DEPARTMENT OF HOMELAND SECURITY 

Office of Inspector General 

Logistics Information Systems Need to Be

Strengthened at the Federal Emergency 

Management Agency
 

OIG-08-60 May 2008 
 

 

 

Office of Inspector General 

U.S. Department of Homeland Security 

Washington, DC 20528 

May 28, 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. 

This report addresses how well the Federal Emergency Management Agency manages 

information technology to support disaster response logistics activities. It is based on 

interviews with employees and officials of relevant agencies and institutions, direct 

observations, and a review of applicable documents. 

The recommendations herein have been developed to the best knowledge available to our 

office, and have been discussed in draft 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 
 

 

Table of Contents/Abbreviations 

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

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

Results of Audit....... ........................................................................................................................... 6
 

Existing IT Systems Do Not Support Logistics Activities Effectively..................................... 6
 

FEMA’s Efforts to Improve Logisitics Systems..................................................................... 13
 

Recommendations................................................................................................................... 17
 

Management Comments and OIG Evaluation................................................................18 

Appendices 

Appendix A: Scope and Methodology......................................................................................... 20 

Appendix B: Management Response to the Draft Report ........................................................... 22 

Appendix C: Major Contributors to this Report .......................................................................... 27 

Appendix D: Report Distribution................................................................................................. 28 

Abbreviations 

ADD Automated Deployment Database 

CIO Chief Information Officer 

Corps United States Army Corps of Engineers 

DHS Department of Homeland Security 

FEMA Federal Emergency Management Agency 

FOSA Federal Operational Staging Area 

GAO Government Accountability Office 

GPS Global Positioning System 

IRRIS Integrated Response and Recovery Information System 

IT Information Technology 

LIMS Logistics Information Management System 

LMD Logistics Management Directorate 

LMTI Logistics Management Transformation Initiative 

LOG-CONOPS Incident Logistics Concept of Operations 

OIG Office of Inspector General 

TAV Total Asset Visibility 

TPM Trading Partner Management 

WM Warehouse Management 
Table of Contents/Abbreviations 

Figures 

Figure 1 FEMA’s Logistics Management Directorate .......................................................... 3 

Figure 2 FEMA Offices and Facilities Locations ................................................................. 4 

Figure 3 FOSA at Camp Beauregard, Louisiana, August 8, 2006 ........................................ 7 

Figure 4 FEMA Distribution Center, Atlanta, Georgia....................................................... 10 
Page 1
 

OIG 

Department of Homeland Security 

Office of Inspector General 

Executive Summary 

We audited FEMA’s efforts to improve the information systems used to 

support its disaster response logistics processes. The objectives of this 

audit were to (1) determine how effectively existing and proposed 

information technology systems improve the coordination of disaster 

logistics management activities; and (2) assess the adequacy of FEMA’s 

strategies, plans, and procedures for acquiring and developing an 

efficient, transparent, and flexible logistics system. The scope and 

methodology of this review are discussed in Appendix A. 

FEMA’s existing information technology systems do not support 

logistics activities effectively. Specifically, the systems do not provide 

complete asset visibility of disaster goods, such as commodities and 

property, from their initial shipment to final distribution in disaster areas. 

The systems also do not provide comprehensive asset management; 

instead, several systems must be used to order, ship, and account for 

disaster goods. Additionally, the systems are not integrated and, 

therefore, cannot share information during disaster response. As a result, 

FEMA may be hindered in its ability to perform disaster response in an 

effective and timely manner. 

FEMA has taken a number of positive steps to improve its logistics 

capabilities by developing a planning strategy and gathering independent 

evaluations of its technology and operations. These efforts will enhance 

FEMA’s ability to assess its existing systems, identify its information 

technology system requirements, and select the appropriate technologies 

to meet its logistics needs. 

We are recommending that the FEMA Administrator direct the Logistics 

Management Directorate to finalize its logistics strategic and operational 

plans to guide logistics activities; develop standard business processes 

and procedures for logistics activities; evaluate current technologies; and 

develop a strategy for acquiring information technology systems to 

support the logistics mission. 

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Logistics Information Systems Need to Be Strengthened at the Federal Emergency Management Agency 
 

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Background 

The Federal Emergency Management Agency (FEMA) is responsible for 

developing a federal response capability that can act effectively and rapidly to 

deliver essential assistance. FEMA is responsible for saving lives and 

protecting or preserving property, and public health and safety in a natural 

disaster, act of terrorism, or other manmade disaster. In 2005, FEMA 

experienced significant challenges responding to hurricanes Katrina and Rita. 

The difficulty of responding to these hurricanes served as a catalyst for 

changes in federal policy and the organization of responsible federal entities, 

notably within the Department of Homeland Security (DHS) and in particular 

within FEMA. 

Following the 2005 hurricane season, the Congress passed the Post-Katrina 

Emergency Management Reform Act of 2006.

1

 Under the Act, FEMA became 

a distinct entity within DHS, with the FEMA Administrator reporting directly 

to the Secretary of DHS. The Act required FEMA to lead and support the 

Nation in a comprehensive emergency management system of preparedness, 

protection, response, recovery, and mitigation. It further required FEMA to 

develop an efficient, transparent, and flexible logistics system for procurement 

and delivery of goods and services during disasters, and to improve the 

information technology (IT) systems that support FEMA’s logistics activities. 

In response to the Act, FEMA recognized disaster logistics as one of its core 

competencies, and it elevated logistics from a branch within its response 

division to a directorate. Leadership of the new Logistics Management 

Directorate (LMD) reports directly to FEMA’s Administrator. LMD’s 

mission is to effectively plan, coordinate, manage, and provide national 

logistics response and recovery operations in support of domestic emergencies 

and special events. LMD has identified four specific core competencies 

necessary to accomplish its mission: 

• Logistics plans and exercises; 

• Logistics operations; 

• Distribution management; and 

• Property management. 

As illustrated in Figure 1, LMD is structured to reflect its focus on these 

competencies. 

1 Public Law 109-295, Title VI, October 4, 2006. 
 

Logistics Management 

Directorate, Office of the 

Assistant Administrator

Logistics Plans 

& Exercises 

Division

Distribution 

Management 

Division

Business 

Management 

Division

Property 

Management 

Division

Logistics 

Operations 

Division

Office of Logistics 

Transformation and 

Initiatives

Executive 

Coordination Group

 

 

Page 3 

Logistics Management 

Directorate, Office of the 

Assistant Administrator 

Logistics Plans 

& Exercises 

Division 

Distribution 

Management 

Division 

Business 

Management 

Division 

Property 

Management 

Division 

Logistics 

Operations 

Division 

Office of Logistics 

Transformation and 

Initiatives 

Executive 

Coordination Group 

Figure 1: FEMA’s Logistics Management Directorate 

LMD’s Office of Logistics Transformation and Initiatives is the focal point 

for researching, recommending, and integrating logistics transformation 

initiatives to enhance FEMA’s disaster logistics mission. The Executive 

Coordination Group coordinates, facilitates, and processes replies to 

Congressional and other requests for information. Logistics functions are 

organized into five LMD divisions: 

•	 Business Management – Responsible for human capital management, as 

well as budget, program, and analysis activities. 

•	 Distribution Management – Manages FEMA warehouse facilities and 

transportation systems used to store, maintain, issue, distribute, and track 

supplies, services, material, and equipment. 

•	 Logistics Plans and Exercises – Develops and provides logistics plans and 

exercises to achieve both short- and long-term readiness requirements. 

•	 Logistics Operations – Manages and executes the command and 

coordination, tracking, and reporting for all hazards operations. 

•	 Property Management – Provides management, internal control, and 

technical services for accountability, reutilization, and disposal of 

FEMA’s personal property assets. 

To support logistics activities, FEMA maintains eight permanent distribution 

centers, five of which are spread throughout the country with three centers 

located outside of the continental United States. These centers receive, store, 

ship, and recover disaster commodities, such as water and ready-to-eat meals, 

and property, such as the computers and office electronic equipment that are 

issued to responders and field facilities during disaster response. In addition, 

FEMA maintains an Emergency Housing Distribution and Logistics Center 

that provides additional storage and distribution capabilities for commodities. 

Figure 2 shows the location of these facilities. 

Logistics Information Systems Need to Be Strengthened at the Federal Emergency Management Agency 
 

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Figure 2: FEMA Offices and Facilities Locations 

FEMA relies on several IT systems to support its unique inventory and 

process needs, including: 

•	 Logistics Information Management System III (LIMS) is the system of 

record for personal property accountability requirements. Personal 

property includes items such as computers, cell phones, generators, and 

office furniture. 

•	 Total Asset Visibility (TAV) contains a group of IT systems that support 

logistics activities. The program includes the following systems: 

o	 eTasker is a web-based system that field personnel use to submit 

requests for property and commodities to FEMA headquarters. It 

also coordinates information for requests that involve 

transportation requirements. 

o	 Trading Partner Management (TPM) facilitates and tracks the 

movement of property and commodities from the time they are 

ordered through fulfillment and shipping. The system manages 

orders from all regions, links order information with shipment 

Logistics Information Systems Need to Be Strengthened at the Federal Emergency Management Agency 
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details, tracks specific sets of physical inventory, logs receipt of 

shipments at distribution centers and other regional sites, and 

provides updated shipment information to track changes in 

receiving locations. 

o	 Warehouse Management (WM) manages the inventory of goods 

stored at the distribution centers by recording the amount of items, 

such as generators, cots, and bottled water, that are on-hand. WM 

is currently deployed in only two distribution centers—Atlanta and 

Fort Worth. 

o	 OrbiTRAX provides the location information for global 

positioning system (GPS) transponders that are attached to FEMA 

trailers or certain FEMA items, such as generators. 

o	 Integrated Response and Recovery Information System 

(IRRIS) is an internet-based mapping application that allows users 

to view the location of in-transit trailers equipped with GPS 

devices from the time they leave distribution centers until arrival at 

staging areas. IRRIS uses shipment information supplied through 

TPM and location details supplied through OrbiTRAX. 

•	 Automated Deployment Database is used to identify and maintain a 

record of the personnel deployed during disasters to whom property items, 

such as cell phones and laptops, are issued. 

In September 2005, we reported that FEMA needed an improved resource 

tracking system with real-time capabilities. We also reported that the systems 

did not support effective or efficient coordination of deployment operations 

because they did not share information. We recommended that FEMA 

analyze alternatives and determine the most appropriate approach to providing 

the technology needed to support business and system requirements.2 Further, 

in March 2006, we reported that FEMA lacked standard operating procedures 

in resource ordering, had an inefficient and ineffective system for tracking 

requests, and the same information was entered into at least three tracking 

systems that were not linked.3 

2

 DHS OIG, Emergency Preparedness and Response Could Better Integrate Information Technology with Incident
 

Response and Recovery, OIG-05-36, September 2005. 

3

 DHS OIG, A Performance Review of FEMA’s Disaster Management Activities In Response to Hurricane Katrina, 

OIG-06-32, March 2006. 

Logistics Information Systems Need to Be Strengthened at the Federal Emergency Management Agency
 
 

 

 

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In May 2007, the Government Accountability Office (GAO) reported that 

FEMA should address five areas of logistics management for an effective 

logistics system: 

•	 Requirements – FEMA did not have operation plans to address disaster 

scenarios, nor did it have detailed information on states’ capabilities 

and resources; 

•	 Inventory Management – FEMA’s ability to track supplies in-transit 

was limited; 

•	 Facilities – FEMA had little assurance that it maintained the right 

number of facilities in the right places; 

•	 Distribution – Problems included poor transportation planning, 

unreliable contractors, and lack of distribution sites; and 

•	 People – Human capital issues were pervasive, including in the 

logistics area.4 

GAO noted that FEMA was taking many actions to transition its logistics 

program to be more proactive, flexible, and responsive, but that it would be 

several years before these areas were fully implemented and operational. 

Results of Audit 

Existing IT Systems Do Not Support Logistics Activities Effectively 

The Post-Katrina Emergency Management Reform Act of 2006 requires 

FEMA to develop a logistics system that provides visibility of disaster goods 

from procurement to delivery.5

 The Act also instructs FEMA to ensure that 

existing IT systems are compatible and share information. Additionally, other 

federal guidance directs agencies to select IT investments that will support 

core mission functions.6 

FEMA’s existing systems do not meet the requirements of the Post-Katrina 

Emergency Management Reform Act and do not support its core disaster 

response functions effectively. Specifically, the systems do not provide 

complete asset visibility, comprehensive asset management, or integrated 

information during disaster response. Without effective IT support for its 

4

 U.S. Government Accountability Office, Homeland Security: Observations on DHS and FEMA Efforts to Prepare for 

and Respond to Major and Catastrophic Disasters and Address Related Recommendations and Legislation, GAO-07-

835T, May 15, 2007. 

5

 Public Law 109-295, Title VI, October 4, 2006. 

6

 Circular A-11, Part 7, Planning, Budgeting, Acquisition, and Management of Capital Assets, Executive Office of the 

President, Office of Management and Budget, July 2007. 
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logistics activities, FEMA may be hindered in its ability to perform disaster 

response in an effective, timely manner. 

Complete Asset Visibility 

FEMA’s logistics systems do not provide visibility over disaster goods, such 

as commodities and property, throughout the entire shipment process. 

Specifically, the systems do not track shipments end-to-end, from the initial 

shipment of goods to final distribution in disaster areas. Further, the systems 

do not track shipments of disaster goods received from all FEMA partner 

agencies. To perform these functions, FEMA personnel are using alternate 

methods, such as ad hoc IT systems and paper forms. As a result, FEMA 

employees expend unnecessary time and effort to track, receive, and ship 

disaster goods, and cannot manage the deployment of goods effectively. 

Systems Do Not Track Shipments to Points of Distribution 

FEMA’s logistics systems do not track disaster goods from initial shipment to 

final delivery. To support disaster response activities, FEMA stores disaster 

goods in its distribution centers. During disaster response, the goods are 

shipped from these facilities, or from other vendors, to federal operational 

staging areas (FOSA), as pictured in Figure 3.7 After receiving the goods at 

the FOSA location, FEMA personnel ship them to state facilities or points of 

distribution, where they are distributed to disaster victims. 

Figure 3: FOSA at Camp Beauregard, Louisiana, August 8, 2006 

7

 FOSAs are identified as National Logistics Staging Areas, or NLSAs, in LMD’s draft Logistics Management 

Operations Manual. 
 

Page 8 

Although the order tracking system, TPM, tracks disaster goods shipped from 

FEMA distribution centers to FOSAs, it does not track the goods once 

received at the FOSAs or when they are shipped from the FOSAs to state 

facilities or other points of distribution. Instead, FEMA field personnel rely 

on paper transfer forms to track the goods. During the Hurricane Katrina 

response, one FOSA generated over 20 boxes of paperwork to log the transfer 

of goods to state facilities or points of distribution. 

Because the shipments are not tracked in TPM, the information on what has 

been received at or shipped from a FOSA is not readily available for FEMA 

managers to monitor. One regional official said that, historically, FEMA has 

lost track of water once it reaches the state level because it is difficult to 

monitor the paper transfer orders. To monitor the shipments, FEMA 

management have contacted field personnel regularly during disasters to 

determine the status of shipments. As a result, FEMA personnel spend time 

and effort to complete, store, and report information on FOSA inventory and 

shipments. 

To eliminate the time-intensive paperwork process and better track FOSA 

shipments, FEMA field personnel developed the eFOSA system, which they 

use to: 

• Receive shipments at the FOSA from FEMA and FEMA partners; 

• Maintain an inventory of trailers and their contents; and 

• Arrange and track shipments from the FOSA to points of distribution. 

FEMA’s Emergency Management Institute has provided training on eFOSA 

and distributed a Microsoft Access version of the database to many field 

personnel. However, eFOSA does not operate on the FEMA network; it 

provides information on the disaster goods only at an individual FOSA. 

Therefore, during disaster response, FEMA logistics managers cannot readily 

obtain complete information on the inventory and shipments of goods from 

multiple FOSAs. 

FEMA has tasked a contractor to upgrade the TPM system so that it can track 

the shipments of goods from FOSAs to points of distribution by June 2008. 

However, according to the contractor, although TPM is capable of performing 

this function, the upgrade will make the system slower and less user-friendly 

because FEMA personnel will have to wait for the system to load lengthy lists 

of shipment locations and then navigate through those to process a shipment. 

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Systems Do Not Track Goods Provided by External Partners 

FEMA’s logistics systems do not track disaster goods provided by all external 

partners. During disaster response, FEMA acquires goods and services from 

partners, including federal and nonfederal organizations, to supplement its onhand stocks. For example, during preparations for Hurricane Dean in August 

2007, the United States Army Corps of Engineers (Corps) prepared to provide 

ice, water, tarps, and temporary power. Similarly, during response to the 

California wildfires in late 2007, the American Red Cross provided cots to 

disaster victims. 

However, the existing logistics IT systems, specifically TPM, do not provide 

visibility of goods that are shipped to FOSAs from the Corps, American Red 

Cross, or state partners. To track the goods, FOSA managers have used paper 

copies of bills of lading or maintained spreadsheets with information on the 

shipments. More recently, they have begun to use eFOSA. 

Because FEMA is not tracking electronically the goods received from 

partners, FEMA managers cannot use the TAV systems to view, receive, or 

ship these goods to disaster sites. Unaware of incoming shipments from 

FEMA partners, FEMA field personnel could place duplicate orders for 

disaster goods. 

FEMA has begun to place GPS transponders on trucks carrying shipments 

from FEMA partners to provide greater visibility for those shipments. In 

addition, FEMA is working with certain partners, such as the Corps and 

American Red Cross, to have their shipment information input into TPM. 

Comprehensive Asset Management 

Logistics activities are further challenged because FEMA lacks a 

comprehensive system to account for its commodities, such as water and 

tarps, and its property, such as generators and cell phones. As a result, FEMA 

warehouse personnel must enter many goods into multiple systems, which 

may hinder their ability to receive and ship items quickly during disaster 

response. 

FEMA personnel use two separate systems to account for commodities and 

property. They use LIMS to track the quantity and value of FEMA property, 

the location of the property, and the personnel to whom it has been issued. 

They use the WM system to determine the quantity of goods within a 

distribution center. When distribution center personnel receive a shipment of 

property, they access both LIMS and WM to accept the property into the 

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distribution center. Similarly, when distribution center personnel are shipping 

property from the warehouse, such as a kit of furniture and supplies for a field 

office, they are required to scan and log the items into both LIMS and WM. 

When a distribution center enters property into LIMS, the value of those items 

is assigned to the center or the shipment location. Entering shipments into 

WM adds or subtracts the quantity from the store of disaster goods available 

in the warehouse. 

Because FEMA has implemented the WM system at only two of its eight 

distribution centers, WM contains information on a limited amount of goods. 

Therefore, FEMA does not have electronic access to inventory information for 

most of its distribution centers. Instead, distribution centers without the WM 

system rely on a combination of LIMS and spreadsheets to manage inventory. 

In addition, FEMA does not have electronic access to shipments between all 

of its distribution centers. For example, distribution center personnel can 

manage shipments between the two distribution centers that are using WM. 

However, when a distribution center that uses WM receives goods from a 

distribution center that does not, FEMA personnel must manually enter 

shipment and receipt information. 

Figure 4: FEMA Distribution Center, Atlanta, Georgia 

Without a comprehensive system, FEMA personnel must spend extra time and 

effort to manage goods. For example, when distribution center personnel 

prepare a kit of furniture and supplies for a field office, it requires numerous 

steps to complete the shipment. Personnel identify the goods to ship, package 

them, and then prepare a paper transfer report to document the shipment. 

Although the goods may leave the distribution center at that point, the systems 

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do not log the transfer until warehousing specialists manually enter the 

information into LIMS and the TAV systems, including WM. According to 

distribution center personnel, when staffing is low, the time-consuming 

paperwork and data entry forces them to choose between updating LIMS or 

the TAV systems. If information in these two systems is not current, FEMA 

management may not have an accurate account of the goods that are available 

for disaster response. 

As of December 2007, FEMA had placed the implementation of the WM 

system into the remaining distribution centers on hold. A program manager 

explained that FEMA will not invest funds to implement WM at all of the 

distribution centers until it has determined its long-term plans for system 

development. Further, senior LMD officials stated that they are considering 

replacing LIMS with an integrated commercial system to provide property 

accountability. 

Integrated Logistics Systems 

Several FEMA IT systems used for disaster logistics activities are not 

integrated and, therefore, cannot share information. Specifically, the eTasker 

ordering system and the TPM order tracking system do not share information 

about disaster goods orders. Further, the FEMA personnel tracking system, 

ADD, does not share information with the property management system, 

LIMS. As a result, FEMA personnel use multiple IT systems to complete 

response activities, requiring extra time and effort and potentially delaying 

disaster response. 

Logistics Ordering Systems Are Not Integrated 

The eTasker ordering system and the TPM order tracking system do not share 

information electronically. FEMA field personnel request disaster goods 

using the eTasker system. Commodity managers at FEMA headquarters 

receive these requests, enter the information into TPM, and select a location 

from which to ship the supplies. The commodity managers must then 

manually enter the shipment information from TPM, such as the shipping 

location and order number, into eTasker. 

Without integration, commodity managers must move back and forth between 

the eTasker and TPM systems, manually reentering data to complete an order. 

This process can hinder the delivery of disaster goods, since an order is not 

finalized and transmitted to a warehouse or distribution center for fulfillment 

until both eTasker and TPM have been updated. 

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Further, a warehouse official said that these systems, lacking integration and 

relying on manual entry, may contain errors or different pieces of information 

about an order. Because shipment and delivery of disaster goods relies on 

timely, accurate orders, warehouse staff must verify the accuracy of 

information for each order in eTasker, TPM, and WM. When the ordering 

process is time-consuming or orders are inaccurate, disaster response can be 

delayed. Several FEMA officials we spoke with said that integrating existing 

systems, including the TAV systems, should be a priority for FEMA. 

The TAV program office has developed a plan for improving logistics 

systems by June 2008. This plan will provide the basis for integration of the 

TAV systems, such as WM and TPM, with other logistics systems, such as 

LIMS. However, FEMA does not plan to integrate the individual TAV 

systems as part of this plan. FEMA personnel continue to rely on the 

nonintegrated eTasker, TPM, and WM systems for disaster response activities. 

FEMA Personnel and Property Systems Are Not Integrated 

FEMA has not integrated other systems supporting logistics activities. FEMA 

accounts for personnel and property at disaster sites and field offices using the 

human resources system, ADD, and the property accountability system, 

LIMS. As we reported in September 2005, ADD and LIMS were not 

integrated and this hindered FEMA from providing the appropriate number 

and combination of people and supplies to meet disaster needs.8 As of 

December 2007, these systems still were not integrated. 

Without an interface between the two systems, disaster personnel must 

complete several different steps to manually check-in and obtain property. In 

addition, disaster personnel are able to check out of a disaster site using ADD 

without returning the property that was issued to them at that location through 

LIMS. FEMA personnel agreed that a link between the two systems could 

minimize losses by requiring personnel to return all property before they 

could check out of a location. 

To fill the information sharing gaps between the existing personnel and 

property accountability systems, field personnel developed a solution. 

Contractors hired by regional officials created OneStop, a platform that could 

interface the personnel information in ADD and property information in 

LIMS. OneStop would automate the process of checking in and obtaining 

property at disaster or field locations. OneStop could also provide the 

8

 DHS OIG, Emergency Preparedness and Response Could Better Integrate Information Technology with Incident 

Response and Recovery, OIG-05-36, September 2005. 
 

 

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oversight necessary to hold personnel accountable for the property they 

receive at a disaster site. However, regional officials explained that the 

system is not being used widely because it has not received the necessary 

support and buy-in for continued development from logistics officials in the 

ADD and LIMS program offices. 

While the ADD program office and the LIMS program office have made 

updates and improvements to the individual systems, they have not 

coordinated to develop an interface between the two systems. Therefore, 

although the FEMA Chief Information Officer (CIO) considers this interface 

an existing requirement, officials from the CIO office, the LIMS program 

office, and the ADD program office all said that there are no plans for 

development of this interface. FEMA officials attributed the inaction to the 

need for additional funding to cover the costs of gathering requirements and 

user needs. 

FEMA’s Efforts to Improve Logistics Systems 

FEMA has made efforts to improve its logistics IT systems by developing a 

logistics planning strategy and conducting evaluations of its operations and 

technology. As of early 2008, FEMA was working to finalize its logistics 

strategic planning documents. As part of its planning efforts, FEMA is 

considering the recommendations provided in a number of logistics 

assessments. These efforts will enhance FEMA’s ability to assess its existing 

systems, identify its IT systems requirements, and select the appropriate 

technologies to meet its logistics needs. 

FEMA is Making Progress with Logistics Strategic Planning 

Federal guidance requires agencies to prepare a strategic plan for program 

activities that includes a detailed description of how goals and objectives are 

to be achieved, as well as details on the operational processes and information 

technology needed to meet immediate and long-term goals.9 Such plans are 

intended to provide a basis for further defining program efforts in a program 

plan. 

LMD has made progress in defining and documenting its strategic direction. 

Specifically, LMD has developed a logistics planning strategy that calls for 

developing three levels of logistics plans: strategic, operational, and tactical. 

At the time of our audit, LMD had drafted two of these plans: the FEMA 

Incident Logistics Concept of Operations (LOG-CONOPS) and a Logistics 

Management Operations Manual. 

9 Government Performance and Results Act of 1993, Public Law 103-62, 1993. 
 

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The LOG-CONOPS establishes how logistics will be accomplished for all 

hazards and throughout all incident phases. It is intended to provide the 

strategic management framework from which specific plans, procedures, and 

technology architecture are developed. It describes FEMA’s logistics mission 

and identifies the specific roles and responsibilities for establishing, 

maintaining, and executing agency-wide logistics plans, policies, and 

procedures, as well as the development of agency-wide logistics information 

management and communications capabilities. It will set forth FEMA’s 

supply chain management approach, as well as the strategies to support 

logistics operations. 

The Logistics Management Operations Manual contains FEMA’s vision and 

mission for serving as the lead federal agency responsible for logistics 

emergency management. It describes how FEMA and its public and private 

sector partners will provide logistics support to disaster victims. The manual 

defines logistics emergency management roles and responsibilities, and 

describes the strategies and processes for accomplishing logistic functions 

during disasters. 

These strategic and operational plans will provide a framework with which 

FEMA can establish its logistics goals, objectives, and priorities, and identify 

the technology needed to support them. However, the plans are still in draft 

and not complete. The lack of strategic direction in finalized plans has 

hampered FEMA’s ability to define and document standard processes and 

operating procedures for logistics activities. 

 FEMA Has Undertaken Initiatives for Long-Term Improvement 

The issues discussed in this report have been longstanding problems for 

FEMA, and the new LMD management has expressed its commitment to 

address them. In addition to focusing its efforts on developing logistics plans 

and strategies, LMD management has taken steps to transform the logistics 

process by conducting a number of independent evaluations of logistics 

operations and supporting IT systems. 

Logistics Organizational Assessment 

In January 2007, a contractor delivered its assessment of FEMA’s current 

logistics operations. The report concluded that FEMA had made great strides 

in its use of IT to support logistics processes. However, it also identified 

short-term and long-term recommendations for logistics IT improvement. 

Specifically, in the short-term, the assessment suggested that FEMA upgrade 

Logistics Information Systems Need to Be Strengthened at the Federal Emergency Management Agency 
 

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its poorly integrated, point solutions to a cohesive, planned logistics 

information system. 

Further, the report stated that long-term IT solutions should consider existing 

systems and ensure visibility of commodity inventories by state, other federal, 

and private sector enterprises. The assessment concluded that FEMA needed 

to better define its logistics objectives and improve its partnerships with 

external organizations. The report recommended that FEMA define its 

disaster logistics strategy, including a finalized CONOPS. 

 TAV Assessment 

The TAV program office, with assistance from a contractor, assessed FEMA’s 

logistics technologies in September 2007. The report stated that TAV 

provides strong integration capabilities to support future requirements, and 

that many issues could be resolved with standardization of business processes, 

the lack of which results in limited asset visibility. 

The report recommended that FEMA: 

•	 Engage regions in establishing standardized processes and data sharing 

among systems; 

•	 Delineate between property management and supply chain 

management; 

•	 Develop the resources to reduce reliance on contractors; 

•	 Implement selected interfaces; and 

•	 Resolve the overlap between the systems. 

Logistics Management Transformation Initiative 

In September 2007, after receiving the results of the previous studies, LMD 

took additional steps to develop long-term plans by contracting for a 

comprehensive assessment of FEMA logistics planning, processes, and 

technology. This assessment, referred to as Logistics Management 

Transformation Initiative (LMTI), included an evaluation, inventory, and 

analysis of FEMA logistics operations. Logistics officials intend for LMTI to 

help develop a long-term strategy that would transform FEMA’s business 

process functions and identify IT development opportunities. 

In its report issued in January 2008, the consultant said that FEMA logistics 

does not have a formal planning process to develop response scenarios, tailor 

its response capabilities, and determine service and performance levels. The 

report explained that planning activities develop a basis for program efforts 

and processes, as well as establish requirements for response activities. 

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In addition, the report stated that FEMA logistics has operated with an ad hoc 

approach and without standard processes, and FEMA has not provided the 

systems and processes necessary to effectively respond to disasters. The 

report suggested that FEMA could reduce extra time and effort by adopting 

standard processes for receiving goods at disaster sites and returning goods to 

warehouses or distribution centers. 

Moreover, the report explained that FEMA has not benefited from new 

technologies or IT systems because it lacks standard logistics processes. For 

example, FEMA has invested in industry-best software, such as the WM 

system, but its warehouse personnel still perform many manual activities. 

The LMTI assessment identified several challenges with the current IT 

logistics systems. The report discussed several issues similar to those 

identified during our review, including the lack of integration among existing 

logistics systems. Specifically, the LMTI assessment stated that a lack of 

integration or interfaces created weaknesses for eTasker, eFOSA, WM, and 

LIMS. Further, when systems do not interface effectively, FEMA cannot 

provide accurate information or improve the speed of disaster response 

efforts. In addition, the report stated that FEMA IT development efforts have 

been disjointed, resulting in a reliance on manual processes or isolated spot IT 

solutions. The report recommended that LMD document its core business 

functions and plan for IT systems to support these functions. 

Senior LMD officials are evaluating the LMTI report to determine the 

appropriate next steps. These officials said that the LMTI assessment, unlike 

previous assessments, adequately considered the challenges of FEMA’s 

disaster readiness and response mission. Specifically, FEMA and its 

contractor recognize that the agency must continue to respond to disasters 

throughout the logistics transformation process. Once LMD has evaluated the 

LMTI recommendations, the contractor will develop a detailed plan to 

implement them. 

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Recommendations 

We recommend that the Administrator of the Federal Emergency 

Management Agency direct the Director of the Logistics Management 

Directorate to: 

•	 Recommendation #1: Finalize its logistics, strategic, and operational 

plans to guide logistics activities. 

•	 Recommendation #2: Develop, communicate, and implement 

standardized processes and procedures for logistics activities. 

•	 Recommendation #3: Evaluate current IT systems to determine their 

ability to support logistics operations. 

•	 Recommendation #4: Based on the results of the evaluation, develop 

a strategy for acquiring IT systems to support the logistics mission. 
 

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Management Comments and OIG Evaluation 

We obtained written comments on a draft of this report from FEMA’s 

Logistics Management Directorate through the Director of the Office of 

Policy and Program Analysis. We have included a copy of the comments in 

their entirety in Appendix B. 

In the comments, the directorate concurred with all of the findings in our 

report and provided details on ongoing efforts to address the report 

recommendations. The directorate also acknowledged that our findings are 

consistent with the external assessment contracted to review logistics support 

operations in FEMA. In response to each of our report recommendations, the 

directorate summarized progress and outlined approaches for strengthening 

information systems in FEMA by the end of fiscal year 2010. Overall, the 

directorate has decided to address four core objectives to meet mission needs 

and provide logistics support: people; customers; processes; and systems. 

Specifically, FEMA will seek a professional workforce, develop permanent 

and professional relationships with stakeholders, outline and document key 

business processes, and modernize FEMA logistics systems. We believe that 

such efforts are good steps toward mitigating the various issues we raised in 

our report and look forward to learning more about continued progress and 

improvements in the future. 

Responding to Recommendation 1, the directorate commented that it 

continues to address planning issues by completing draft strategic documents 

and meeting with internal and external stakeholders. Specifically, the 

directorate has developed standard operating procedures for hurricane support, 

a draft concept of operations for logistics support, and additional planning 

toward its desired role as National Logistics Coordinator. FEMA also has 

developed a strategic transformation vision for achieving the role of National 

Logistics Coordinator. In addition, in March 2008, the directorate sponsored a 

National Logistics Coordination conference with participants from industry 

and federal, state, and local governments. During this conference, participants 

outlined and discussed a national strategy for logistics support. Further, the 

Assistant Administrator, Deputy Assistant Administrator, and division chiefs 

have met with disaster response stakeholders to discuss new logistics support 

strategies. 

In response to Recommendation 2, the directorate stated that conference calls 

and workgroups are establishing and communicating processes and 

procedures and expects this to be an ongoing effort as the directorate matures 

and becomes fully staffed. Specifically, the directorate commented that it has 

started to communicate standardized processes and procedures to regional 

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offices and personnel through conferences and weekly conference calls. In 

addition, a Distribution Management Strategy Workgroup develops 

partnerships with federal logistics stakeholders and the TAV Cadre program 

trains specialists to assist in asset visibility processes. 

The directorate has addressed Recommendation 3, which directed FEMA to 

evaluate current IT systems and support, and, as a result, has begun to address 

Recommendation 4 by developing a strategy for acquiring sufficient IT 

support. In the comments, the directorate explained that existing systems 

were put into place before current leadership. Following on the results of a 

September 2007 internal assessment and a March 2008 meeting with the 

FEMA CIO and Logistics Management Chief, the Assistant Administrator has 

made a recommendation to transition logistics support to two fully integrated 

systems. 

The response to Recommendation 4 outlined the directorate’s strategy for this 

IT support transition. Specifically, the directorate will utilize DHS’ standard 

property system, the Sunflower Asset Management System for property 

valued over $5,000. At the same time, the Assistant Administrator for 

Logistics has recommended that the existing TAV system be supplemented to 

manage asset tracking and financial accountability for commodities, such as 

meals, water, and tarps. Further, the directorate comments that, within the last 

30 days, the CIO has obtained funding to begin these transitions. Although 

the directorate explains that system links and integration are necessary, staff 

are working toward a common goal of transitioning to the new systems by the 

end of fiscal year 2010. 

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Appendix A 

Scope and Methodology 

As part of our ongoing responsibility to assess the efficiency, effectiveness, 

and economy of departmental programs and operations, we conducted an 

audit of FEMA’s disaster logistics systems. The objectives of our audit were 

to determine: 

•	 The efficacy of FEMA’s strategies, plans, and procedures for 

acquiring and developing an efficient, transparent, and flexible 

logistics system for procuring and delivering goods and services 

during emergency response, and 

•	 How effectively existing and proposed IT systems improve the 

coordination of disaster logistics. 

To establish criteria for this review, we researched U.S. laws, regulations, and 

other federal guidance applicable to FEMA disaster logistics. Documentation, 

such as media articles and press releases obtained through internet searches, 

provided background information on FEMA logistics and identified specific 

concerns and issues. Additionally, we reviewed prior reports and 

congressional testimony by the White House, Congressional, DHS OIG, 

GAO, and industry organizations to identify their findings and 

recommendations related to FEMA’s disaster logistics. 

We met with representatives from LMD, to learn about their roles, 

responsibilities, and activities related to logistics. Senior FEMA officials 

provided briefings on the structure of the new directorate and the systems used 

to manage inventory and its supply chain. The Assistant Administrator for 

Logistics discussed his vision, goals, and priorities for the new directorate. 

We also met with representatives from FEMA’s Office of Information 

Technology Services to learn how they are assisting LMD to develop and 

implement IT systems. 

During the course of our review, we conducted site visits to two FEMA 

Regions, Regions IV and VI, which we selected based on disaster activity and 

whether they had implemented the TAV program. At each location, we 

interviewed representatives of the FEMA Regional Office, Distribution 

Centers, and stakeholders. These interviews assisted in our understanding of 

the logistics process, IT systems used, and the involvement of users to develop 

requirements for systems. In addition, we evaluated FEMA’s implementation 

of the TAV program, its requirements, capabilities, and overall usefulness. 

We also interviewed FEMA stakeholder representatives from the American 

Red Cross, Army Corps of Engineers, and the Georgia Emergency 

Management Agency. These officials offered their perspectives on FEMA 

logistics, interactions with FEMA personnel, and strategies for providing the 

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Appendix A 

Scope and Methodology 

necessary disaster support. These officials also discussed their respective 

missions during disasters and the lack of IT interfaces to support their 

missions. 

We conducted our audit from October 2007 through April 2008 at FEMA 

headquarters in the Washington, D.C. metropolitan area, as well as in FEMA 

Region IV (Georgia), and Region VI (Texas). We performed our work 

according to generally accepted government audit standards. The principal 

OIG points of contact for this audit are Frank Deffer, Assistant Inspector 

General, Information Technology Audits, and Richard Harsche, Director, 

Information Management Division. Other major contributors are listed in 

Appendix C. 
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Appendix B 

Management Response to the Draft Report 
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Appendix B 

Management Response to the Draft Report 
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Appendix B 

Management Response to the Draft Report 
 

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Appendix B 

Management Response to the Draft Report 
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Appendix B 

Management Response to the Draft Report 
 

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Appendix C 

Major Contributors to this Report 

Information Management Division 

Richard Harsche, Director 

John Shiffer, Audit Manager 

Kristina Hayden, Auditor 

Kia Smith, Auditor 

Robert Durst, Referencer 

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Appendix D 

Report Distribution 

Department of Homeland Security 

Secretary 

Deputy Secretary 

Chief of Staff 

Deputy Chief of Staff 

General Counsel 

Executive Secretariat 

Assistant Secretary for Policy 

Assistant Secretary for Legislative Affairs 

Assistant Secretary for Public Affairs 

DHS Chief Information Officer 

Federal Emergency Management Agency, Administrator 

Federal Emergency Management Agency, Audit Liaison 

Federal Emergency Management Agency, Chief Information Officer 

Federal Emergency Management Agency, Director, Logistics Management 

DHS GAO/OIG Liaison Office 

Office of Management and Budget 

Chief, Homeland Security Branch 

DHS Program Examiner 

Congress 

Congressional Oversight and Appropriations Committees, as appropriate 
Additional Information and Copies 

To obtain additional copies of this report, 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; 

• E-mail 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.