I didn't read it that way after I read later in the report that they had no plan to use buses.
What did you read?
There is much criticism of Bush for not anticipating damage from a cat 4 or 5 storm. However, the Mayor and city /state officials knew that the approaching 5 storm could cause flooding of NOLA. Under that condition, the buses, without question, should have been deployed before the storm reach NOLA. Someone gambled to save the buses, and many people died unnecessarily.