Still, GAO investigators said there is uncertainty between USDA and the Department of Homeland Security as to what role each would take during an emergency. The lack of coordination between the two departments would slow initial responses as they work to figure out their jobs. 

The report also found that 14 of the 19 state response plans for bird flu reviewed by GAO were incomplete. For example, state plans often failed to include important time frames needed to assess whether they were controlling the virus. 

USDA said it accepted the recommendation "to develop additional clarity and definition" between the department and Homeland Security. 

The agency also vowed to more closely monitor high-pathogenic bird flu response plans to ensure they are appropriate should an outbreak occur. It noted a new rule that required states to develop low-pathogenic plans that must then be reviewed and approved by USDA. Some of the more mild strains can develop into the highly pathogenic virus. 

GAO said the incomplete state plans were particularly troublesome since states typically are the first to respond to a suspected outbreak. 

Government investigators also are worried about incomplete information on the number and location of birds in backyards, the ability of laboratories to handle a surge in testing, disposal of carcasses, and uncertainty as to the amount of antiviral medication needed for workers depopulating diseased animals and cleaning infected facilities. 

The investigation was requested by a bipartisan group of senators including Tom Harkin of Iowa, a Democrat, and Saxby Chambliss, a Georgia Republican. 

"This is not a new threat to this country and, while GAO highlights measures USDA has taken to prepare the country for such a threat, there should be no excuse for failing to have a stronger response system in place," said Harkin, chairman of the Senate Agriculture Committee.