It is shocking, because downtown areas along the coast are already expecting 30". The FEMA (is that right?) should have declared a state of emergency and carried out an official evacuation.
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FEMA doesn't declare a state of emergency. They can't. They have no authority or jurisdiction. Their job is to respond to emergencies.
Under certain, limited conditions the POTUS can declare a state of emergency.
A state governor can declare a state of emergency for his jurisdiction (anywhere in the state), as can in many states a mayor (for example) for their smaller one. This initiates a process which allows the deployment of various services (such as FEMA) and the application for disbursement of various funding sources.
The Governor of Texas
had already declared a state of emergency even before Harvey hit them.
Evacuation orders
were put in place, both mandatory and voluntary depending on the location, before the storm hit.
You really ought to educate yourself about the facts before you decide to criticize.
Issuing an evacuation order is not a trivial exercise. The costs and disruption have to be carefully evaluated compared to the dangers of allowing the residents to remain.
One proven problem with evacuation orders is that it has been made evident that if they are issued and it ultimately turns out they were not needed then the residents of those areas will be far less likely to heed later ones which end up being critical. This has been demonstrated clearly in places like coastal NC, where hurricanes are an annual occurrence.
Not all places
can be evacuated. Depending on the size of the resident population and expected severity of the storm it may be less dangerous to direct people to stay in place.
It's one thing to evacuate tens or even hundreds of thousands or so from a single locale. It is an entirely different thing to try to evacuate millions.