast Region 

Page 22 
Appendix F 

Report Distribution 

Department of Homeland Security 

Secretary 

Deputy Secretary 

Chief of Staff 

Deputy Chief of Staff 

General Counsel 

Executive Secretary 

Director, GAO/OIG Liaison Office 

Assistant Secretary, Office of Policy 

Assistant Secretary, Office of Public Affairs 

Assistant Secretary, Office of Legislative Affairs 

FEMA Assistant Administrator, Disaster Assistance Directorate 

FEMA Assistant Administrator, Gulf Coast Recovery 

FEMA Audit Liaison (Project Code DP7R09) 

Office of Management and Budget 

Chief, Homeland Security Branch 

DHS OIG Budget Examiner 

Congress 

Congressional Oversight and Appropriations Committees, as appropriate 

FEMA’s Exit Strategy for Temporary Housing 

in the Gulf Coast Region 

Page 23 
ADDITIONAL INFORMATION AND COPIES 

To obtain additional copies of this report, please call the Office of Inspector General (OIG) at (202) 254-4199, 

fax your request to (202) 254-4305, or visit the OIG web site at www.dhs.gov/oig. 

OIG HOTLINE 

To report alleged fraud, waste, abuse or mismanagement, or any other kind of criminal or noncriminal 

misconduct relative to department programs or operations: 

• Call our Hotline at 1-800-323-8603; 

• Fax the complaint directly to us at (202) 254-4292; 

• Email us at DHSOIGHOTLINE@dhs.gov; or 

• Write to us at: 

DHS Office of Inspector General/MAIL STOP 2600, 

Attention: Office of Investigations - Hotline, 

245 Murray Drive, SW, Building 410, 

Washington, DC 20528. 

The OIG seeks to protect the identity of each writer and caller.