Government Saw Flood Risk but Not Levee Failure
American disaster officials say they have long known that New Orleans was especially vulnerable, but none of their preparedness drills considered possibility that levees keeping Lake Pontchartrain out of city would be breached; disaster experts, while acknowledging that Hurricane Katrina posed unprecedented difficulties, say evacuation measures were inadequate; say large numbers of National Guard troops should have been deployed on flooded streets early in the disaster to keep order; some question whether federal government's intense focus on terrorism has distracted from planning practical steps to cope with major natural disaster; American Red Cross official Joe Becker says first, lifesaving phase of hurricane response, which usually lasts just hours, in this case is stretching over days; calls government response 'nothing short of heroic'; some critics fault Federal Emergency Management Agency, while others say blame should be more widely spread; note that local, state and federal officials have cooperated on disaster planning; photo; map (M)