Disruptions is fundamentally a local matter

PROMPT-FEMA (2019) Download FEMA (2019)argues that preparedness for disasters or other key disruptions is fundamentally a local matter --
and needs to occur from the "bottom up" as opposed to the "top down."
Why is this report is making this claim?
How can building a culture of preparedness in a community be understood as a governance issue?
Do you think the idea that "culture brokers" might help produce greater preparedness and better hazards management in communities is a plausible one?