My limited experience with FEMA indicates that they focus more on chain of command issues than actual boots on the ground. I give you NIMS (National Incident Management System) as an example. I'm not saying that NIMS is a bad thing because it has its place, but they place a great deal of emphasis on this system and, based on the FEMA responses that I have witnessed, it has failed miserably at actually accomplishing much in terms of an adequate response. It sure makes for some interesting seating arrangements, though!