The report confirms many of the criticisms that have been leveled at the agency, especially in Puerto Rico, which President Trump visited a few weeks after Hurricane Maria and complained that the disaster “threw our budget a little out of whack.” At the time, the island’s hospitals were struggling to function, shortages of diesel fuel were keeping supermarkets closed and generators idle, and the death rate on the island was soaring.

The 2017 hurricane season in the United States was the most destructive on record. According to the report, nearly five million people registered for FEMA assistance last year, exceeding the combined total from four previous major hurricanes — Rita, Wilma, Katrina and Sandy. The 2017 storms caused a total of $265 billion in damage and badly stretched FEMA’s capacity to respond.

The report says FEMA had thousands fewer workers than it needed, and many of those it had were not qualified to handle such major catastrophes. FEMA had to borrow many workers from other agencies to help it manage the immense demand for essentials, from hotel rooms to drinking water, in the aftermath of the storms.

Although FEMA distributed 130 million meals, 35 million of them in Puerto Rico, the report says the agency took longer than expected to secure supplies and lost track of much of the aid it delivered and who needed it.

The report was expected to be made public on Monday, but the agency released it shortly after The New York Times reported on a draft obtained in advance. Kirstjen Nielsen, the homeland security secretary, said in a statement that the report “provides a transformative roadmap for how we respond to future catastrophic incidents.”