Exactly - they never get back up entirely after the last Hurricanes. Why change their equation when they get new property or shelter every time.
FEMA cannot do anything but work within the state emergency plan.
That is what was so frustrating about Katrina....the state and cities did not have good plans. FEMA could only do so much.
Puerto Rico should have one of the best emergency plans after Maria, but they screwed up again because it is run by incompetent, corrupt Democrats.