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The only thing I can even think of is that the relief is intended to go this bad. There is a group of people who want nothing less than the military to be called in at the drop of a hat for any type of national disaster or terrorist event (real or just scares). The only way they can get this is if the FEMA continues to fail. I see news reports every now and then that basically ask questions like "in the next terror attack/natural disaster/ bird flu attack will we have to call in the troops?" Although I don't have exact quotes I've seen Bush call for that kind of power in speeches.
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