As I see it this is the breakdown of leadership at the lower levels.
The first to take charge of a situation like this is the Mayor and police chief. They are the officals that needed to take immediate charge of evacuation from the city and to maintain law and order. They were the ones to gather the resouces from day one to evacuate and maintain order from whatever source necessary.
The next up was the governor of the state to quickly mobilize the necessary personnel.
I just finished reading an article on My homepage on the anarchy that has taken place in the astrodome.