Mayor and Governor, and particularly the governor freeked. If the mayor freeked, still the governor had overriding authority.
This will go down in history as a study on HOW NOT TO REACT IN THE FIRST 72 HOURS.
The governor is the person who had the greatest authority to deal with this - even greater than the President.
The president was only able to act AFTER request by the governor, or if the governor or state was clearly incapable. Sadly, that wasn't (quite) the case.