Workplan For 9/11 Commission's Team 9

FOR OFFICIAL USE ONLY COMMISSION SENSITIVE

NATIONAL COMMISSION ON TERRORIST ATTACKS UPON THE UNITED STATES TEAM #9 WORKPLAN EMERGENCY RESPONSE AND CONSEQUENCE MANAGEMENT: NEW YORK CITY AND THE PENTAGON

Team Members: John Fanner John Azzarello Mark Bittinger Sam Caspersen Kevin Shaeffer Emily Walker

Item 1

Key Questions

Item 2

Suggested Readings

Item 3

Document Requests

Item 4

Interview Candidates

FOR OFFICIAL USE ONLY COMMISSION SENSITIVE

WORKPLAN - TEAM 9 EMERGENCY RESPONSE AND CONSEQUENCE MANAGEMENT: NEW YORK CITY AND THE PENTAGON

I.

Principal Issues and Questions to be Addressed Team 9 has been charged with investigating the nature and adequacy of the emergency response to the 9/11 attacks in the immediate aftermath of the attacks. Specifically, the investigation is to cover the emergency response and consequence management of decision makers concerning New York City and the Pentagon, and the nature and effectiveness of any strategic contingency plans that were put into place. Much hasJseen written about the attacks on the World Trade Center and Pentagon and the chaos they created and challenges they posed for emergency responders at all levels (excerpts from some of the published accounts are appended). It is fair to conclude, however, that because the accounts to date have each taken a narrow perspective, the definitive account of the_emergency response to the events of September 11, 2001 in New York City and Washington, D.C. has yet to be written. Team 9's work, coupled with Team 8's analysis of emergency decision making at the level of national leadership, will enable the Commission to provide such an overall assessment. Although the published accounts of emergency response on 9/11 differ greatly in their particulars, they are consistent in one important respect: all responders tended to assess the situation by thinking first about the nature of the damage to the buildings themselves, second about evacuating the people inside the buildings, and third about more general crisis response issues such as command and control and communications. Team 9 has chosen to use this consistent thought process as the organizing principle for its inquiry. 1. Questions related to THE BUILDINGS A. In General Given that the buildings lay in close proximity to existing flight paths, were the buildings designed to withstand the potential impact of commercial aircraft and, if so, what types of aircraft? Was any assessment done of the buildings' ability to withstand damage from large-scale explosions and fires?

Were the design and structure of the buildings reviewed periodically to determine whether their safety features were antiquated? B. Lessons Learned What steps have been taken in New York City and Washington, D.C. to assure coordination between first responders and structural engineers and architects in the event of future catastrophic events? In analyzing the performance of the WTC and Pentagon buildings, what are the most significant lessons to be learned regarding building design, fireproofing, fire protection, and egress standards? 2. Questions related to THE EVACUATIONS A. In general Were building evacuations conducted in accordance with existing plans? Were the evacuations successful? B. Lessons Learned (Most are to be determined)_ Should rooftop evacuation capabilities be mandated for all high rise buildings (as it is in Los Angeles but not in New York)? 3. Questions related to CONSEQUENCE MANAGEMENT A. In general 1) Command and Control Was a clear command structure established? How did the command structure adapt to changing conditions? Did the command structure provide strategic direction to response efforts? 2) Communications Did first responders experience significant communications failures?

Were communications failures the result of faulty infrastructure, protocols, or both? 3) Securing the Scene How successfully were differing institutionaL^erspectives of first responders (law enforcement, fire fighting, emergency medical) integrated in the actual response? B. Lessons Learned How has emergency and continuity of government and business operations planning been adjusted since September 11? What steps have been taken to implement the recommendations of after-action reports such as the McKinsey Reports on the NYPD and the FDNY and the Arlington County Fire Department's After-Action Study? What steps have been taken to achieve interoperability and to develop a clearly defined Incident Command Structure? How effective has the new Department of Homeland Security been in improving communication between federal intelligence agencies and state and local governments? ~~

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To what extent do budgetary constraints jeopardize reform measures? II.

Investigative Process and End Product Team 9's investigation will proceed as follows: (Phase 1) Recreate from contemporaneous documentation, after-the-fact agency assessments, and interviews with relevant officials the minute-byminute reactions of government and the private sector at all levels to the condition of the buildings, the need to evacuate, and need to manage the ongoing crisis. (Phase 2) Compare the real-life, real-time reactions of government agencies to any strategic contingency plans that may have existed, assessing the adequacy of those contingency plans in light of what we have learned about how the emergency response. (Phase 3) Assess the adequacy of inter-agency coordination and communication, with particular regard to the nature and quality of intelligence

information that existed and the extent to which it was shared in the aftermath of the attacks. (Phase 4) Ultimately, render a qualitative judgment about 1) WTC and Pentagon building performance, 2) WTC and Pentagon building evacuation actions, and 3) crisis management actions, providing recommendations pursuant to statute relating to the "structure, coordination, management, and procedure" of emergency response efforts taken by federal, state, and local governments as well as relevant nongovernmental entities.

III.

Suggested Unclassified Reading Langewiesche, William, American Ground: Unbuilding, the World Trade Center. New York: Farrar, Strauss & Giroux, 2002,','pp. 5-34. Miller, Stone, and MitchelLTTie Cell. New York: Hyperion Press, 2002, pp. 7-27. Smith, Dennis, Report From Ground Zero. New York: Penguin Books, 2002. Von Essen, Thomas, Strong of Heart. New York: HarperCollins, 2002, pp. 11-59. New York City Fire Department. Increasing FDNY's Preparedness. New York: McKinsey & Company, Executive Summary, August 2002. New York City Police Department. Improving NYPD Emergency Preparedness and Response. New York: McKinsey & Company, Executive Summary, August 2002. Arlington County. Arlington County: After-Action Report on the Response to the September 11 Terrorist Attack on the Pentagon. Reston, VA: Titan, Executive Summary, 2002. :^'" Federal Emergency Management Agency. State and Local Guide (SLG 101) Guide for All-Hazard Emergency Operations Planning. Chapter 6, Attachment G "Terrorism," April 2001. National Institute of Justice. Why Can't We Talk? Working Together To Bridge the Communications Gap To Save Lives. National Task Force on Interoperabilityy-February 2003, pp. 1-14. United States Government Interagency Domestic Terrorism Concept of Operations Plan (CONPLAN), January 2001. http://www.fbi.gov/publications/conplan/conplan.pdf

Federal Response Plan (FRP) 9230.1-PL, January 2003. http://www.fema. gov/pdf/rrr/frp/frp2003 .pdf ' 3 i '' '•

General Accounting Office. GAO-03-251, Report to Congress on the Vulnerability of U.S. Financial Markets to Wide Scale Disasters. Executive Summary, pp. 1-2, February 2003. Advisory Panel to Assess Response Capabilities for Terrorism Involving Weapons of Mass Destruction. Fourth Annual Report to the President and the Congress: Implementing the National Strategy. Arlington, VA: RAND, pp. 40, 86-103,1-1 -1-14, December 2002. National Guard Bureau. September 11, 2001 Comprehensive Reference Resource. McLean, VA: Science Applications International Corporation, CD-ROM, November 2002.

IV.

Documents to be requested 1. New York: a. Transcripts of all FDNY post-September 11 interviews conducted by McKinsey & Company (over 100 total interviews.) b. Transcripts of all NYPD post-September 11 interviews conducted by McKinsey & Company (109 total interviews.) c. Transcripts of all FDNY internal department interviews relating to September 11th emergency response actions. d. Transcripts of all NYPD internal department interviews relating to September 11th emergency response actions. e. Radio communication tapes (and transcripts) for all FDNY communications September 11, 2001. f. Radio communication tapes (and transcripts) for all NYPD communications September 11, 2001. g. All FDNY dispatch records for September 11 - 20, 2001. h. All NYPD dispatch records for September 11 - 20,2001. i.

All FDNY operational logs for September 11 - 20, 2001.

j. All NYPD operational logs for September 11 - 20, 2001.

k. All FDNY post-September 11 internal after-action "task forces" transcripts and final reports. 1. All NYPD post-September 11 internal after-action "task forces" transcripts and final reports. m. All NYPD post-September 11 personnel survey results conducted by McKinsey & Company. n. All FDNY "WTC Briefings" (briefings prepared September 11, 2001 December 31,2001.) o. All NYPD "WTC Briefings" (briefings prepared September 11, 2001 December 31,2001.) p. Copy of NYPD "Criminal Justice Bureau Report" q. Copy of all NYPD "SWAMP site maps" r. Copies of all FDNY incidenrreports relevant to September 11 response and recovery operations. s. Copies of all NYPD incident reports relevant to September 11 response and recovery operations. t. Copies of NYPD pre-September 11 "Patrol Guides," "Disorder Control Guidelines," "Training Manuals," "Citywide Security Assessments Plan(s)." u. Transcripts of all New York City 9-1-1 calls September 11 - 20, 2001. v. All internal FDNY video footage of September 11 attacks emergency response and recovery operations. w. All internal NYPD video footage of September 11 attacks emergency response operations. x. Copy of all FDNY pre-September 11 emergency recall plans and guidance. y. Copy of all NYPD pre- September 11 emergency recall plans and guidance. z. All NYPD pre-September 11 "precinct disaster plans."

aa. All Port Authority of operational logs September 11- 20, 2001 . bb. All Port Authority dispatch records September 11 - 20, 2001. cc. All Port Authority communication tapes and transcripts for September 11. dd. All Port Authority Pre-September 11 WTC Building Evacuation Plans. ee. All Port Authority Airport Control Tower Logs for September 11. ff. All Port Authority Airport Control Tower communications tapes and transcripts for September 11. gg. All Port Authority Airport Management communications with WTC Building Management on September 11. hh. All Port Authority Port Commerce logs for September 11. ii. All Port Authority Harbor Ferry logs for September 11. 2. Pentagon:

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a. Transcripts of all ACFD internal department interviews relating to September 11th emergency response actions. b. Transcripts of all ACPD internal department interviews relating to September 11th emergency response actions. c. Radio communication tapes (and transcripts) for all ACFD communications September 11, 2001. d. Radio communication tapes (and transcripts) for all ACPD communications September 11, 2001. e. All ACFD dispatch records for September 11 - 20, 2001. f. All ACPD dispatch records for September 11 - 20, 2001. g. Transcripts of all ACFD internal department interviews relating to September 11th emergency response actions. h. Transcripts of all ACPD internal department interviews relating to September 11th emergency response actions. i. All ACFD operational logs for September 11 - 20, 2001.

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j. All ACPD operational logs for September 11 - 20, 2001. k. All ACFD "Pentagon Briefings" (briefings prepared September 11, 2001 -December 31,2001.) 1. All ACPD "Pentagon Briefings" (briefings prepared September 11, 2001 -December 31,2001.) m. Copies of all ACFD incident reports relevant to September 11 response and recovery operations. n. Copies of all ACPD incident reports relevant to September 11 response and recovery operations. :• o. All internal ACFD video footage of September 11 attacks emergency response and recovery operations^~~ p. All internal ACPD video footage of September 11 attacks emergency response operations. q. Copy of all ACFD pre-September 11 emergency recall plans and guidance. r. Copy of all ACPD pre- September 11 emergency recall plans and guidance. s. Transcripts of all Defense Protective Service radio communications September 11,2001. t. Copies of all Defense Protective Service operational logs September 1120,2001. coi u. Transcripts of all Department of Defense official public briefings for September 11-20,2001. V.

Potential witnesses to interview The following federal, state, and local organizations are relevant to Team 9's completing a "full and complete account" of emergency response and'crisis management following the September 11th attacks. Individuals of interest within each organization (present during September 11 - 20, 2001) will be the specific focus of National Commission fact-determining interviews. 1. Federal Government:

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Federal Emergency Management Agency (FEMA) • Joe M Allbaugh, former FEMA Director Federal Bureau of Investigation (FBI) : • Barry Mawn, Director in Charge New York Field Office • Kevin P. Donovan, Assistant Director in Charge New York Field Office • Van A. Harp, Assistant Director in Charge Washington D.C. Field Office • Arthur Eberhart, Special Agent in Charge Washington Field Office • Pasquale J. D'Amuro, Associate Special Agent in Charge of the Criminal Division in the FBI's New York Field Office • Special Agent Breznay, (Senior FBI official on scene) • Stephen Wiley, Special Agent in Charge of the Critical Incident Response Group (CIRG) • Robert Blecksmith, Assistant Special Agent in Charge • Rick McFeely, Supervisory Special Agent • John Kerr, Supervisory Special Agent • Christopher Combs, Special Agent National Capital Response Squad • Special Agent in Charge of the Crisis Management Unit (CMU) • Special Agent in Charge of the Rapid Deployment Logistics Unit (RDLU) • Special Agent in Charge of the Disaster Squad • John Adams, Special Agent in Charge of the'Evidence Recovery Team Department of Justice, Office of Domestic Preparedness (DoJ ODP) Department of Defense, Defense Protective Service (DPS) • John Jester, Chief Department of Defense, Military District of Washington (MOW) United States Capitol Police United States Park Police, District of Columbia base Department of Health and Human Services, Office of Emergency Preparedness (OEP) Centers for Disease Control and Prevention (CDC), National Institute for Occupational Safety and Health (NIOSH) Environmental Protection Agency, Criminal Investigation Division (CID) Department of Homeland Security (DHS) • Michael Brown, Under Secretary for Emergency Preparedness & Response, Department of Homeland Security

2. New York: Governor's office • George Pataki, Governor New York State Emergency Management Office (SEMO) • Edward Jacoby, Jr., Director SEMO New York State Police

• James W. McMahon, Superintendent New York National Guard • Major General Thomas P. Maguire, Jr., Adjutant General NY 3. New Jersey (note: John Farmer will recuse himself from NJ aspects): - Governor's office • Donald DiFrancesco, Acting Governor - New Jersey Office of Emergency Management - New Jersey State Police - New Jersey National Guard 4. The Port Authority of New York and New Jersey • Lewis M. Eisenberg, Chairman •: • Chairman A. Gargano, Vice Chairman • Ronald Shiftan, Interim Executive Director • Ernesto Butcher, Chief Operating Officer • Peter Rinaldi, Structural Engineer • Richard Garlock, Structural Engineer, LERA Corp. • Greg Burnham , Chief Technology Office • Joseph J. Seymour, PA ED • Victoria Cross Kelly, Deputy Director Path System -• Commerce Director • Cargo Director • Head of Bridges and Tunnels • Head of Airports • Public Affairs 5. Virginia: - Governor's office • Jim Gilmore, Governor Virginia State Police • Colonel W. Gerald Massengill, Superintendent - Virginia National Guard • Maj. Gen. Claude A. Williams, Adjutant General - Virginia Department of Emergency Management • Michael Cline, Director 6. Washington DC: - Mayor's office • Anthony Williams, Mayor - DC Emergency Management Agency • Peter G. LaPorte, Director DC Fire & Emergency Medical Services Department • Ronnie Few, Chief - DC Metropolitan Police Department (MPD)

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Charles H. Ramsey, Chief

7. Pennsylvania: Governor's office • Tom Ridge, Governor Pennsylvania State Police • Paul J. Evanko, Commissioner Pennsylvania Emergency Management Agency o David Smith, Director 8. New York City: - Mayor's office • Rudy Giuliani, Mayor • Joe Lhota, Chief of Staff to the Mayor - New York City Office of Emergency Management (OEM) - Fire Department of New York City (FDN Y) • Thomas Von Essen, Commissioner • Daniel Nigro, Assistant Fire Chief of Operations • Peter Hayden, Deputy Fire Chief, • Stephen Mosiello, Fire Marshall • Joseph Callan, Chief • Albert Turi, Deputy Assistant Chief of Fire Safety, • Vincent Dunn, Deputy Fire Chief, Retired • Joseph Pfeifer, Captain • Thomas Fitzpatrick, Deputy Fire Chief, • -Walter Kowalczyk, Emergency Medical Service Officer - New York City Police Department (NYPD) • Bernie Kerik, Commissioner • John Picciano, Chief Aide to Commissioner 8. Pentagon Area: Arlington County Fire Department (ACFD) • Edward Plaugher, Fire Chief, • James Schwartz, Assistant Chief for Operations, • Shawn Kelley, Assistant Fire Chief, • John White, Assistant Chief for Technical Support, • Mark Penn, Deputy Coordinator of Emergency Services • Edward Blunt, Captain - Arlington County Police Department (ACPD) • Edward Flynn, Chief • Deputy Chief Ho • Rebecca Hackney, Captain - Arlington County Sheriffs Office (ASCO) • Beth Arthur, Sherrif Montgomery County Urban Search and Rescue Team 11

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Fairfax County Departments City of Alexandria Departments Louden County Departments Greenbelt Maryland Departments Manassas County Police Department MWAA Fire Department at Ronald Reagan Airport

9. Financial Sector: Verizon Corporation - ConEdison Power Corporation - Cantor Fitzgerald - Morgan Stanley Select tenants of the World Trade Center and financial district - NYSE - American Stock Exchange - NASDAQ - SEC _

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