[Senate Hearing 107-568]
[From the U.S. Government Publishing Office]
S. Hrg. 107-568
FEMA'S RESPONSE TO THE
SEPTEMBER 11TH ATTACKS
=======================================================================
HEARING
BEFORE THE
COMMITTEE ON
ENVIRONMENT AND PUBLIC WORKS
UNITED STATES SENATE
ONE HUNDRED SEVENTH CONGRESS
FIRST SESSION
ON
EFFECTIVENESS OF THE RESPONSE BY THE FEDERAL EMERGENCY MANAGEMENT
AGENCY TO THE TERRORIST ATTACKS ON THE WORLD TRADE CENTER IN NEW YORK
CITY AND THE PENTAGON
__________
OCTOBER 16, 2001
__________
Printed for the use of the Committee on Environment and Public Works
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COMMITTEE ON ENVIRONMENT AND PUBLIC WORKS
ONE HUNDRED SEVENTH CONGRESS
JAMES M. JEFFORDS, Vermont, Chairman
MAX BAUCUS, Montana BOB SMITH, New Hampshire
HARRY REID, Nevada JOHN W. WARNER, Virginia
BOB GRAHAM, Florida JAMES M. INHOFE, Oklahoma
JOSEPH I. LIEBERMAN, Connecticut CHRISTOPHER S. BOND, Missouri
BARBARA BOXER, California GEORGE V. VOINOVICH, Ohio
RON WYDEN, Oregon MICHAEL D. CRAPO, Idaho
THOMAS R. CARPER, Delaware LINCOLN CHAFEE, Rhode Island
HILLARY RODHAM CLINTON, New York ARLEN SPECTER, Pennsylvania
JON S. CORZINE, New Jersey PETE V. DOMENICI, New Mexico
Ken Connolly, Majority Staff Director
Dave Conover, Minority Staff Director
C O N T E N T S
----------
OCTOBER 16, 2001
OPENING STATEMENTS
Page
Bond, Hon. Christopher S., U.S. Senator from the State of
Missouri....................................................... 43
Carper, Hon. Thomas R., U.S. Senator from the State of Delaware.. 19
Clinton, Hon. Hillary Rodham, U.S. Senator from the State of New
York........................................................... 12
Corzine, Hon. Jon S., U.S. Senator from the State of New Jersey.. 17
Jeffords, Hon. James M., U.S. Senator from the State of Vermont.. 1
Smith, Hon. Bob, U.S. Senator from the State of New Hampshire.... 2
Voinovich, Hon. George V., U.S. Senator from the State of Ohio... 4
Warner, Hon. John W., U.S. Senator from the Commonwealth of
Virginia....................................................... 21
WITNESSES
Allbaugh, Hon. Joseph, Director, Federal Emergency Management
Agency......................................................... 7
Prepared statement........................................... 44
Hessinger, Robert, Logistics section manager, Ohio Task Force
One; accompanied by Squad Officer Michael Kenney............... 28
Prepared statement........................................... 55
Metzinger, Jeffrey L., fire captain, Sacramento, CA Metropolitan
Fire District; member, FEMA Urban Search and Rescue Team....... 25
Prepared statement........................................... 50
Plaugher, Edward P., chief, Arlington County, VA Fire Department. 23
Prepared statement........................................... 48
FEMA'S RESPONSE TO THE
SEPTEMBER 11TH ATTACKS
----------
TUESDAY, OCTOBER 16, 2001
U.S. Senate,
Committee on Environment and Public Works,
Washington, DC.
The committee met, pursuant to notice, at 10 a.m. in room
406, Dirksen Senate Office Building, Hon. James M. Jeffords,
(chairman of the committee) presiding.
Present: Senators Jeffords, Clinton, Smith, Corzine,
Voinovich, Carper, and Warner.
OPENING STATEMENT OF HON. JAMES M. JEFFORDS,
U.S. SENATOR FROM THE STATE OF VERMONT
Senator Jeffords. Good morning. I would like to welcome
everyone in attendance here today. I would especially like to
welcome Director Allbaugh and the other witnesses that we will
be hearing from.
We are here this morning to discuss the emergency response
to the horrible events of September 11, to learn from these
experiences and to offer the help of the Committee on
Environment and Public Works in preparing future relief
efforts.
I visited both the Pentagon and World Trade Center shortly
after the tragic events of September 11, another day that will
sadly live in infamy. The devastation I witnessed was
incredible and difficult to put into words. Thousands of people
lost their lives due to the cruel and cunning acts of an evil
perpetrated by a few. The victims of these attacks were men,
women and children, people with well laid-out plans for
pleasant and prosperous futures.
At these two disaster sites, I also saw the incredible
courage and the dedication of firefighters, urban search and
rescuers and other emergency personnel responding to the
disaster. People from Vermont, Ohio, Virginia and California
and many points in between came to the rescue. I witnessed the
tireless efforts of men and women of FEMA working hard to
coordinate the relief effort.
Although I left both the Pentagon and the World Trade
Center with a heavy heart, I also left with a profound sense of
gratitude for the gallant efforts of countless rescuers and
volunteers who tirelessly and mostly anonymously worked in
places reserved only for the Ground Zero heroes.
In the month following the attack, I have spoken to many
people, Vermonters and others, about the attack. They have all
expressed profound sadness of our Nation's great loss. But they
have also imbued me with a feeling that freedom will prevail,
that good will triumph over evil, and that these horrible
attacks cannot break our resolve to stand together as free
Americans.
Abraham Lincoln once said, ``Freedom is the last, best hope
on Earth.'' Terrorists may have destroyed these buildings, but
they cannot destroy the hope that freedom provides. Today we
assemble to commend the efforts of the Federal Emergency
Management Agency in responding to this disaster. We assemble
to commend the work of emergency responders who gave so much of
themselves in serving others. We assemble to hear what remains
to be done in the aftermath of these sad events.
To this end, the committee is also considering several
legislative proposals to help FEMA better respond to this
disaster and any future incidents. Additionally, in the last
few weeks, this committee has received security-related
briefing from all the Federal agencies we oversee, including
the Army Corps of Engineers, the Environmental Protection
Agency, the Nuclear Regulatory Commission, the Department of
Transportation and the General Services Administration and
others. The most important message I have taken from these
meetings is that the Federal Government is working around the
clock to protect our Nation.
These briefings have also resulted in the request for
additional authority from Congress. I want to put my colleagues
on notice that in the coming weeks, the Environment and Public
Works Committee will be putting together a legislative package
to deal with the security needs of the Nation. This package
will include proposals put forth by the agencies we oversee, of
this committee, and the recommendations given to me by the
members of the committee.
Finally, I'd like to address Mr. Allbaugh and the many of
those who responded directly to the Pentagon and World Trade
Center attacks. I cannot possibly understand how difficult it
must have been to have personally toiled in this devastation
and trauma. As a Nation, we need to heal. Our thoughts go first
to the victims and the families and those attacks.
But we must not forget that first responders are human.
Firefighters, search and rescue personnel and other members of
the emergency response community faced extreme stress from
these traumatic events. Coping with the intense feelings and
shock will take time. I hope all the emergency response
personnel will take this time and look for support when needed
and look to us.
I want you to know how proud all of us are for the work
that you have done. I look forward to the hearing and the
testimony of the witnesses.
I now turn to my good friend, Senator Smith.
OPENING STATEMENT OF HON. BOB SMITH, U.S. SENATOR FROM THE
STATE OF NEW HAMPSHIRE
Senator Smith. Thank you very much, Mr. Chairman. Thank you
for holding the hearing. Thank you, Mr. Allbaugh, and all the
witnesses, for being here today. Sitting here this morning, I'm
reminded of the Thomas Paine quote: ``These are the times that
try men's souls.'' The sunshine patriots will shrink from the
service of their country, but I see no sunshine patriots here.
Even as we speak, part of the Senate office building next
door is closed down as they check air vents and other office
spaces for anthrax. Staff cannot use their offices. I never
dreamed that we would ever face anything like this.
I want to say a very special welcome to all of you for
being here. Director Allbaugh, I don't know if you recall, but
before your confirmation you came in to my office and we talked
about how we need to focus on terrorism and preparedness, and
disaster response. Little did you know how quickly you were
going to be baptized in that.
I welcome you here today and look forward to discussing
your role in response to September 11. From this Senator's
perspective, you have done a fantastic job, all of you. We want
to heap the praise on you that you deserve, but also hear from
you about what happened.
I want to thank all of your staff and the volunteers that
fall under the FEMA umbrella for the tireless work that they've
done in the past several weeks. I must say, as I just said to
you privately, I've never been a Yankees fan, but last night,
seeing Giuliani sit in the stands and watching the Yankees win
that game and come back from three runs back, it was kind of a
good feeling. I'm still not a Yankees fan. Seeing Jeter dive
into the stands to catch a ball to save a ball game was very
interesting.
I spoke with so many of you when I was in New York and also
at the Pentagon a few days after the attack. I talked with the
firemen, the policemen, the rescue workers and search and
rescue teams. You're the embodiment of professionalism and
patriotism and kindness and emotion. I could not help but be
moved as we were there, I think 6 days after September 11, I
saw the firemen and the rescue workers coming out of those
ruins, with the emotion showing on their faces, showing the
disappointment of not finding anybody alive. It was truly an
experience that I'll never forget.
Mr. Chairman, we have here today the chief of the Arlington
County Fire Department. He played a vital role in responding to
the attack at the Pentagon. Two members of the search and
rescue teams that were called upon by FEMA to respond to the
World Trade Center disaster are other witnesses. The three of
you do not just represent your individual units; but you
represent every single man and woman all over America and all
emergency personnel for the tremendous job you did at both the
Pentagon and the World Trade Center. You responded from all
over the Nation.
Who and what you represent is the best tradition that this
Nation has to offer. We often think of the military as the best
of our American spirit, but in both deeds and spirit, you have
joined those honored ranks. I know I embarrass you when I say
it, but you're heroes, every one of you. That term is not used
too often these days, sometimes, maybe it's not used often
enough.
I remember as a kid in grade school I thought about being a
fireman or a policeman. If I had chosen that route, I certainly
could never be prouder than I am of all of you today. You are
the embodiment of the American belief, which is that gift which
makes this Nation so different from all the others. As
President Bush said so well the other day, ``That spirit will
never break.'' We're seeing the change in people's attitudes,
we're not represented by fallen buildings. The ``can do''
spirit is America, and you made us proud. Mr. Allbaugh, you did
as well.
So we're here this morning not only to listen to how you
responded to the attacks, but just as important, to publicly
thank you on behalf of the U.S. Senate, and on behalf of the
people of this Nation. We wish to extend our deepest sympathies
for the loss of your brothers and sisters who were on the scene
first and who gave their lives in an attempt to save others.
Remarkable heroism.
I read your testimony, and will speak to you about it,
Captain Metzinger. I'm talking about your daily chronicle. It
is such a tremendous story. Your words vividly brought back my
own memories of what I saw in New York. When I was there--
``surreal''--you used that term--the expanse of this disaster
is difficult to comprehend. I was touched by the business card
that you found, wondering whether that man had survived. I hope
he did, but I don't know if you know or we'll ever know.
Thank you all for being here. Thanks for the tremendous job
that you did, are doing, and continue to do in the future.
Thank you, Mr. Chairman, for holding the hearing.
Senator Jeffords. Thank you.
Senator Voinovich.
OPENING STATEMENT OF HON. GEORGE V. VOINOVICH,
U.S. SENATOR FROM THE STATE OF OHIO
Senator Voinovich. Mr. Chairman, first of all, I'd like to
thank you for holding this hearing today. Also, thank you for
the time and effort that you have put in as chairman of this
committee to carry out our responsibilities in terms of FEMA. I
know that you have really given it everything that you have,
and I want to thank you publicly for that.
I'd like to welcome Joe Allbaugh today.
Mr. Allbaugh. Thank you, sir.
Senator Voinovich. I've already thanked you in writing,
Joe, for the outstanding job that you've done in your public
appearances in comforting and reassuring countless persons in
this country. You are working to keep things under control and
respond to the emergency situations that you encounter. I know
that you'd be the first one to admit that one of the nice
things that happened to you is that you inherited a pretty good
team from James Lee Witt. I know one of my concerns when you
came on board was that fires, tornadoes, disasters don't wait
for confirmation hearings. They occur. I don't think you ever
had any idea that you'd be encountering what you have during
the last month or so.
I also know that the other agencies of government have been
cooperative. I was impressed, for example, that some of the
folks I met up in New York were from the Department of Energy,
and that the Administration just really pulled together in a
unique way to respond to our crisis.
In addition to that, I've been impressed, and I know you've
been impressed with the outstanding emergency response teams
that we have in this country. I know as a former mayor and
governor, I wondered whether or not, if something like this
happened, whether they had the ability to respond. I think they
showed us and the country how good they really are.
I'm really pleased that one of the witnesses we have here
today is Robert Hessinger, from the Ohio Task Force that
responded to the attack in New York. One of the things that
impressed me, Mr. Chairman, when we went to the Pentagon and
met with Chief Plaugher, he talked about the emergency response
teams from this region that were there, right on the ball.
I suspected, Chief, that it would have been the Federal
Government handling Pentagon protection, and found out it was
Arlington and Prince George's County and Fairfax that were
there, on the ball. It was their teams, local government teams,
that were responding. I found somebody from Nebraska, from an
emergency response team, he was bragging about the Ohio team
was up in New York. I had no idea.
I just want to say that from my perspective, how proud I
really am of what FEMA did, but also the tremendous
infrastructure today that we have in this country to deal with
crises like we've had here in Washington and New York.
The real question that I've got this morning, and I think
we want to find out, is just what you had in terms of
resources, were they adequate, where are you today and how can
we improve upon the situation? What can we do to help you get
the job done? I'm so pleased that the chairman, in his remarks,
said that we want to respond to the Administration's needs.
One of my real concerns, Mr. Chairman, is that all of us in
our zeal to be helpful are coming up with all kinds of
administrative models that we try to superimpose our ideas on
the Administration. The Administration is up to here in
rattlesnakes and with the challenges that they have.
It seems to me that one of the most important things that
the Congress can do is to wait for the Administration to come
back to us with their recommendations on how they think they
can best get the job done and how we can help them to get that
job done. The last thing I would want, if I were the President
of the United States, is to have my legislative body tell me
what structure to follow and how I was going to go about doing
the job. I'm very interested in hearing your thoughts on that
today, Joe. I'll be interested to see from the folks on the
local level if they're satisfied with the organization and
routines that we have in place, and to ask their ideas about
how we can help them to do a better job.
Last, but not least, I want to join the ranking member and
the chairman of this committee in thanking all of you for your
service to your country. All of us were so proud of the way you
responded, and all of us cannot help but grieve along with the
families of your brothers and sisters who gave their lives for
their fellow man.
One of the things that I always did as mayor and governor
is, I was there to swear in our police and our firemen and our
State troopers. I did it because I wanted to remind the people
of the great service and sacrifice of our people in uniform.
Sometimes, you are taken for granted, and I think that today
this Nation understands how really important you are. You were
on the front lines and in my opinion, to give witness to the
second great commandment, that is, love of fellow man. Thank
you for your service.
[The prepared statement of Hon. George V. Voinovich
follows:]
Statement of Hon. George V. Voinovich, U.S. Senator from the State
of Ohio
Good morning, Mr. Chairman.
I would like to thank you for holding this important hearing on
FEMA's response to the terrorist attacks on the Pentagon and the World
Trade Center on September 11.
I would like to welcome Joe Allbaugh to today's hearing. I've
already thanked Joe in writing for the outstanding job he's doing. His
public appearances were and are comforting and reassuring to countless
persons. Reassurance is something that the American public needs right
now, and Joe, you are just a calming influence. That's something that
this Nation is going to need in the months ahead.
I'm sure that Joe would agree that FEMA's ability to respond to a
crisis is because he inherited a great team from James Lee Witt.
Director Witt is a wonderful man, and in my view, one of the finest
officials in the Clinton Administration. He had a wonderful ability to
pull together the right elements from all over to respond to crises as
they arose.
Joe, you've picked up some very good emergency response teams
across the country that you are able to call upon in times of
emergency.
Today, we have one of those teams represented here by Robert
Hessinger, of Ohio Task Force One. As my colleagues know, Ohio Task
Force One responded to the attack in New York City.
Ohio Task Force One is a designated FEMA emergency response team.
It is made up of volunteers from fire departments across Ohio and is
coordinated out of Wright Patterson Air Force Base in Dayton.
Mr. Hessinger is the Logistics Chief for Ohio Task Force One and in
his regular job, is a firefighter/paramedic with the Kettering Ohio
Fire Department. He is accompanied today by Mike Kenney, a Captain with
the Dayton Ohio Fire Department and also a member of Ohio Task Force
One.
Seventy-two members of Ohio Task Force One were mobilized just
hours after the attack on the World Trade Center on September 11 and
were among the first out-of-State FEMA teams to respond to ``Ground
Zero.''
On the Friday following the attack on our Nation, I visited the
Pentagon, along with Chairman Jeffords, to observe first-hand FEMA's
response to this attack.
I should not have been surprised that it was the local fire
departments from Arlington, Fairfax and Prince George's County that
were on the scene first. As a former Mayor and Governor, I know first-
hand that these are the men and women who are our Nation's first line
of defense in a crisis.
One of the first people I met on my tour with Chairman Jeffords was
Chief Ed Plaugher of the Arlington County Fire Department. Chief, I'm
glad that you are here today.
I must say that we were impressed with the Arlington Fire
Department, which was one of the first on the scene to fight the fire
and help rescue wounded personnel.
In addition, we witnessed first-hand the work conducted by FEMA
employees those first few days following the attack. Director Allbaugh
should be very proud of their dedication.
The following week, I toured the World Trade Center site with 40 of
my Senate colleagues. The bravery, professionalism, and sacrifice of
the men and women of the New York Fire Department, New York Police
Department and other emergency workers is an inspiration to us all.
These men and women are true heroes in every sense of the word.
I am also proud of the men and women of Ohio Task Force One, who
traveled to New York without hesitation to offer their expertise and
assistance to the New York rescue workers.
From my observations, I think the men and women of FEMA have done
an outstanding job in the immediate response to these attacks and they
are continuing to provide vital assistance in both New York City and
Arlington.
The hearing today is to find out from Mr. Allbaugh and our other
witnesses as to how they think they did (and are doing), what resources
that they didn't have that they should have had, and how they think
they'll be able to respond to crises in the future.
I remember when Director Allbaugh came to see me prior to his
confirmation, I asked him about the ``human capital crisis,'' if he had
the people to get the job done. He said he felt comfortable with the
people he had, but Joe, the one question that I want to ask you is:
what more do we need to do to help you do a better job? To the others,
what I'll want to know is: what do we need to do to enhance our
readiness to handle traditional emergencies and the unexpected crises?
I thank Director Allbaugh and our witnesses for taking the time to
be here today, this is an important topic and an important hearing. I
also want to again commend the emergency services personnel of New
York, Pennsylvania, northern Virginia and the District of Columbia and
all those who came to assist from across the Nation. They are true
heros and our Nation owes them a debt of gratitude.
Senator Jeffords. Thank you, Senator.
I would point out, in case you're wondering where the rest
of the committee is, we're having a briefing on the events of
yesterday, let's leave it at that.
Mr. Allbaugh, Director, please proceed.
STATEMENT OF JOE M. ALLBAUGH, DIRECTOR,
FEDERAL EMERGENCY MANAGEMENT AGENCY
Mr. Allbaugh. Than you, Mr. Chairman, Senator Smith,
Senator Voinovich. I appreciate the opportunity to be here this
morning. I am always humbled and honored to come before this
committee.
Actually, I'll be brief in my remarks because I know you
have several questions. I'd just like to begin by telling you
that these folks sitting on the front row before you are the
true heroes of everyday American life. They represent heroes,
many men and women who put their lives on the line, whom we
often take for granted, as Senator Voinovich said. They're
always first in line for budget cuts and last in line for
recognition. I think, as a result of September 11, that maybe
these brave men and women will be due the admiration that they
so richly deserve, putting their lives on the line every minute
of every day all across this country.
Five weeks ago this morning, our world was transformed. At
that time, President Bush told me to make sure that the Federal
Government would provide whatever assistance was needed in New
York, Pennsylvania and at the Pentagon. That mission is still a
work in progress, but I can assure you and the American public
that FEMA's response was swift and comprehensive and our
commitment of continued support is unwavering.
Since September 11, I've spent many days at Ground Zero in
New York City. I visited the site in Pennsylvania, was inside
the Pentagon the Saturday after the event. Those places are
where the true heroes are--those who were in their offices at
work, grabbing a cup of coffee, on an airplane; and those who
were first to respond to the tragic events--the firefighters,
the police officers, the emergency medical technicians.
All are gone now, but I can assure you they're not
forgotten. Our prayers are still with those folks and their
families. Working hand-in-hand with Governor Pataki, Mayor
Giuliani, Fire Commissioner Tommy VonEssen and Police
Commissioner Bernard Kerik and many others, we've begun the
painful process of recovery.
Beginning on September 11, FEMA deployed 26 of our 28
national urban search and rescue teams. Twenty-one went to New
York, ultimately, the last one checking out of New York a week
ago this last Sunday. Five went to northern Virginia at the
Pentagon site. The New York City Office of Emergency
Management's Task Force was among the first responders at the
World Trade Center. Its leader, Chief Ray Downey, a person I
was lucky to know, a great partner of FEMA, was on the scene.
Tragically, he and his team never made it out.
I watched our rescue teams join New York City's finest and
Virginia's finest, working shoulder to shoulder around the
clock to find their brothers and sisters and fellow citizens.
These sites are truly hallowed ground. Now our rescue teams
have gone home and we are fully engaged in the recovery
process. We have millions of tons of debris still to be moved
out of New York City. It will take months. As of this morning,
we've only moved out 300 million tons. It doesn't sound like
very much compared to what we have to move.
Before and since the President signed the disaster
declarations for Pennsylvania, for New Jersey, for Virginia and
New York, FEMA activated the Federal response plan. To your
point, Senator Voinovich, I think what we planned to do in this
event worked just like it was supposed to, according to the
Federal response plan.
We activated our emergency operations center here and in
our 10 regions. We established disaster field offices in
Virginia, New York and New Jersey and declared these disasters
with public assistance at 100 percent for eligible cost. Our
biggest concern currently is to make sure that the right
assistance is getting to the right people. Many people need
counseling; they will need counseling for a long time to come.
Many qualify for individual assistance. I want to make sure
that those people are helped.
In addition, we are there to help States and local
governments with their public assistance needs, such as their
public buildings, roads, streets, and emergency protective
measures, making sure that these men and women are reimbursed
for their time, material, their equipment in proper fashion.
In the past month, thousands of Federal employees have been
working day and night at our disaster field offices at these
three sites. Today we still have 1,300 FEMA employees deployed
to New York City. Our job is not finished, but we will see it
through to the end.
In the meantime, we're currently looking at all aspects of
our disaster response in those three States to determine the
lessons learned to be better prepared for the future. We're
also working with President Bush and his Administration on any
new legislative needs. As we continue to move forward with the
recovery, I will let you know promptly if there is any new need
for authorities.
Let me conclude on a personal note, if you don't mind. I
attended about 10 days ago and spoke at the funeral of Captain
Terry Haddon in New York City. Two weeks prior to that, on
August 29, I had the fortune to sit down with his coworkers at
Rescue One on 43rd Street in New York City to have a lunch with
those individuals. Chief Ray Downey was there, with 13 or 14 of
us around the table. We had a great time.
I try to stop in our country's firehouses every opportunity
that I'm out on the road. It is amazing what I'm able to learn,
what their needs are, what their wishes, wants, hopes. They are
a true family in those firehouses all across the country. In
that short 1\1/2\-hour, I became, I thought, a small part of
their family.
The night before Terry's funeral, I attended a wake in New
York City. His wife Beth, who subsequently found out that she
was pregnant with their first child after September 11--Terry
never knew--handed me a small card. On one side it was a short
life history of Terry. On the back part of the card was the
Fireman's Prayer. I'd like to close just with the last sentence
of that prayer, because I think it says so much about men and
women who wear the uniform of our country's military. It says
so much about the firemen and the firewomen and the police
officers and the emergency responders and all those individuals
who lost their lives on September 11.
It goes like this: ``If, according to my fate, I am to lose
my life, please bless with Your protecting hand my family,
friends and wife.'' For Terry Haddon, Ray Downey, Joey
Angelini, Dennis Mohica and thousands of other souls that were
lost on that fateful day, I hope that those of us still living
and thriving can help provide that protecting hand to all the
families and loved ones.
Mr. Chairman, I thank you for this opportunity and I know
you have a lot of questions. But I do appreciate the
opportunity to be here this morning.
Senator Jeffords. Thank you very much for your very moving
story. All of us want to join you in doing what we can. One
thing I would like to try and find out is to learn what we can
do to help the families have closure on the events, and yet at
the same time, recognize that their loved ones died for a cause
of freedom. We should recognize that.
However, we have some business to get to. As you know, this
committee sent a letter to the White House shortly after the
September 11th attacks, pledging our support for FEMA's
disaster relief efforts. Today I again say that we are willing
to work with FEMA to assist the disaster relief efforts. To
date, have you identified any areas where additional
legislation of authority is needed to aid in these efforts?
Mr. Allbaugh. Mr. Chairman, I don't think there are any
immediate needs of additional authority for FEMA. Our principal
response is to facilitate and coordinate those needs that local
entities and State entities need when a disaster arises. I
would like to say that at all three sites, I'm proud of the way
FEMA responded to these disasters, approaching it with the
right attitude. In that, as the Chief can tell you, in
Virginia, he was in charge of that site. In New York City,
Commissioner Tommy VonEssen and Police Commissioner Kerik were
and still are in charge of those sites. We brought all the
Federal assets that we possibly could to assist them.
In New York City alone, we had something like 18 Federal
agencies at our disaster field office. At no time have I ever
experienced an unwillingness on the part of any individual that
represented any Federal agency to not be of assistance. I think
you will hear this morning from these gentleman ways in which
we can possibly improve parts of our urban search and rescue
efforts.
I'm not necessarily sure that we need more teams, quite
frankly, but we need to expand their capabilities. Debris
removal is an awesome effort in New York City. It will probably
cost us, and these are guesstimates, between $7 billion and $10
billion just to clean up the site.
We have the capability, we have the authorities right now
in place for us to do our job. Our disaster field office is
open around the clock. We were given use of Pier 94, in
cooperation with the City of New York, which was set aside for
family members. We have a family assistance center downtown at
141 Wharf Street, the intersection of Wharf and Center. We have
a disaster field office in northern Virginia, trying to make
sure that all those individuals and their families who have
been affected by this incident are taken care of.
I mentioned in my remarks about the need for counseling. I
am deeply concerned about our capability to provide proper
counseling, not only for the victims, but for the men and women
who are working these incidents. They need a lot of attention.
This isn't something that's just going to happen overnight; it
will take years to get over this.
I know, being from Oklahoma, I know individuals personally
who have yet to be over the incident of April 19, 1995, the
Oklahoma City bombing. This is probably the biggest task ahead
of us--making sure that we have proper professionals trained to
assist families and rescue workers along the way to recovery.
Senator Jeffords. What do they have available to them now?
Mr. Allbaugh. We contract with the city and State to bring
in the necessary professionals as they see fit. Rowe O'Keefe
runs Pier 94. She is a city employee, works directly for Mayor
Guiliani; she has done a phenomenal job. I am so proud to even
know her, handling the needs of thousands of individuals who
come in and are wanting to bring closure to this part of their
life. We have individuals from the State health organizations
in New York, State health organizations in Virginia and
Pennsylvania onsite, at our DFOs, assisting those family
members as they continue this grieving process.
Unfortunately, as human beings, we need a body to bring
closure to this. I'm afraid in many instances, there will be
many families who will go on forever with many more questions
than we have answers to. Those are the ones that I'm most
concerned about.
The crisis counseling, the supply of individuals from the
Red Cross, the Salvation Army, the professionals, are a ready
reservoir and we're calling upon them. We just need to make
sure that we have the money to pay them for their time to
assist these families as they try to bring closure to this
event.
Senator Jeffords. This has clearly been a most painful and
unfortunate chapter in the country's history. Thousands, as you
say, lost their lives in a disaster unlike any other that we've
seen in the past. Given the enormity of the relief effort, what
are the greatest lessons that FEMA has learned from this?
Mr. Allbaugh. I would say probably our greatest lesson is
to lean as far forward out of the foxhole as we possibly can.
We can never underestimate what our needs may be in the future.
We oftentimes find ourselves on the receiving end of phone
calls and responding appropriately.
I think there is a need for--not only us at FEMA, but the
entire Federal Government, to re-think how we approach everyday
life and the way we do our business. Oftentimes in these
disasters, particularly on September 11, we second-guess
ourselves whether we moved quickly enough. I know I immediately
activated urban search and rescue teams, and we moved three or
four in that afternoon of September 11 into New York City.
I'm not sure how we could have moved any quicker, quite
frankly. At that time, as you will remember, we were grounding
all the airplanes across the country and transportation became
an issue. But that's the only issue we had, was the
availability of those aircraft to get back up into the air. We
had plenty of aircraft to move our teams into position at the
Pentagon and New York. But it was a logistical problem that
took a few hours to work out, and we did work it out.
Senator Jeffords. Senator Smith.
Senator Smith. Thank you, Mr. Chairman. I'll start by
saying, Senator Inhofe had a funeral to attend in Oklahoma and
he asked me to personally extend his regards to you and all of
the rescue folks who are here.
There is oftentimes in government operations--from Senators
or President on down through the various bureaucracies--a lot
of criticism about how government doesn't work. We are all
human beings, and we all work together. It makes me proud to be
an American.
I want to thank you again. I can't say it enough. I don't
have any hard questions to throw at you, Joe. I would just make
a couple of comments. I think that as the Office of National
Preparedness is put together, and as Governor Ridge begins
working with the President to construct that office, that is
going to have some impact on FEMA. I'm not going to ask you
about how that would work now, because obviously, we don't know
yet.
I ask you to stay in touch with us on the committee, so if
there are any legislative initiatives that need to be taken, to
help make that office function in conjunction with FEMA, we'd
like to know that so we can get out ahead on it. We don't know
how long this crisis is going to last here in this country.
Also, if it takes administrative changes, then let us know what
they are and we'll be supportive.
There was such professionalism in the District of Columbia
area and the New York area. Do you have any idea, and we might
ask the same question of the other panel when they come up, if
it had not been as large a metropolitan area, would the results
have been any different? Not necessarily in terms of the
patriotism and the involvement, obviously, but just in terms of
how smoothly it would have worked with FEMA and the local
officials? Would there have been any difference, do you think?
Mr. Allbaugh. The chief can probably speak better to this
than I could. But from my perspective as the director, I cannot
imagine any better working relationship than what we had at the
Pentagon or in New York City and in Somerset County, PA. I do
believe, though, that had this happened in most cities in the
United States, the need, the demand, the requirement to respond
probably would have overwhelmed local capabilities.
So in that respect, I think that we had this event here at
the Pentagon, New York City, they were prepared. Fortunately,
the chief had Montgomery County and Fairfax County in his hip
pocket to rely upon. He has a great working relationship with
those individuals, knew exactly their pluses and minuses, and
knew what he could call upon from those groups to perform at
the Pentagon.
New York City was just a little bit different. You have
16,000 firefighters, 40,000 police officers in the city of New
York. If you will remember, the fire department lost its
leadership. There was a tremendous void. Without that command-
and-control leadership structure, things do become chaotic. It
becomes problematic for the incident commander to respond
appropriately, knowing exactly where all his members are at any
one given moment or where he needs to attack the fire, or where
the individuals are.
Without that leadership, I think it became more difficult
for New York City to respond. Obviously there were a lot of
brothers and sisters lost in the rubble, and they were
emotionally involved, to try as hard as they possibly could to
recover those individuals. We were able, utilizing the U.S.
Fire Administration, to bring in some individuals to help the
city of New York in their restructuring of their leadership.
But I would say that was the only glitch that we had. It's
really not a glitch, it was really just a by-product of the
event, quite frankly. I do worry about capabilities of local
and State responders. I want to make sure that we properly
train. We have great resources at Emmittsburg, at the Fire
Academy, courses that are taught, not only there, but
nationwide, to responders.
We can always do a better job, but in this particular
instance, I think everyone did exactly what they were supposed
to do. The Federal response plan was put in motion. Everyone
worked shoulder to shoulder, pulling not only their weight, but
oftentimes someone else's weight. We made it work. There will
always be minor glitches along the way, but we handle them as
they come up. We have the ability as a country to, quite
frankly, collectively whip any problem that confronts us.
As to your remark earlier regarding Governor Ridge, he and
I have already met, Senator, several times on this issue. We
have pledged our cooperation. I can't think of a better person
for that job. The President and I have spoken often about this.
I will continue to develop the Office of National Preparedness
at FEMA to lend as much assistance to Governor Ridge as we
possibly can.
But I see no problem in our working relationship
whatsoever. Fact is, I'm really looking forward to working with
him and his staff.
Senator Smith. Thank you very much. Thanks again for the
great job you did.
Senator Jeffords. Senator Clinton.
OPENING STATEMENT OF HON. HILLARY RODHAM CLINTON, U.S. SENATOR
FROM THE STATE OF NEW YORK
Senator Clinton. Thank you very much, Mr. Chairman.
Hello, Mr. Director. Thank you so much for the
extraordinary work that you and your team are doing. We are
very grateful for your leadership and your personal concern,
which I have witnessed first-hand and am very grateful for.
There are many issues that we're really breaking new ground
on here. All of the experience that FEMA has had, and you and I
have talked about this, our own personal experiences with
natural disasters. Oklahoma City I think put us in a good
position to respond. But I think there's a lot more for us to
learn and to disseminate those lessons, so that we all can be
better prepared.
The questions that I have, and some of these are ones that
are really based on our particular experience in New York, both
in the aftermath of September 11 and in the difficulties that
we are facing with the bioterrorism issue, is how we improve
public education and provide a good basis of information, to
separate the fears from the facts so that people can get what
reassurance they need and take what precautions they should.
For example, I believe that we should have a kind of public
education town hall meeting. I've spoken to Secretary Thompson
and encouraged the television networks to cooperate, to have
maybe a 2-hour time that the entire country can watch with you
and Secretary Thompson and other Government leaders, as well as
experts, so that everybody can get the same information at the
same time. I'm very worried that there's a lot of information
being disseminated that is either inaccurate or unnecessarily
panicking to people.
Second, I know that we've got to do a better job taking the
special health needs of our children into account. The incident
in New York with the 7-month-old baby I think raises a lot of
questions for us. Children are more vulnerable than adults.
They don't need as much exposure to certain elements in order
to have a reaction. We don't know enough about what we should
be doing to protect our children.
Last week, I introduced legislation with Senator Dodd that
would try to begin addressing that, and to work with FEMA so
that, once again, FEMA can help us all be ready to deal with
the challenges facing our children.
I'm also continuing to be concerned about a lot of the
health needs. There was an article in The Washington Post today
about the health needs of our workers who are on the clean-up
crews. I hope that we will fund a study to follow those
workers, so that we can acquire good information, treat them
where necessary. We're working to try to get that into, I
think, the Labor-HHS appropriations.
I think it's an appropriate issue for our committee to
address, also, Mr. Chairman, because we don't know all of the
long term hazards and the effects that those who have been
digging in the rubble for 24 hours a day, literally, around the
clock, might face. We need to learn that, so that we can better
protect our men in uniform, and the women who are on the front
lines, so that if there are precautions they should take, we'll
be ready for that.
A few quick questions that really deal with the issues in
New York. I know that people have said, and I am proud that
they do, that no city would have been better prepared to deal
with this terrible disaster than New York, because of the
response that they had in place and ready to go. Are there
lessons, Director Allbaugh, that we can learn from what New
York did, and are there additional steps that FEMA can take to
disseminate that broadly, so that everybody in the country is
as well prepared as possible?
Mr. Allbaugh. I'd make two particular observations
regarding your question. One, if there's a single item that we
could do, it is to make sure that police, fire, emergency
responders can communicate with one another. Oftentimes I go
into a community and there are all types of bands and
frequencies used, and folks literally who are responding to an
incident can't talk to one another. So that is one single item
I can put my finger on that we need to address immediately.
Second, what I've initiated, and I had a conversation with
Governor Ridge 2 days ago and then again this morning about
this, is that we are going to institute a study that we've done
in previous years, a capability assessment for readiness of all
States to make sure that we know exactly what each State's
capabilities are, as well as local entities, and where they
need assistance. Well, let me back up. Once we complete that,
we will design a template, so everyone knows exactly what the
bar is, what is going to be the measurement, where do they need
to be. Because I just don't want to be in a position of
throwing a lot of money out there on the table and the American
public deserves to actually get something in exchange for their
tax dollars.
We are looking at right now at improving that study. I'm
going to try and get it conducted here in the next month, of
all 50 States and the territories, so we can move
expeditiously. I think that's a time when we would be in a
position to come back to the committee and make some hard
recommendations.
But I'll be honest with you, I'm not exactly sure that we
have a good handle on what our States' capabilities are. I
think it's important that we know and we offer assistance where
we can. As I mentioned a minute ago, we spend a great amount of
money--properly so--training first responders and emergency
managers at Emmittsburg, a fabulous facility. One of the things
I need to look at is how do we expand that so we can meet the
demand. Our demand far outstrips our capability at Emmittsburg.
Coupled with this, I just don't want to be the 300-pound
gorilla, forcing something upon States that they may or may not
need. We have to have an honest, active dialog with those
individuals. And we do. I can't think of a better agency that
has more dialog with State individuals other than FEMA. I'm
very proud of our relationship. It is a proper relationship,
but we can improve upon what resources we can afford the
States, so they can be better prepared.
As you know, I'm not the one receiving the 911 phone call,
these folks are the ones who are receiving the 911 phone call,
and we need to make sure that they're best prepared with
trucks, personal equipment, safety devices, to do the best job
that they possibly can. I appreciate your question.
Senator Clinton. Well, I appreciate your answer. I
appreciate the gentlemen sitting in the front row and all the
other first responders who are on the other end of those calls.
We do need your guidance and advice as soon as it's humanly
possible to provide it to us, because I think every one of us
on this committee wants to provide whatever additional
resources and support, perhaps looking at maybe some regional
training facilities like Emmittsburg, so that you can deal with
the need that is out there and people will be able to come
forth is something we should consider. Maybe in conjunction
with some of our military bases or even some of our no longer
active bases. I think there are some real opportunities here if
we get the kind of planning and recommendations that I know
that you'll come forward with.
Another issue that is of particular concern in Lower
Manhattan is the small business community. I think we have
discovered there's a potential area that needs some additional
help. We have a terrible dilemma confronting our small
businesses in the immediate vicinity of Ground Zero. Certainly
within the area itself there's obviously no basis or ability to
go back into business. That's a problem for down the road.
But within blocks of it, we have people who are literally
going out of business because of the fact that this is not only
a disaster scene, it's also a crime scene. So we have many
streets blocked off and the police are doing their collection.
Somebody said to me, one of our colleague Senators said,
``Nobody's going to be tried for this.'' Well, that's true, but
there is information and things that are being found blocks
from the site. So we're trying to be very careful about that.
But the net result is that all these small businesses are
basically cut off from their customers. They're not really
receiving any help. Many of them are not in a position right
now to sign for small business loans, because until we get the
traffic flowing again and the barriers down, there is no way
they can know whether they'll be in business. They desperately
want to be in business. I talked to a bar owner a week ago, and
he said, ``I'm stocked, I'm ready to go, but nobody knows I'm
here, and they can't get to me even if they want to come.''
So one of my hopes is that we could look at a single office
within FEMA to address property, business and financial losses,
that we could look at having the Small Business Administration
raise the cap on its loan amounts, change its eligibility
criteria, defer loan payments for 2 years or more, and maybe
even look at some grants that were reasonably likely to keep a
business open to get it on its feet. I would love to work with
you as well on that, Director, to see what we can do more on
the small business front, because it's desperately needed.
Mr. Allbaugh. I appreciate that. I'm concerned about
individuals, as you say, who don't even know we know they
exist. They need to really call that 800 number, and let me
give it out publicly, please, 800-462-9029. I think the next
disaster I'm going to get an easier number that everyone can
remember.
But we do try our best to track these individuals in making
sure they're put together with the right Federal agencies so
they get the assistance that they probably need. I do think
it's going to take a little bit of an extra effort in Lower
Manhattan. We have the office at Wharf and Center Street. It is
small, so I've asked folks to find another location so we can
focus solely on the small businesses that are affected. But it
is a problem that we are going to deal with.
Senator Clinton. I know my time is up, but I would like to
also raise the possibility of a more vigorous public education
campaign. I think a lot of people have been in such a state of
shock until recently that they really haven't paid attention to
our PSAs, our 800 numbers, our invitations to seek help.
They're beginning to, so I think we have to almost start from--
--
Mr. Allbaugh. Scratch.
Senator Clinton. Yes, start from scratch and get out there
and really get the information out so that people know where to
go to get the help that is waiting for them.
Mr. Allbaugh. I agree. Thank you.
Senator Clinton. Thank you.
Senator Jeffords. Senator Voinovich.
Senator Voinovich. Thank you, Mr. Chairman.
After the attack in New York and here in Washington, we
said one of the things we needed to do was understand the
grieving that was going on by the families that suffered loss.
One of the ways that we could help deal with that was to try
and alleviate any concern that they would have for material
needs. It's bad enough to be grieving and then start to wonder
about how they are going to take care of their families and so
forth.
I was impressed when I talked with Tommy VonEssen in New
York. I asked him what about his firefighters, what about the
police officers? He assured me, and I was pleased that our
terrorism bill--maybe a lot of people are aware of this, but we
have, under the old law, $151,000 payment to families of lost
firemen and police officers. We increased that to $250,000 in
the terrorism bill, making it retroactive.
But he basically said to me that he felt that with the
pension plans, with the Federal payments and so forth, that
materially those families would be all right. I am glad that
you are also taking into consideration the issue of the
psychological problems that those families would have. I know
in my own case, when we lost our daughter, my children are
still suffering. We should have sent them to counseling at that
time. I think that's something that I'm glad you're aware of,
and something you're going to need to concentrate on.
The other thing is that I'm really concerned about the
expertise that the city of New York lost. One of the things
that Tommy VonEssen talked about was they lost their whole
hazmat operation. I was wondering, have we responded at all to
his request that we get people in there that can train up his
folks so that they can deal with other events?
Mr. Allbaugh. We have indeed, sir. As of yesterday, I was
speaking with Chief Ken Burris, who runs the Fire
Administration, and we have designed a program to educate and
train the new leaders as quickly as we possibly can. I think
I've spoken directly with Tommy about that, and I think
Commissioner VonEssen is happy with our progress there.
We've also imported several hazmat teams from surrounding
communities to fill that void until those new teams get
trained.
Senator Voinovich. I'm glad you're following up with
medical examinations of the people that are working there to
make sure that there's nothing they've picked up while they
were involved there.
Another question I've got is, did FEMA have the necessary
authority and resources, do you think, prior to the attack to
respond?
Mr. Allbaugh. I believe we did and we do. I can't think of
any need or want that went unmet. If there was a problem,
ultimately I'd get on the phone and make it happen. I just am
happy with the way that every agency responded to our need, our
desire, our responsibility to coordinate all the Federal
assets. Our disaster field office at Pier 90 in New York is an
impressive location. Somewhere between 18 and 22 Federal
agencies are represented full time. We're demobilizing some of
those tasks, as the missions are completed.
But I cannot think of anything, Senator and members, that
we need at this time that we don't have. I think the Stafford
Act, the individuals that helped write that, and with the
amendments just passed last year, have given us enormous powers
to succeed at the charge that you've given us. I will be one of
the first to come and scream and holler where we need help if
we find in this process we need something else.
But I think we have what we need right now.
Senator Voinovich. Including being able to respond to
another major natural disaster we might have next week?
Mr. Allbaugh. Absolutely. We have the ability to do that.
The only question there becomes one of resources.
Senator Voinovich. The mechanics are in place, the
infrastructure?
Mr. Allbaugh. The mechanics are in place, don't sell us
short on the money side, that's my only pitch.
[Laughter.]
Senator Voinovich. The other thing that I'm impressed with,
I recall when I became Governor of Ohio one of the first things
we did was to do an inventory of the preparedness of our
counties. In spite of all of our effort, I remember one flood
where it was like day and night between the ones that were
prepared and the one that wasn't prepared. I think the idea of
working with the States is a good idea.
In fact, I suggested to Secretary Thompson, and maybe some
of the other folks that are involved in preparedness, that
perhaps the President could call a couple day meeting with the
governors of the States so all of you could come in and start
talking about problems that you see could be out there, and try
and task them to do some of the things that they ought to be
doing on the State level to respond to some of the things that
they're going to have to deal with in the future.
Mr. Allbaugh. I think this capability assessment for
readiness is the first step before we have a meeting such as
that. But I think that's a pretty good idea, quite frankly.
Senator Jeffords. Senator Corzine.
OPENING STATEMENT OF HON. JON S. CORZINE, U.S. SENATOR FROM THE
STATE OF NEW JERSEY
Senator Corzine. Thank you, Mr. Chairman.
It is terrific you're holding this hearing, and I must say,
for all the people of New Jersey, and we feel like we're a part
of the community of New York in New Jersey, we compliment you
and the people you work with for all your efforts at a human
level and with regard to detail. I can't tell you how impressed
people are.
I also want to make sure that my total statement is put in
the record, but that applies to all of the folks who are heroes
of rescue that will be on the second panel and who they
represent.
I must say, the idea of don't sell us short on the money
side, so that you can get the job done, I hope that my
colleagues not only here on the committee, but across the
Senate understand the great need. It's actually each leaf that
I see fall tells me it's larger than what we had ever
anticipated and much more far-reaching. I am truly impressed by
the selfless response of a number of my communities in New
Jersey, really the community at large, and I know that's the
case across the region. I hope that we take into consideration
all those details about straight time and overtime and all the
kinds of things that get involved in making sure that the
communities are reimbursed so they can go on about the business
that they need to do to protect the public in the future.
I want to reiterate something that I think Senator Clinton
was talking about, taking a little different approach. I think
that the shock of this has left many of the victims--not only
those who have lost life, but have also been impacted in other
ways--has left people standing back from receiving the
information that we're working so hard to get out. We're going
on a campaign to try and contact each individual that has been
impacted personally by this.
I'm finding out that there's just a void of information. I
think people turn off the receipt of this. I think we as a
community need to be reaching out. A lot of that, I think, can
be organized through FEMA resources, and I certainly encourage
you along that line. I don't mean that as a criticism, it's
just one of those things that people who are either embarrassed
or in shock and emotional distress, don't reach out in all the
ways we'd like to see.
Finally, I'd love to hear your comments on a hearing that
we had last week in Health, Education and Labor Committee with
regard to disaster planning as it relates to bioterrorism and
how much you have had time to work on that. As we sit here,
there is an evacuation of one of the Department of
Environmental Protection buildings in Trenton, NJ which is
going on. It feels like we're doing this by Braille as opposed
to actually having plans in place and fully formulate them.
So I'd like to hear your comments on that as well.
Mr. Allbaugh. In regard to your first question, the one
point I failed to make a while ago when Senator Clinton was
bringing up this issue of education is that we have currently
about 22 community assistance teams that are going door to
door. We bumped that up over the last couple of weeks from, I
think we started with 11 or 12, decided that that wasn't really
enough to cover Lower Manhattan. These teams are made up of
Federal, State and local individuals who represent a variety of
agencies. It's not enough.
I take your admonition regarding education very seriously
and we'll redouble our efforts. But I wanted you to know that
those teams are out in the community, literally going door to
door, business to business as we speak.
Senator Corzine. That personal contact, I can't think of
anything more important than actually getting to a widower or
widow and explaining how we get these processes in play for the
family and the circumstances that they're dealing with.
Mr. Allbaugh. I agree. With regard to bioterrorism, I think
that--as I alluded to earlier, before you both arrived--we have
to rethink the way the entire Federal Government approaches
this issue. Oftentimes we find ourselves doing things by rote
and we have all had a wake-up call.
I know I have challenged our own staff to think outside the
box as often and as diligently as they possibly can. One of the
things we have not done a very good job at is catastrophic
planning, catastrophic disaster planning. We have to become
better at that, which requires every agency sitting at a table,
wading through the minutiae that would be in front of us. It's
going to take time.
I think a part of this education effort, if there is a time
in our country's history where the American public needs
straightforward facts, now is it. This isn't a time, in my
opinion, for anybody to be ``big dogging'' it, as we'd say down
home. Folks just need straightforward facts. I am concerned
that we don't have a joint information center that the Federal
Government operates on a regular basis where members of the
Senate, members of the House, members of the news media, have
one reservoir, one resource they can go to to get the
definitive facts that the American public deserves so richly.
I never want to be in a position of misleading anyone. A
great compliment to the American public is how they're handling
this right now. They're taking all this information in, as much
is being thrown at them, and figuring it out. What we ought to
be charged with is how we shrink that amount of brain power
that's utilized in the average individual trying to figure it
out, we ought to try and figure it out for them and educate
them. I think if there's one thing we need to do immediately,
it is to form up a joint information center that would have all
Federal agencies in one place, total resource for the battles
that are ongoing and the days ahead of us.
I'm afraid that there is not a definitive answer yet,
Senator, on how we combat bioterrorism. You can get as many
answers as professionals that you talk to. That's just calling
them as I see them. I get a different answer every time I talk
to someone different. It drives me nuts.
Senator Corzine. I appreciate your candor, because that's
the way it feels, as you are one who is trying to reach out and
be a constructive element in bringing together responses that
give the public confidence.
Senator Jeffords. Thank you. That's an excellent question.
Senator Carper.
OPENING STATEMENT OF HON. THOMAS R. CARPER,
U.S. SENATOR FROM THE STATE OF DELAWARE
Senator Carper. Welcome back. Good to see you again. Thanks
for your service and the terrific work that your team continues
to do.
Mr. Allbaugh. Thank you, sir.
Senator Carper. I apologize for being late. I was with some
of my colleagues at the briefing over at the Capitol.
I want to follow up on a question with respect to
bioterrorism. Senator Frist of Tennessee apparently has good
information on bioterrorism on his web page, especially with
anthrax, that he's made available to others of us in the
Senate, so we can link our own web pages with his, and anyone
who contacts our office can find out, just the facts, ma'am,
just the facts.
A lot of people may be watching this hearing today across
the country, and if there are any facts that you'd like for
them to know, to share with the American people on anthrax or
bioterrorism, could you just take a minute or two and share
what you think would be helpful for our constituents across the
country to know?
Mr. Allbaugh. Well, two particular things. I think it's
incumbent upon FEMA to produce a document, a booklet, as we did
years ago during the old civil defense days, or a booklet that
we even produced as recently as the concern regarding Y2K that
would present basically just the facts and how to respond based
upon what individuals are dealing with. So I've instructed our
folks to pull together that type of document so we can get it
published, put it on our website, which is www.fema.gov, and
get it into the libraries, maybe do some type of a mailout. I
see where the U.S. Postal Service is doing something similar
today as we speak, trying to alert everyone.
But what we need, more than anything else as the American
public, are straightforward facts. I do think that this joint
information center will go a great distance to calm everyone's
fears, because they will know exactly what they're dealing with
and won't suffer from a multitude of confusing messages from a
variety of sources.
Senator Carper. My own view, Mr. Chairman, as we learn
more, our office is right next door to Senator Daschle's
office. So there's been a fair amount of angst with the
developments in the last 24 hours. But if this had happened,
oh, 2 weeks ago, even 1 week ago, I think there would be a
whole lot more fear and concern. The more that we learn, at
least about anthrax, the more I'm convinced that it's a
difficult weapon to use effectively against us. It's proving to
be--not a bust, but to whoever is using this against us, it's
not having, I think, the kind of success they had perhaps
envisioned.
We learned today that even if people get infected, if they
take the antibiotics and the vaccines combined, there's a
pretty good chance it will be entirely eradicated. For folks
who have not been infected but have been exposed, simply take
the antibiotics, they're quite effective. It's not contagious,
and apparently you have to ingest quite a bit of it in order to
be infected.
That doesn't mean we should take this lightly, and we're
not. But the American people and those of us who work here just
need to be mindful of, as you said earlier, the facts.
Thanks, Mr. Chairman.
Senator Jeffords. Thank you. I'd like to make you aware, we
are concerned, the committee is, about the communications
problem. We're working on legislation to grab a part of the
spectrum so that we can work together to get the unified system
throughout the country on being able to communicate. We look
forward to working with you on that.
Mr. Allbaugh. Thank you, Mr. Chairman.
Senator Clinton. Mr. Chairman, could I follow up on a point
that the Director just made with respect to Y2K?
Senator Jeffords. Yes.
Senator Clinton. I believe that we had the kind of
interagency information operation that you have so rightly said
we should put into place for our current situation. I think it
would be helpful to take a look at how that was done. There was
some legislative involvement and oversight. There was obviously
interagency involvement, but there was a center, and there was
also an individual who was tasked with being the spokesman, so
that all information could be double checked before somebody
had to get out there and make a statement.
So I think your suggestion is an excellent one. Looking to
the Y2K experience, which frankly, I think we averted a lot of
problems because we got on it and people paid attention to it
and they were held accountable, and what we feared didn't come
to pass. If there is any legislation or changes in the Stafford
Act or anything that you believe, Director, that would help you
respond on that basis, I would certainly like to know about it,
and I know my colleagues would as well.
Mr. Allbaugh. We'll make sure everyone knows about it.
Senator Jeffords. I have one final question for you. It's
kind of a tough one, I know. Looking forward, with all the
knowledge you have now, when do you anticipate that you will be
able to consider the job done?
Mr. Allbaugh. I'm not sure that the job will ever be done.
Our lives have changed as a country forever as of September 11.
We are more vigilant now. We are aware of our surroundings. I
know the things that I used to take for granted I don't take
for granted. I have to commend the American public with high
praise at the way that they've responded to this. It is
absolutely remarkable. No one's really panicking. We have our
incidents that you're talking about, and my heart goes out to
those individuals who are directly affected.
But I'm not sure, Senator, that our job will ever be done.
Senator Jeffords. More specifically, relief efforts, people
involved in relief efforts. When do you anticipate that might
be complete?
Mr. Allbaugh. I fully expect to be having an office in New
York City for years to come. You think back to the Northridge
earthquake in the early 1990's, we still have an office dealing
with the multitude of problems in California. This is a
situation where we'll be lucky to have the site maybe cleaned
up in 7, 8, or 9 months, maybe a year from now. We have lives
that we have to help put back together, years and years of
counseling, small businesses that need to be rebuilt. New York
City is doing its best to guard against the loss of jobs that
would affect Lower Manhattan as well as the rest of the city.
We're willing partners. We're going to be there until the
bitter end. I'm not the one to decide when the bitter end is. I
think we'll all know it as a country.
Senator Jeffords. Thank you.
Senator Warner.
OPENING STATEMENT OF HON. JOHN W. WARNER,
U.S. SENATOR FROM THE COMMONWEALTH OF VIRGINIA
Senator Warner. Thank you very much, Mr. Chairman.
Most local fire departments aren't familiar with urban
search and rescue team capabilities until they are faced with a
situation. Our chief here who's with us today suggests that the
urban search and rescue resources and procedures be included in
the curriculum at FEMA's National Emergency Training Center and
the National Fire Academy. Can you elaborate on that a bit?
Mr. Allbaugh. I think that's one of the first things that I
have passed along to the folks at the Fire Administration, that
we need to, when we bring in individuals from fire departments
all across the country, we explain to them what resources are
available, should they need to call upon them.
I'm not sure that there is a need, Senator, to expand the
number of urban search and rescue teams nationwide. I do
believe we need to expand their capabilities. But at a bare
minimum, men and women who put their lives on the line, whether
they're with the police department or the fire department or
emergency managers, ought to have the benefit of knowing
exactly what resources are at their disposal. We're going to
make sure that everyone is educated from here on out.
Senator Warner. As a follow-up, during the Pentagon
response, of course, our local fire and rescue and Red Cross
and others performed brilliantly.
Mr. Allbaugh. They did, indeed.
Senator Warner. I visited that scene only 4 hours after the
plane struck, with the Secretary of Defense. He had the highest
praise for those teams that reacted.
But during that response, it was learned that there is an
equipment shortage for urban search and rescue teams that
allows for only one equipped team to be deployed at any given
time from any one of the 28 bases. If there are multiple
instances in one area, how would FEMA respond on a timely
basis?
Mr. Allbaugh. I'm not aware of that, Senator. We activated
18 the first day to New York alone, 4 to the Pentagon and I'm
not aware of any particular shortage. I do know that we will be
briefing and debriefing all the teams and will have after-
action reports, so that we make sure we don't make any mistakes
that may have been committed during this travesty.
Senator Warner. Thank you.
Thank you, Mr. Chairman.
Senator Jeffords. Thank you, Director. It's been a pleasure
having you with us. You're an impressive man and I thank you
for what you're doing. We reserve the right, as you know, to
ask you further questions that you can respond to in writing.
Mr. Allbaugh. Yes, sir. Thank you. I appreciate it.
Senator Jeffords. Thank you.
The next panel is made up of Edward Plaugher, Jeff
Metzinger and Robert Hessinger.
Chief Plaugher, welcome. It's a pleasure to have you here.
We know of your efforts and want to praise what you have done.
We'd like to hear from you and your thoughts about what we can
do to improve the future.
Senator Warner. Could I intervene? I want you to know that
this fine gentleman was the on-scene commander for, I think, 10
days. His unit was the first to respond. I've communicated now
with our chairman of the Appropriations Committee a list of
items which you feel your team needs to have either replaced or
new equipment. So this is, I recognize all present who have
done this, but this is one man who's been there from the moment
it started.
Thank you again.
STATEMENT OF EDWARD P. PLAUGHER, CHIEF, ARLINGTON COUNTY, VA
FIRE DEPARTMENT
Chief Plaugher. Thank you very much. It is indeed a
pleasure to be here this morning. It's also a great deal of
pleasure and an honor to represent the men and women, not only
of the Arlington County Fire Department, but also of the
Nation. Hopefully my remarks will assist the cause of improving
our capability to respond to any type of incident.
Again, I want to thank you for allowing me to be here
today. I understand that you as a committee are deeply
concerned, as are all of us, with the tragic events of
September 11. These events have a profound impact on the men
and women of my fire department and on the Nation's fire
service as a whole.
I have prepared remarks which I hope will be entered into
the record, and I'll just highlight a couple of the key points
in order to be brief here this morning, to allow my colleagues
ample time to testify.
It is an opportunity for me, however, to talk about the
incident at the Pentagon. First of all, you need to know, I
think, is that our response to the Pentagon began when one of
our engine companies who was responding to another routine call
noticed the plane and its route to the Pentagon and was
actually a witness to the incident. Immediately, the northern
Virginia automatic mutual aid program was activated. Units from
Fort Myer, Alexandria, Fairfax County and the National Airport
Fire Department responded from the initial alarm.
The second alarm units included units from the District of
Columbia as well as from Montgomery County and Prince George's
County, MD. These first responding fire units fought a fire
that was triggered by 6,000 gallons of jet fuel in the world's
largest office building.
The Federal Emergency Management Agency, in their response
to the attack on the Pentagon and its aftermath, was superb.
FEMA and their front line urban search and rescue teams, which
I'm sure we're going to hear more about here in a few moments,
were mobilized from Fairfax County, Virginia Beach, Montgomery
County, MD; Memphis, TN, and then later on, we received
assistance from New Mexico to provide relief for the exhausted
rescue personnel.
I must tell you, Mr. Chairman and members of the committee,
that the FEMA urban search and rescue teams made an outstanding
contribution to our effort. These teams are comprised of
dedicated professionals whose hard work and unyielding efforts
should not be overlooked.
Two resources that were brought to bear to the incident
scene by FEMA come to mind and stand out in my mind. First was
the search dog capability. It's a unique and absolutely
critical, necessary component of a structural collapse search
that allows for swift and thorough search for victims that
could not otherwise have been possible. Second, the urban
search and rescue team brings in specially trained urban search
and rescue structural engineers that allow us to then proceed
into the building with safety being paramount to all the
personnel on the scene.
However, there's a couple of areas that I think we can do
to improve our business, and that is the business of response
to our community, particularly in these types of incidents.
That is what the director was just talking about, the ability
to have a clear understanding of the local first responders, of
what does the urban search and rescue team bring to an
incident, and particularly the capability of this being taught
at the National Fire Academy.
I also think that we need to have a clear understanding of
the capability that is being developed for these urban search
and rescue teams. In other words, what I mean is there needs to
be a standardized list of equipment that is well understood and
that we can count on when this is deployed. It also occurs to
me that this complement of equipment and response capability
should be developed with a panel of experts that seeks out
local advice so that the folks of us who have been there will
allow them to be able to adjust their response capability based
upon our now new experiences.
We just heard again about the need for additional
equipment. Most urban search and rescue teams--which in my
earlier career in Fairfax County, I was fortunate enough to be
one of the founding members of the team, and participated in
its early structure--we realize that they are multiple deep in
personnel, but not multiple deep in equipment. We think that
now is the time that we could fix that.
We are, in fact, very lucky and very privileged in the
Washington Metropolitan area to have two urban search and
rescue teams in our midst, both Montgomery County, MD and
Fairfax County, VA. This is a unique situation in our
community.
However, one of the things that we also focused, and we
realized early on in this particular incident at the Pentagon,
is that there was a need for some command overhead teams. These
command overhead teams would be chief officers who would be
experienced in dealing with these incidents and bring to bear
that extra chief level officer capability. We think that maybe
there's an opportunity for this to come out in the future.
The level of cooperation and mutual assistance between FEMA
and the Arlington County Fire Department was excellent. There
are many moving parts to an effective response to a terrorist
incident. Each of us much have a good expectation of our own
capabilities and a clear understanding of the roles and
responsibilities of the different agencies.
In the final analysis, what transpired at the Pentagon,
under the circumstances, was dealt with professionally and to
the best of each of our abilities. We at the Arlington County
Fire Department learned valuable lessons with regard to our own
abilities and our limits. It is our hope that we can use those
lessons to further a more effective preparedness approach.
In concluding my remarks, Mr. Chairman, in speaking with
the overall Federal preparedness effort, there are said to be
over 40 different offices and bureaus involved in terrorism
preparedness across the Federal agencies. Though we have made
great strides in our interaction with Federal agencies, there
is an urgent need for better coordination of pre-incident
support in training programs.
I personally testified last spring before the House
Transportation Committee on a piece of legislation designed to
address this issue. A Senate companion bill, Senate bill 1453,
the Preparedness Against Terrorism Act of 2001, was recently
introduced by Senator Bob Smith and referred to this committee.
This bill codifies the Office of National Preparedness at FEMA
that President Bush created earlier this year. It creates a
President's Council that will be charged with the development
of a single national strategy on terrorism preparedness, that
will include measurable preparedness goals.
We applaud President Bush's designation of Governor Tom
Ridge of Pennsylvania as our new Homeland Security coordinator.
However, it seems to us that Senate bill 1453 could and would
bring focus and legal authority to this new effort. It is my
understanding that the Bush Administration has significant
input into this bill, and I urge you to make whatever
modifications are necessary to address Governor Ridge's role
and to act favorably on the bill in sending it to the full
Senate for consideration as quickly as possible.
We owe it to our country to have the best coordinated
comprehensive terrorism preparedness strategy that is possible.
Again, thank you for having me here today and I will be happy
to answer any questions later.
Senator Jeffords. Thank you, Chief.
I'm going to ask all the witnesses to testify and then
we'll have questions. I assure you we've taken notice of your
remarks with respect to what we should do, especially with the
new role for Governor Ridge.
Captain Metzinger.
STATEMENT OF JEFFREY L. METZINGER, FIRE CAPTAIN, SACRAMENTO, CA
METROPOLITAN FIRE DISTRICT; MEMBER, FEMA URBAN SEARCH AND
RESCUE TEAM
Captain Metzinger. Good morning Mr. Chairman and members of
the committee. I'm Captain Jeff Metzinger, I'm with the
Sacramento Metropolitan Fire District in northern California.
I'm also a member of California's Urban Search and Rescue Team,
California Task Force 7.
Like the others here, I am also honored and very humbled to
be talking to you this morning, representing the thousands of
firefighters across this country who put their lives on the
line every day.
We were dispatched to the World Trade Center on the morning
of September 11, as so many other teams were. I keep a journal
with me wherever I go, and I brought it with me today and I'm
going to read some excerpts for you. It's a habit I've had for
a long time, and I think there's some value in there.
I'll start out on Wednesday, September 12.
We're finally leaving for New York City and everyone is
anxious to get to work. As we approach the Hudson River from
New Jersey, you can see a large column of smoke coming up from
the site where the World Trade Center used to stand.
This is my first trip to New York City, and I feel sad
about what I see. The traffic is incredible, even with a full
police escort. The corners are filled with people, and we're
just now a few blocks away from the large smoke column I had
seen earlier. We arrive at the Javits Convention Center by 7
p.m. and set up our base of operations. There's other teams
coming in as well, including teams from Los Angeles, Missouri,
Indianapolis, Riverside, California, Pennsylvania,
Massachusetts and Ohio.
Our 62 person team is divided into two teams, where we
alternate 12-hour shifts, working 24 hours around the clock.
I'm assigned to the Blue team, working the night shift. The
first night, on September 13, we loaded into the bus and headed
into our sector to go to work. We met up with the Gray team and
did a pass-on of information, and began to take a brief tour of
the collapse zone along Church Street.
The scene was surreal. There were people everywhere. Smoke
continued to drift from the massive piles of rubble. The
expanse of the disaster is difficult to comprehend. Several
searches are conducted by our search dogs in the vicinity of
Tower Seven. The technical search cameras were also used, but
we had no luck finding any victims.
The following night, our team was working again, looking
for an assignment. The dogs alerted an area, but at a very
dangerous location. It was too unstable to enter. That night
there was thunder, lightning, wind and heavy rains pounding
upon us. Frequently, debris--large pieces of metal were blowing
off the roofs of adjacent buildings. Our task force leader
determined it wasn't safe for us to go any farther, we didn't
want to lose any further lives.
The next afternoon we had a briefing from our task force
leader at our base and were told that President Bush would be
visiting our facility that day. I was privileged to meet and
shake hands with President Bush, with Senator Hillary Rodham
Clinton, and the governor and the mayor were also present. It
was quite an experience, and their visit was very much
appreciated by all.
That night on the bus we were headed back to work, still
hundreds of people lining the streets of New York City,
cheering us as we go by. Traffic was so congested that we
finally stopped the bus, got off and walked the last few blocks
to the Church and Dey command post. Tonight our search team is
finally getting to do some work, putting up a rope system to
lower one of our members down into the debris crater near
Church Street. The objective here is to place a cellular phone
antenna down lower that might assist with victim locations.
The following night we were headed back to work and again
people were lining the streets, cheering, waving flags, holding
signs, lighting candles. It was a sight that warmed us every
night as we went in. This particular night, our search and
rescue teams were assigned to search the buildings around the
outer perimeter of the plaza area. There are several 30-plus
story buildings around the World Trade Center plaza. We
conducted searches from basement to roof, every door was
opened, every space was checked. We climbed the stairwells,
taking on one building at a time.
We didn't find any victims. Every floor of every building
we searched was marked and completed. The assignment took a lot
of toll on our legs that night.
On Sunday, during our briefing, we were told that three top
New York fire chiefs were laid to rest that day. Firefighter
Chaplain Ward Cockerton said a prayer for the victims and for
the safety of the team members that are still working here.
Tonight we're going to work between buildings five and six,
possibly going underground. We hear that there's up to six
levels below the street grade. So we reported to the Church and
Dey command post that night and I personally got assigned my
first job as head rigger, which is my assignment with the team.
Steve of Massachusetts Task Force One was there, and he and I
worked with four New York City iron workers through the night,
using a 90-10 crane, moving tons of debris all night long.
The following day we were back at work on the same crane,
and a new group of iron workers. We made a connection with some
guys by the name of Mike, Rich and Kevin. They're all great
people. I found that the New York iron workers and construction
workers are just incredibly great folks.
We cut and moved tons of steel again tonight. In the middle
of the night I found a child's doll in the rubble, and I
realized suddenly how much I missed my family. I heard our
response team found a victim this morning, a police officer.
Our hopes for a live rescue are starting to dim.
The next day we were back on the bus to the work site
again. I'm already tired. We've averaged about 3 hours of sleep
per night. Even when we get time to rest, you can't sleep.
Heading back to the crane, we worked all night again,
moving steel, looking for bodies. I've noticed for several
nights that there's very little debris that's recognizable.
There's no desks, there's no chairs, carpet or sheet rock or
anything else you'd associate with an office building, just the
steel structure. There are still no victims in the area we're
working in.
On September 18, we're back in the pile again, moving steel
and searching for victims. Today the smell of death is more
evident. I found a business card of a man with an office on the
83rd floor of one of the towers, and I wondered what his fate
was at that moment. I said a prayer for him and hoped he is
alive and well. I'm still not sure what his fate is.
Around midnight that night, the crane operation was halted
while they were moving in a larger crane. When the crane shut
down, I joined forces with some of the New York firefighters.
Two of the battalion chiefs were out there with their sleeves
rolled up, working right alongside of us. We were moving debris
by hand, and that was a very solemn night. Went home tired that
day.
The following day, Thursday, September 20, we started
heading home, packing our equipment. It's been a long 10 days
and everyone is exhausted. The team physician just diagnosed me
with bronchitis. The dust we've been breathing all week finally
caught up to us. Many others in the team had the same complaint
of headache, sore throat, sinus congestion and sometimes fever.
But most of all, everybody's troubled that we didn't find any
victims.
Finally, on Friday, we land back in northern California,
Travis Air Force Base, and we get a full police escort all the
way back to Sacramento. Every freeway overpass for 40 miles was
covered with fire engines, police cars and citizens cheering us
home. It was a warm reception.
We arrived in Sacramento to a similar greeting of family,
friends, co-workers and media. I realized then for the people
of Sacramento that we were their connection to this tragedy on
the East Coast. It felt good to be home, but I felt like a part
of me was still in New York. When I go to sleep, I still dream
that I'm there. It doesn't leave us.
I just want to close and say that firefighters and law
enforcement and EMS people are going to continue to be the
first responders arriving at these incidents, and the toll is
tremendous. The toll is tremendous on what I saw on the New
York City firefighters, and for those of us who just came there
and left, it took a toll as well, physically and mentally. We
owe it to ourselves to be prepared for future incidents, to
take care of our responders and make sure that we are afforded
everything that we can possibly do to be ready for the next
one.
I appreciate the opportunity to share my thoughts with you,
and I'm available for your questions. That's all, thank you.
Senator Jeffords. Thank you.
Senator Voinovich. Mr. Chairman, do you mind if I introduce
Mr. Hessinger?
Senator Jeffords. You may do that, yes, certainly.
Senator Voinovich. Mr. Chairman and members of the
committee, Ohio Task Force One is a designated FEMA emergency
response team. It's made up of volunteers from fire departments
across Ohio, and it's coordinated out of Wright-Patterson Air
Force Base. Mr. Hessinger is the logistics chief for the Ohio
Task Force One. I think I'd like to underscore that in his
regular job, he's a firefighter-paramedic with the Kettering,
OH, fire department. He's also accompanied today by Mike
Kenney, who's a captain in the Dayton, OH fire department, and
he's also a member of Ohio Task Force One. We're very happy
that you're here with us today.
Seventy-two members of that Ohio Task Force were mobilized
just after the attack at the World Trade Center, and were among
the first out-of-State FEMA teams to respond to Ground Zero.
Robert, we're really happy to have you with us here today.
Thank you for your service.
Senator Jeffords. You have your friend with you, I guess.
Would you come up?
Mr. Hessinger, please proceed.
STATEMENT OF ROBERT HESSINGER, LOGISTICS SECTION MANAGER, OHIO
TASK FORCE ONE; ACCOMPANIED BY SQUAD OFFICER MICHAEL KENNEY
Chief Hessinger. Thank you, Senators, distinguished guests.
As Senator Voinovich pointed out, I'm Robert Hessinger,
Logistics chief. Mike Kenney here today with me is a rescue
squad officer with Ohio Task Force One. We were deployed to the
New York City terrorist attacks on the World Trade Center
September 11, 2001.
I'd like to start by saying thank you for allowing us to
share our experiences with you. I hope you'll take what we say
and continue support with FEMA.
Ohio Task Force One was established as a FEMA urban search
and rescue team in the spring of 1997, and is located on
Wright-Patterson Air Force Base in Dayton, OH. Ohio Task Force
One was officially activated as one of the first three FEMA
task force groups. It was our first national appointment, and
we were activated at 1100 hours on September 11, 2001, to
respond to New York City by ground mobilization.
Ohio Task Force deployment was multi-faceted, due to our
members' activity within the FEMA system. Our task force
leader, James Gruenberg, was deployed as a part of FEMA's Red
Incident Support Team, which is the overhead team the Chief
spoke about. Our task force leader, Robert McKee, was also
deployed as part of the Blue Incident Support Team.
Operationally, Ohio Task Force One arrived at Jacob Javits
Center in Manhattan, NY, approximately 6 a.m. on September 12,
2001, making it the third FEMA urban search and rescue team
behind Massachusetts and Pennsylvania. Primary mission of Ohio
Task Force One upon arrival was to establish the rear base of
operations, that we refer to as a BoO. The task force also
created two operational teams by splitting the members into
daytime and night-time operations, running a 7 a.m. to 7 p.m.
shift, 12-hour operational periods. At approximately noon on
September 12, task force leader Muhl became the daytime
operation leader and proceeded to Ground Zero. The first
operation was to set up the forward BoO, and after came a few
missions confirming victims using K-9 teams and searching void
spaces found in the rubble pile.
The first full operational period for the task force came
on the day shift Thursday, September 13. None of the team
members were ready for the magnitude of the destruction and the
size of the collapse. Ohio Task Force One was given many
missions dealing with technical search of void areas with
search cameras and the team's K-9 handlers could not keep up
with the multitude of requests from division commanders and the
workers on the pile alike.
Task Force Leader Muhl worked closely with the FDNY sector
commander to coordinate sub-level void searches, technical
rigging decisions and structural evaluations by Ohio's
structural specialists. One of the missions included rigging a
rope lowering system to penetrate a small opening in a
collapsed stairwell to search a mechanical room four levels
below grade. Mike Kenney was on that team to do that.
At this point, optimism within the team ran high, due to
the size and structural stability of those void spaces. The
rescue team also attempted to rig another rope system to lower
searchers into a void where previously Fire Department New York
Ladder 6 personnel had survived the collapse. The anchoring
points were found to be inadequate in order to appropriately
rig a lowering system. This was the first letdown the team had
suffered and found it difficult to convey to fellow FDNY
firefighters.
Continued missions to search void spaces turned up parking
levels with thigh deep, contaminated waters and more void
spaces without live finds. A mission to secure and remove
impaled steel of the World Financial Building was changed by
the task force structural special specialist to securing the
piece of steel directly to the main structure, due to increased
risk to rescue workers. This decision proved to be the correct
one, and the piece of steel remained stable.
Day operations were also tasked with reconnaissance of the
surrounding buildings. Teams climbed and searched multiple
buildings, breached locked doors and systematically marked
cleared areas for a thorough search. A couple of searchers
turned up citizens either not able to traverse the lengthy trip
down the stairs or unwilling to leave their personal
possessions after being so violently violated.
As a FEMA USAR task force, we are given the task to support
local jurisdictions in the mitigation of an overwhelming
situation. The fire department in New York was placed in such a
situation. The FEMA urban search and rescue concept was alien
to the workers we encountered due to the loss of the majority
of the special rescue personnel within their fire department.
As fellow firefighters, we offered special equipment, a
fresh and educated set of hands, and the confidence that rescue
was being accomplished to the best of our abilities. On the
last operational period, Ohio Task Force One stopped by Fire
Department New York's Rescue 5 to pay their respects and donate
equipment that would aid in the rebuilding of this
distinguished company. We hope that this will somehow leave a
lasting impression of the FEMA system and the first class teams
that adorn it.
Ohio Task Force One was given demobilization orders on
Tuesday, September 18, with a departure date of Thursday,
September 20. The citizens and leaders in Ohio made the return
trip a memorable one with police escorts, fire department
apparatus lining the highways, citizens with banners on
overpasses and our families at Wright-Patterson Air Force Base.
The support Ohio Task Force One was given by the Incident
Support Teams of FEMA and the expertise and guidance of those
placed in charge of this tragedy were professional, no matter
what the situation. Given this event we commend all men and
women in those positions for an exemplary job.
Ohio Task Force One would like to thank FEMA, the State of
Ohio, our families for all the support given to us over the
years. We would also like to thank the Environment and Public
Works Committee for your time today, and continued support in
protecting our Nation. May God bless all of us.
Senator Jeffords. Thank you. We all know how difficult it
is for all of you to be here today to relive those very, very
difficult days. I want to commend you all.
I also want to know what we can learn from your
experiences. We have already had the discussion today about the
communications systems and the need, perhaps, for more
uniformity and the ability to make sure that you can move from
one area of the country to another, as all of you did, to be
able to communicate. Do you have suggestions or comments on any
difficulties that you had or will have in the communications
systems?
Chief Plaugher.
Chief Plaugher. Yes, Senator. I had the privilege last week
to testify at another Senate committee on this very same issue,
the Commerce and Technology Subcommittee. It is absolutely
critical that this Nation set aside a set of frequencies, a set
of spectrum for public safety use.
It's beyond me that it hasn't been done. We're told,
anyway, from the professional associations, that oftentimes
there's a debate between selling these frequencies on the open
market to the private industry or reserving them for public
safety. For me, there is no debate.
Senator Jeffords. Any other comments?
Captain Metzinger. I'd like to say, it's been addressed
earlier at the Federal level with FEMA. The current 28 teams
you now have in this country, I think more and more now we're
finding that we're working together on incidents such as this
tragedy in New York City and the Pentagon, that we could use
more national training together. We frequently do our training
locally, but we don't have the opportunity to train as a
Nation, as teams coming together. That would be really
beneficial to us.
We've got equipment, we've got people. The one thing we
need most is the opportunity to train and prepare for these
incidents. That's where the big expense comes from, is
personnel cost. If you can continue to support the USAR concept
through FEMA and training dollars and helping us be prepared,
it's probably as important as anything.
Along with that, there isn't a city or community in this
country that probably couldn't use additional support for their
own fire departments at home. We constantly struggle each year
with budget cuts and competing with other entities in the
cities, the libraries, the parks, the school districts. All are
very important. But this is one where people can lose their
lives. These people in the front lines are important to every
community. I think the more support you can give to local
resources the better off we're all going to be.
Senator Jeffords. I used to be a volunteer fireman. I was
alarmed to travel around my State a couple of years ago and to
find out the cost to individuals to be able to volunteer,
essentially, with respect to necessary equipment. Is that a
national problem, and how do you, the small, local governments,
provide the equipment for entering burning buildings and things
like that?
Captain Metzinger. It is a national problem. It's a problem
that everyone faces. It's a matter of dollars. If the money's
there, there's no limit to what they can purchase or the
training that they can do. We're often limited by how much we
can afford to do. That's a sad thing.
I live in a large community, Sacramento is the capital of
the State of California. In Sacramento, we have two hazmat
teams for a million people. We've got a community with over 50
fire stations, and we're stretching our resources to the limit.
I think we can improve on that.
Obviously, we're doing things now that we never thought we
would do. When I entered the fire service 20 years ago, we
fought fires and we helped people. Now we're doing technical
rescue, we're doing water rescue, we're doing hazardous
materials, we're doing advanced life support. We're dealing
with natural disasters like hurricanes and earthquakes, the
run-of-the-mill wildland fires. Now we're asked to deal with
domestic terrorism as well. It's just another thing on our
plate, and we can only stretch what we're doing so far.
I think we'll continue to do it, we're happy to do it,
that's what we want to do, is feel supportive. We'll continue
to do as good as we can.
Senator Jeffords. Any other comments?
Chief Hessinger.
Chief Hessinger. Mr. Chairman, I'd like to thank Senator
Clinton and Director Allbaugh for their comments on the
communications issue. We felt that a couple places that the
deployment would have gone smoother, although the Ohio Task
Force, this was our first deployment, and we had, operationally
with FEMA, a very good, positive outcome with the way things
went through the FEMA system, how immediately the dispatched
the teams and responded.
The communication was definitely an area that needs to be
addressed, with better communications and ground transportation
conveys. When you get into some of the areas of West Virginia,
Pennsylvania that we drove through, communications becomes
difficult. It's a safety issue at night in the middle of West
Virginia if you lose a truck behind you full of people who
can't keep up with your convoy or breaks down.
The other issue that I was very glad to hear Senator
Clinton bring up was the health concerns of workers onsite and
after the activities. Ohio Task Force has been in contact with
many of the other task forces with concerns of respiratory
problems being faced by the workers returning home from New
York City. We have personally had five members with pneumonia,
one has been hospitalized. I know Sacramento Task Force was the
other one hit hard with upper respiratory infections and
pneumonia. Hearing that there is concern on this committee with
acute and long term health effects from this is very
satisfying, and makes us feel comfortable that this committee
will see that the proper thing is being done for the workers
after the fact.
Senator Jeffords. Mr. Kenney, do you have anything you'd
like to say in that regard?
Mr. Kenney. I'd like to reiterate what Mr. Hessinger said
about the communications issue. I was charged with driving one
of the vehicles, and it is an issue, the communications issue,
between vehicles while you're enroute.
Also, it was an issue being able to communicate back and
forth from Midtown Manhattan to Ground Zero. We were really
unable to communicate back and forth. So if we needed something
from our rear base of operations, we had to send somebody back,
actually.
Senator Jeffords. Senator Smith.
Senator Smith. Mr. Chairman, Senator Warner has to leave,
and I'm going to yield part of my time to him for a question.
Senator Warner. I have the Chief of Naval Operations up on
the matters he's faced with waiting in my office. I'm just
going to go quickly to Chief Plaugher. You were the first
responder in Arlington County. My estimate is there are about
40 different Government agencies and cadres of employees
scattered in 40 different locations.
We had here, most unfortunately yesterday, an anthrax
situation. I'll just call it a situation, it's been fully
publicized. You would be the first to respond, in all
probability, to some of these outlying Federal Government
offices. Fortunately, here we had in place expertise. I doubt
if that expertise is 5, 10, 15, 20 miles beyond the Capitol.
What sort of equipment do you have and expertise do you
have to do on-scene ascertainment of the presence or absence,
say, of an anthrax chemical or biological attack?
Chief Plaugher. Thank you, Senator, for the question. The
Arlington County Fire Department does in fact have a large
Federal presence in our jurisdiction. We've been working on
terrorism and terrorism preparedness for many years. There are
some equipment shortfalls that we have recently requested
through some channels for support from Congress on.
But it is a complex issue, and as we are dealing with these
anthrax issues, the situations, I think that's an excellent way
to describe it, Senator, it is the whole ability to maintain
continuity, the whole ability to not let our way of life be
disrupted. That is all about confidence. That is all about us
first responders having the necessary equipment to go out and
deal with the package, the letter, the document, the box, the
whatever, and exude confidence that we have the ability to
analyze it properly and to make the right decision for the
general well-being of the public.
So we do need that capability, we do need that
specialization.
Senator Warner. You have some capability now?
Chief Plaugher. Yes, sir, we do have some capability.
Senator Warner. But it has to be enhanced by other
equipment.
Chief Plaugher. Right. We do have some capability now, and
we have requested actually----
Senator Warner. I have your request here, and I will,
together with other colleagues from Virginia, put that in to
the appropriate appropriations channel here.
I thank the chair, and I thank Mr. Smith.
Chief Plaugher. Before the Senator leaves, he was a major
player in the Fire Act of last year. I know that goes without
saying, but Mr. Chairman, you asked the question about needs
for volunteer fire departments or fire departments nationwide.
That $100 million that was recently awarded to the fire service
as a Nation is a great start.
But it does not meet our needs. As we know, we only funded
six program areas this year. There were 19,000 grant requests
for those 6 program areas totaling $3 billion, and there was
only $100 million. I know in my department, I submitted,
because you were allowed to submit for two, I submitted for two
grants, one of which was a cancer prevention grant for my
department that would have allowed me to equip my firefighters
with a second set of turnout clothing so that they would not
have to wear contaminated clothing in a situation like the
Pentagon, because they would have a set to be out to be
decontaminated while they were working in the incident.
The second grant was for a community public education in
our wonderfully diverse community that we have in Arlington
County. Because we just simply don't have the resources to be
effective with our diversity that we have. Neither one of them
were funded. Why? Because there is a huge need, because there
are other volunteer fire departments out there that don't have
one set of turnout clothing. We have simply got to fix our
first responders' need in this Nation.
Thank you, Senator. Thank you for your leadership last
year.
Senator Jeffords. Thank you very much, Chief, for that
information.
Senator Clinton.
Senator Clinton. Thank you, and I want to thank each of you
for being here. I cannot tell you how much we appreciate your
willingness to share your experiences and give us the benefit
of your experience and your insight.
There are many specific issues that we need your help on.
We've touched on some of those, the communications, the health
follow-up, additional funding into the Fire Act, a lot of very
good ideas. But I want to just ask, in addition to your being
on the front lines, which you all have been, and I remember
meeting the Sacramento team and the Ohio team when I was there
with the President. I remember a number of you telling me you'd
never been to New York before, and we were so grateful to see
you there.
In addition to your service, I know this is hard on your
families. I know that it is a very big sacrifice when you go
off to do the mission you're trained to do. How are they doing,
and is there more that we should do to try to support those who
support you on the front lines?
Chief Plaugher.
Chief Plaugher. I think the families are part of the
behind-the-scenes component that makes all of us successful. I
know we're working real hard in our department to express our
appreciation to the families. We just had a simple gesture, a
picnic, where we invited all the firefighters and their
families for a day, for an afternoon, to come and share stories
and to talk to our health care professionals and talk to other
members of the department so they know they're not in this by
themselves, they know that there are other family members going
through the same thing, which is their husband or wife that's
gone for a long period of time, staffing fire stations. Because
while we were engaged at the Pentagon, we still had to provide
services to the community of Arlington and its businesses.
So there was a great burden. For days, husbands and wives
didn't see each other for simply a couple of weeks at a time.
So we wanted to thank them. I think that's what this Nation
needs to do. It also needs to thank the families of the first
responders.
Senator Clinton. Captain Metzinger.
Captain Metzinger. One of the things that they set up for
us at the convention center was a phone bank. That was the
first time I'd seen something like that. I'd been on a lot of
campaign fires with wildland incidents in California where I
used my cell phone on a mountaintop someplace trying to reach
my family. But we were able to call from that site there any
time of day or night. It was a great thing for us to have. I
could call home.
One of the first things my wife asked me when I got back
was, how much longer was I going to do this. I said, ``Well, as
long as I'm a firefighter, probably.''
I remember when I was working this particular scene on the
picture here, that's me there working with those New York
firefighters. One day we were working, night, actually, and I
looked down and I could see 60 or 70 feet down through there. I
said, ``Oh, my gosh, come here and look at this, you guys.''
Two of them said, ``No, I don't want to look, don't even talk
to me about it.'' And I said, ``Come here and look,'' and they
said ``no.''
The guy looked at me and said, ``Why are you doing this?
Why are you here?'' I said, ``Well, I'm here to help.'' I said,
``I'm a firefighter.'' He didn't know I was a firefighter,
actually. He thought FEMA was some kind of a Federal unit that
came out of someplace, I'm not sure where. But it was
interesting, his perspective. He wondered why we're there, and
it's just to help.
Our families, they were worried for us at home. Our
particular department set up a hot line that they could call 24
hours a day and get an update on what we are doing. If other
teams aren't doing that, I'd really suggest it. It was very
helpful. If they had a need, they could call someone locally. I
had one of our chiefs come to my house and change the smoke
detector, somebody else came and mowed my lawn. Our neighbors
brought over food. It was really a nice thing. Our community
came together across this country.
The fire service usually takes care of itself. We're a
family unlike any other, I think. It's pretty nice to see that
that happened at this event as well.
Senator Clinton. Chief Hessinger.
Chief Hessinger. Mr. Chairman, Senator, I think I would
echo the thoughts of the Captain here that the critical
incident stress system that they've put in place for
firefighters now has came leap years ahead now in the last
probably 5 or 10 years, especially since Oklahoma City.
Firefighters take care of their own while they're in situations
like this. We also had hot lines set up.
But just continue to support the critical incident stress
system and the debriefings and continue debriefings for
families who need it, would be all I could see.
Senator Clinton. Thank you.
Chief Hessinger. I have a personal note. My wife and I--I
have a 2-way pager. Every morning on the bus ride to work, I
paged her and talked to her on the internet and every night
when I came home. So this bonded me with her, even being that
far away.
Also, last night she attended a stress debriefing for the
spouses for Ohio Task Force One members. I called her, it was
supposed to start at 7 p.m. and I called at 8:30 and 9 o'clock,
and she wasn't home until 10 o'clock. It was really kind of
amazing to me that there was only three of them there, but they
spent that much time with them. So it really meant a lot to
her.
Senator Clinton. I really thank you, I thank you for your
service and I thank you for your commitment. I think that we
have to pay more attention to the support systems that our
firefighters and our first response teams need, both for
themselves and their families, in order to be able to address
all of the demands that they're now facing. Thank you.
Senator Jeffords. Senator Voinovich.
Senator Voinovich. Mr. Chairman, I want to thank you for
allowing these gentlemen who are on the front lines to come in
and testify before us today. I was emotionally touched by their
testimony and how they were impacted on their experience in New
York. We can only imagine the grief of the families who lost
their loved ones, in the fire and police service and the
families who were the victims of the act of terrorism.
I want you to know that your testimony today has made me
more committed than ever to do everything that I can to make
sure that we don't experience the kind of thing that we
experienced in New York and in Washington, and to do everything
in my power to make sure that we eradicate terrorism in the
world. It's your kind of testimony that really brings it right
home to what this is all about. I think so often, a lot of
people who aren't touched by what you have been touched with
don't really understand how important this effort is that we're
undertaking.
You talked about respiratory problems in Sacramento and
respiratory problems in Ohio. Was there some kind of equipment
that your people could have worn that would have avoided their
having this aftermath from their work there in New York?
Chief Hessinger. Senator, I think the equipment was there.
The respirators that were called for, what the task force
carries was adequate or supposed to be adequate in order to
keep you busy for 72 hours. We're supposed to be self-
sufficient for 72 hours. 3-M, that would be the corporation
that manufactures the filters that we were supposed to be
using, came in probably within 4 days and brought a lot more of
those filters in to support us. FEMA did a good job getting
those filters to us.
So I think the equipment is there, and it is in place.
Again, this was just such an overwhelming and magnificent site,
and the size of it. The dust that was left when we first got to
the forward BoO, the firefighters and the rescuers were walking
through dust that was 5-, 6-inches deep in some areas. So just
the amount of stuff in the air and the particles in the air, we
went through masks a lot quicker than I think anyone ever could
have suspected. I think that was just, that was the deficiency
that we found. It wasn't a deficiency that could ever have been
foreseen.
Senator Voinovich. So in other words, you had the
equipment, but the challenge was so overwhelming that it was
too much for the equipment and then you didn't have the filters
to replace them as soon as you would like to have them.
I'd be interested to know from both of you, Captain and
Chief Hessinger, how long have your units been in place, how do
they come into existence and obviously, do you think the
training that you had was adequate to get the job done or not,
and do you feel that the equipment that you had was adequate?
Captain Metzinger. I'll speak for our team. I believe our
equipment was adequate to get the job done, although this did
present some new issues for us. In California, we're used to
concrete buildings, and this was entirely out of steel. That
presented its own problems for us, with cutting and removing.
The amount of steel in this thing is so tremendous, I'm
intimate with that building now, for spending so many nights
out there with those iron workers, cutting that stuff into
pieces. It's incredible, the weight and the thickness, the
diameter of the steel in that building. It takes large torches
and cutters to cut through that stuff that we don't really
normally carry. We have small cutters and torches for rebar and
smaller pieces of metal.
That's an area where we could probably expand our
capabilities and our expertise as well. We could have used a
lot of people out there doing what those New York City iron
workers were doing. That's one area I know we could expand in.
I joined the team right after the Federal building disaster
in Oklahoma City. We lost a lot of team members after that
incident that just didn't want to be a part of it any more, the
traumas that they went through there in Oklahoma City. I know
our team has responded to the Northridge earthquake, the
Oklahoma disaster, the Loma Prieta earthquake, we went to
Atlanta for the preparation of the Olympics there in 1986, and
other smaller incidents locally.
I know our team has been around, I'm not sure what the age
is, but it's probably at least 10 years. It's grown. I've seen
every incident we've gone to, we've grown in expertise and
equipment. We keep adding to our cache of equipment, it's grown
every year, and it needs to continue to grow.
Chief Hessinger. Senator, I think the cache and the
training we carry was sufficient. I don't think there's any way
that you could have foreseen something like this happening. It
would have taxed any system, all 28 teams. One of the Senators
that asked a question about, do we feel that if this happened
in another city would it have been as easy or as smooth an
operation. The amount of resources New York City committed to
this right off the bat was astounding. When we got there, there
were thousands of iron workers, there were 16,000 firefighters
to commit to this, there were 40,000 police officers to commit
to this, on top of everything else that New York City has
resource-wise.
So just from that, seeing that system taxed to its max, and
seeing the Federal system taxed to its max just shows the
actual magnitude of this incident. I think FEMA has done a good
job at caching us out reasonably. To create an inventory of
equipment to handle a situation such as New York City would be
astronomical and what the teams would be carrying and the price
to do that.
So there are probably things, as the Captain mentioned,
that we can improve on and maybe buy. But I think, before this
incident, I think the caches were fairly sufficient. The
training has been there.
Senator Voinovich. The training was great.
Chief Plaugher. Senator, just one quick point. One of the
discussions that is going on right now within my industry, and
that is within the fire chiefs of the United States, and
particularly the fire chiefs terrorism committee, is the
creation of a small layer of urban search and rescue teams
called USAR-lights, that would be based in the metropolitan
area.
Senator Voinovich. What are they called again?
Chief Plaugher. USAR-light, they would be a small slice of
a full-blown FEMA team that would be locally available in the
first hour of the incident for a collapsed building, collapsed
structure. They would not have nearly the capability or the
robustness of a full FEMA team, but it would be able to be into
an incident scene within the first hour to start rescue
operations. It might have one search dog, might have one
engineer, that sort of thing. We're still working on the
development of that, and it's going to take some resources,
obviously, to set it up in the metropolitan areas of the United
States.
The teams are fabulous, but it takes them many hours to get
deployed, in some cases days to go to places like New York City
from Sacramento. We think there could be a small segment of
that capability. This is all new to our industry. As the
Captain was alluding to earlier, we used to fight fires 20
years ago. Now we're your first responders for everything that
might harm you. So we're trying to develop these programs as
we're learning.
So I was interested in their comment about steel cutting
equipment and stuff like that. There's a lot we can learn.
Senator Jeffords. Thank you, sir.
Senator Corzine.
Senator Corzine. Thank you. I don't really have words to
say how you all convey the message of commitment that you and
the folks that you work with have given to the country and to
people every day. I hope folks that watch C-SPAN get a chance
to hear the testimony. It's truly remarkable.
I would love to hear comments on specific equipment needs,
generic areas that underlie this $3 billion of requests that
you talked about and that we have been somewhat remiss in
meeting the needs. Are there particular categorizations of
areas where we ought to be giving specific focus to? Second of
all, I'd love to know whether, and this gets back at the
bioterrorism situation if you will, whether training with
regard to this and planning with regard to this is built in to
the urban search and rescue missions at FEMA, and are there
steps that we need to be taking to make sure that we're better
prepared in carrying those efforts out. If there are efforts,
were they in practice and effective with the situation that
occurred on September 11?
Chief Plaugher. Senator, I can only answer part of those
questions, because the FEMA response to bioterrorism, I'm not
quite sure what level the FEMA team deals with that issue.
As far as your first question about the equipment, we need
to make sure that our first responders, particularly our fire
and emergency medical service responders, have the equipment
necessary. We have some fire departments that are operating 40-
year-old second-hand, third-hand, fourth-hand fire apparatus
that the reliability is second, it's questionable. It's sad.
I recently visited a small fire department in the mountains
of southwest Virginia. The first line piece of fire apparatus
was a 1956 flatbed Ford truck that had a round 250 gallon water
tank bolted on the back of it, and a small little 5-gallon-a-
minute pump. Somehow, we've got to fix this in our Nation.
At the time I was the president of the State Chiefs
Association of Virginia. We were diligently working through the
State to try to fix this. So there is some relationship with
the State, not just with the Federal Government here, that has
to come out as well.
But we need to make sure that we have capability
assessments, as was talked before earlier by the Director, and
that these capability assessments are State by State and
community by community, so that we can manage those hazards
that we're asked to manage every day. Our communities feel good
about their local first responders and their capability.
I'll also take this opportunity to talk about another one
of my deep concerns about our Nation and our ability to respond
to the bioterrorism question earlier. As a fire chief, and I'm
deeply concerned about our medical system capability to
respond, neither in New York nor the Pentagon nor in
Pennsylvania did we actually test our ability to deal with
thousands of casualties on our medical system.
I truly think that we need to fix it. I think we need to
roll up our sleeves and we need to work diligently to make sure
that adequate disaster response capability from our medical
community exists everywhere, and that it's worked on very, very
hard, and that we don't assume that it's there. We all know
that we have a medical community that the hospital is profit-
based in a lot of communities. Those that are not profit-based
are non-profits that are struggling to meet the demands of a
community for indigent care and other needs.
On top of that, we pile the disaster capability needs, and
then we wonder why it's missing. Well, I think we need to take
it out of that arena and we need to say that there is an
absolute requirement in our communities that disaster
capability, the ability to deal with hundreds, if not
thousands, of casualties from a bioterrorism or a natural
disaster is prepared and ready. We need to make sure that it's
tested and it's exercised and that it has the necessary
components.
I think we need to have some real honest dialog about the
ability to do that, to make sure that there's adequate funding
for the State capability. We do it in other areas. We do it for
the highway interstate system, we do it for the FAA system to
make sure that there's Federal dollars provided to manage those
things. We need to do it for here. I'll defer to these other
gentlemen about the FEMA's urban search and rescue capability
for bioterrorism.
Senator Corzine. Thank you, Chief.
Chief Plaugher. Thank you.
Mr. Kenney. Just from a worker's perspective, we went to
work every day down there, and we really didn't know what was
on those planes. They could have been carrying anything. But at
no time were we checked for anything. So I think it would
really better our capabilities if we brought in some type of
medical----
Senator Corzine. It isn't part of the regular protocol of
what you were experiencing as you carried out your efforts?
Mr. Kenney. Right. Exactly. So you know, if we could bring
in some type of medical team that would look after our needs as
well as the victims that are there, as we're working, am I
making myself clear? OK.
Senator Corzine. Mr. Chairman, can I ask one follow-up
question?
Senator Jeffords. Yes.
Senator Corzine. EPA is responsible for checking air
quality and was actively involved in, I presume, doing the
checking for bioterrorism. Was that coordinated with the search
and rescue teams? Do we feel like we're working off the same
strategy and game plan as it relates to these kinds of issues?
That's worrisome a little bit, that we're not sensing that in
the gentlemen's response.
Chief Plaugher. I can only address, obviously, the Pentagon
incident. We did have EPA partners there from the start who
worked diligently to monitor the air. The asbestos was of deep
concern within the Pentagon, as well as you alluded to earlier,
anything else that the plane might have had on it. So we had a
Federal partnership with the EPA, who was right inside of the
Pentagon, doing air sampling that was then rushed out to a
laboratory for analysis.
They were phenomenal. We got the reports back in a timely
fashion, we knew exactly what we were dealing with air quality
wise, and then what we found interesting was, even after it was
declared that we did not have to have the level of protection
that we started with earlier, some of the folks simply just
didn't believe us. They kept the protection on anyway, they
kept the respirators on, anyway. So it's a tough situation,
because it's not only physical in monitoring those conditions,
but it's also psychological, to make sure.
We also were fortunate in the District of Columbia as we
also have an NMRT, which is a National Medical Response Team
component of the U.S. Public Health Service, of which I'm the
executive director for the Washington metropolitan area. So we
have some detection capability that other communities don't
have, because it comes with a National Medical Response Team
that is specifically designed for chemical and biological
responses. So I don't think that you would find that in other
places. There are only four of them in the United States.
There's one for the Nation's Capitol, which is based in
Arlington County at the fire department there. There's one in
Winston-Salem, NC, there's one in Denver, and there's one in
Los Angeles as part of the Los Angeles County metro area.
There are other metropolitan medical teams based around the
United States if a metropolitan area chooses to have one.
That's also funded and supported by the Office of Emergency
Preparedness of the U.S. Public Health Service. I know we used
our NMRT from day one of the incident for decontamination and
working through the evidence, and the evidence decontamination
procedures for the FBI agents and law enforcement as well.
So that also needs to be brought out in our further
reported analysis of what we can do to enhance our capability.
Senator Jeffords. Thank you all.
Senator Smith.
Senator Smith. I had to yield to my colleague there, he
ranks on the Armed Services Committee.
I didn't hear anybody mention this. How often do you train
as local responders? How often do you train with the Federal
agencies, if at all, on these kinds of disasters?
Chief Hessinger. Senator Smith, each month, our team, as
Ohio Task Force One, each one of our sub-teams, rescue, search
and the other one, gets together on a monthly basis to train
with their own cache and equipment. On top of that, we have a
yearly mobilization drill where we basically mobilize to train
on a specific incident. We mobilize the whole team as we would
in FEMA. We also have one that we do as part of Wright-
Patterson Air Force Base, testing their knowledge out.
On top of that, FEMA offers classes yearly to the different
teams to go through specialist courses.
Senator Smith. So you felt adequately trained, if that's
possible, in a disaster like this?
Chief Hessinger. Yes.
Senator Smith. In the two visits that I made, the Pentagon
and New York, right after, within days, I was just absolutely
amazed at the amount of activity, and just wondered, especially
you three, all of you, where you came into this situation, in
your case just flying in from out of State, you're thrust into
this activity and just, as one who was observing, not
participating, you had construction workers, people trying to
bring food and supplies, people removing rubble, firemen,
policemen, FEMA, all this activity.
When you're thrown into that situation, how do you know
who's giving the orders? Everybody's running around with
radios. Was it all organized enough that you knew exactly who
you were supposed to take direction from and just make it all
happen? Or are you going to keep it to yourself?
[Laughter.]
Captain Metzinger. For the most part, it may look chaotic,
but it is quite organized. Each team that responds, we have two
task force leaders. We're like a para-military organization, we
have a structure that we have accountability to where we have
leaders who make decisions.
Senator Smith. Vertical integration was good?
Captain Metzinger. Exactly, yes. So we have accountability
in the same manner. So if something, a secondary device were to
go off or if something would have collapsed, we would be on top
of knowing exactly who was doing what at any given moment.
Senator Smith. Just a couple of closing comments.
Senator Jeffords. Go right ahead.
Senator Smith. Chief, first of all, thank you for your kind
remarks about the legislation I had proposed. I might just say,
there's no pride of authorship here, whatever it takes to put
the legislation together that helps you guys is what we'll do.
I know there are some others that have some different ideas. We
did have a hearing on it, I testified. So we expect that we'll
be able to put something together with a combination of some of
the proposals that were made.
Also, captain, it was very compelling, your diary. It's so
personal, and all of you, in terms of the emotion you have, I
hope you're all dealing with it well. I know it's tough. I, on
a much smaller scale, witnessed the murders at the CIA by a
terrorist a few years ago, first-hand, right up front, up close
and personal. I thought, ``I'm rough, tough, and I'll get over
it.'' I'm not over it yet, to be honest with you.
So I don't know how you deal with it. It is incredible,
what you had to see. I cannot say enough about you, and all of
your comrades.
I'll just close, Chief, it wasn't a fireman or a policeman,
but it was a Marine that, when I was at the Pentagon in all
this activity that was there at that time, they still were
looking for the possibility of live people. I spoke to a Marine
who was standing there in uniform. He asked me if we were going
to get after these perpetrators of this action, and I said,
``The good news is, yes, the bad news is, you may have to go in
on the ground to mop it up.'' And he said, ``Just call me
first, sir.'' That's the kind of spirit that we have in this
country, the firemen, the policemen, the search and rescue
people, the military, we're all one.
So thank you very much for all you did and all you're
doing.
Senator Jeffords. Thank you, Senator Smith, for those very
excellent remarks.
Let me ask another question along the lines we were talking
about before, and that's the availability of equipment. We have
seen now that it can happen anywhere. On the other hand, to
have equipment available everywhere is probably not a logical
answer. So should we think in terms of regional storehouses of
equipment, or how do we grapple with that one, so that it can
be in a timely manner?
Chief Plaugher.
Chief Plaugher. I heard the director's comments earlier
today about the--28, I think, is what he said--FEMA urban
search and rescue teams as an adequate number of teams. He
doesn't feel like he needs any more. I think if we were to add
a metropolitan component, a small, light component, that would
serve the metropolitan areas where our greatest population is,
that we could adequately then bolster that capability.
I think a regional approach is sound. I also think a
regional approach for our medical needs is also sound, where we
could do some things to cache equipment and capability
regionally as well as training. We for years have had dialog
about the role of the National Guard in preparing for a
response to terrorism. They chose to go down a different path
than what several of us recommended, because we thought that
they could have provided, could provide, valuable service,
because they do have arenas and Guard armories and those sorts
of things in most communities that could be a great asset to us
for terrorism preparedness.
So there is a need for, obviously, a great deal of dialog
as we put together a structure that is different than what
we've had to deal with before. The days of September 11 are
going to change us forever. The threats are higher, the need
for preparedness is higher, the need for response capability is
much higher. I know there is a call-out nationally for an
additional 75,000 career firefighters in this Nation. From my
perspective, that's a bare minimum, to bolster our first
response capability.
That, coupled with a regional cache of equipment, I think
we would be much better prepared.
Senator Jeffords. Captain, did you have a comment? Do you
agree with what he said?
Captain Metzinger. I echo everything he did say, along with
the Director of FEMA, that the 28 teams that you have in place
now probably adequately cover this country from Washington to
Florida. If you continue to support those, and I think it's a
good suggestion to do smaller teams in metropolitan cities that
perhaps don't have regional coverage now. Twenty-eight teams
is, I guess, not that many if you think about the size of this
country and some of the cities we have that may not have
someone close by. You were fortunate in having two or three
teams close by here at the Pentagon incident. New York City had
Massachusetts and New Jersey close by.
But the other teams are a distance out to get in there.
You've got a lapse time of travel and getting the people
together. So that may be a good idea, to have smaller, lighter
teams in some of those cities that don't currently have them.
Senator Jeffords. Chief Hessinger.
Chief Hessinger. Mr. Chairman, I think again, the road
they're on is correct. FEMA is working on and has actually
incorporated what they call, the Chief was calling a light task
force, actually, but a modular deployment, where they're taking
small components of each team and deploying them to job
specific events, i.e., they have a hurricane module right now,
where you deploy a smaller number of your task force but they
may deploy more of them to have a more congregated group of
people and equipment for that specific need.
In New York City's need, it would have been the need for
more of the search cams and the search team components, and
components for searching void spaces, deploying more teams, but
smaller and with the equipment that they need. So I think the
Chief is right on line with saying that the smaller, regional
teams would be fine and that FEMA has 28 teams that cover the
Nation well right now.
Senator Jeffords. Mr. Kenney.
Mr. Kenney. I don't have anything to add to that, because
they've all said it very well.
Senator Jeffords. Well, thank you. Thank you all. Obviously
we have a lot of work to do. On the other hand, we do have
restrictions on the amount of money we're going to have, too.
We all like to see everybody have everything that they need,
and that may not be possible. But I also will hold you in
reserve to call upon you if we have additional questions.
You've been extremely helpful and you've brought the
reality of the situation to this committee in a way that we
haven't had before. So I thank you very, very much for coming
and look forward to working with you.
[Whereupon, at 12:35 p.m., the hearing was adjourned, to
reconvene at the call of the chair.]
[Additional statements submitted for the record follow:]
Statement of Hon. Christopher S. Bond, U.S. Senator
from the State of Missouri
Director Allbaugh, thank you for coming today. You, your agency,
and all the amazing people FEMA works with have been true heroes
helping the Nation respond to the tragic events of September 11.
The September 11th attacks showed us what kind of evil exists in
our world. September 11 also showed what kind of selfless bravery
protects us and rescues us from that evil.
Emergency response teams rushed to the sites as fast as the
highjackers' planes. Some will be staying forever, because of their own
loss of life. Many continue to place themselves in danger in the
recovery effort.
While the last FEMA teams have left the disaster sites, we know
that FEMA continues to work around the clock to help put lives back
together.
We in Missouri bore witness to rescue efforts through our own
recovery team. Sixty-two members from our Boone County urban search and
rescue team spent 9 days toiling through the rubble. Unfortunately,
their efforts were recovery, not rescue.
For over a week, Boone County rescuers never gave up hope of
finding a survivor. We now know that wasn't to be. But we can now form
a new hope, that we can work tirelessly toward, that we can prevent
this from ever happening to us again.
With our emergency response actions in place, and relief efforts
continuing, we can begin to look toward long term prevention and
protection.
I am working with the Environmental Protection Agency, both to
ensure that there are no gaps in their protection responsibilities and
to ensure that they have the resources they need to protect critical
infrastructures such as our drinking water.
One specific example of a continuing responsibility under FEMA is
dam safety.
Dams managed by the Corps of Engineers and Bureau of Reclamation
receive Federal attention. However, there are over 100,000 dams under
State regulation, and 10,000 dams posing a potentially high hazard to
life if something were to happen.
Missouri is fifth in the Nation with 437 high-hazard dams.
FEMA has a role to play in getting information out to the operators
of these dams, many private, and all wanting guidance and leadership
from the Federal Government. They want to know how to assess the
vulnerability of their dams and devise emergency response plans.
EPA is sending water system protection checklists to the Nation's
drinking water systems and I encourage you to do the same.
Thank you for coming today and I look forward to working with you
in any way you think we can better manage our Nation's disasters.
__________
Statement of Joe M. Allbaugh, Director, Federal Emergency
Management Agency
INTRODUCTION
Good morning, Mr. Chairman and committee members. I am Joe
Allbaugh, Director of the Federal Emergency Management Agency (FEMA). I
thank you for this opportunity to discuss FEMA's operations in New York
and at the Pentagon following the terrorist attacks on September 11,
2001.
I was attending the National Emergency Management Association
Conference in Montana with State Emergency Management Directors from
across the country when I first learned of the attacks on the World
Trade Center in New York City and the Pentagon in Arlington, Virginia.
I immediately returned to Washington, DC. to lead our response.
As we now all sadly know, the twin towers at the World Trade Center
complex collapsed after being targeted by two hijacked commercial
airliners, and four other buildings partially collapsed. Several nearby
buildings also suffered extensive collateral damage. After the World
Trade Center attack, another hijacked plane was deliberately crashed
into the Pentagon and a fourth hijacked plane crashed in Somerset
County, Pennsylvania. Our Nation's response to these terrorist attacks
was swift and is unprecedented in America's history.
RESPONSE AND RECOVERY ACTIVITIES
Responding to the horrific events of September 11, the President
immediately signed a major disaster declaration for 5 counties in New
York. The disaster declaration was amended on September 27 and again on
October 2, making all counties in the State of New York eligible for
some form of Federal disaster assistance in the wake of the terrorist
attack.
The President also promptly declared a Federal emergency in
Virginia under subsection 501(b) of the Stafford Act, and a short time
later declared a major disaster in Virginia to trigger a broader range
of Stafford Act response authorities. In addition, the President
declared an emergency for all 21 counties in New Jersey. These
declarations make available Federal programs that provide public
assistance and assistance for families and individuals. Normally the
Federal Government provides 75 percent of the disaster response costs
with the remaining 25 percent the responsibility of non-Federal
entities; however, in this disaster FEMA is reimbursing the States and
affected local governments for 100 percent of the eligible costs for
debris removal, emergency protective measures, and public
infrastructure rebuilding costs in response to the terrorist attacks.
Minutes after the first hijacked airplane hit the World Trade
Center, I activated a full Emergency Support Team at FEMA's National
Interagency Emergency Operations Center in Washington, DC. Federal
officials immediately began arriving at the Center to coordinate the
nationwide response and recovery effort. Some 1,800 Federal workers are
deployed to New York to support the disaster response, about 800 from
FEMA and almost 1,000 from other Federal departments and agencies.
At the same time I activated FEMA's 10 Regional Operations Centers
and a backup Emergency Support Team at our Mt. Weather facility in
Berryville, Virginia. Both Emergency Support Teams operated around the
clock, working 12-hour shifts. The FEMA Headquarters Emergency Support
Team continues to operate so that we are prepared to immediately
respond to any additional events, should this become necessary.
Additional teams have been operating at FEMA Headquarters and in the
field since September 11 supporting the disaster response, using the
Federal Response Plan to coordinate all Federal activities and to
strengthen State and local capabilities.
Shortly after the incident, the lead for disaster response and
recovery was transferred to Disaster Field Offices (DFOS) in New York
City and in Arlington, Virginia. We deployed four Mobile Emergency
Response Systems (MERS) to New York and one to Virginia to provide
communications and other support to the DFOs and other facilities to
enhance communications capabilities. One of these mobile units provided
essential communications capabilities for the Federal Bureau of
Investigation's (FBI) Office in New York so that they could immediately
begin the investigative work essential for bringing the terrorists to
justice and preventing similar acts in the future. At the same time, we
dispatched liaisons to the FBI's Joint Operations Centers in New York
City and Arlington and to the FBI's Strategic Information and
Operations Center in Washington, DC. A FEMA National Emergency Response
Team, our field response organization, was immediately alerted and
remains on call if needed to respond to any other events.
Our top priorities in helping New York and Virginia throughout this
entire disaster response effort have been to:
Provide urban search and rescue support;
Assist in life saving operations;
Meet individual and public assistance needs;
Implement human services and victims assistance programs;
and
Assist in debris removal.
To support response activities in New York, mobilization centers
were established at McGuire Air Force Base in New Jersey and Stewart
Air National Guard Base in New York. Additional operating centers were
established in the two States. The Anacostia Naval Air Station in
Washington, DC, served as a mobilization center in support of the
Pentagon operation. These centers supported the staging and movement of
personnel and needed supplies and equipment into the affected areas.
FEMA's Urban Search and Rescue (US&R) Task Forces have played a
critical role in our response. In fact, the attacks thrust the Task
Forces into the spotlight. The world has been focused on their
important life-saving work and they have received a surge of gratitude
and support from all over. The Task Forces are made up of between 62
and 72 emergency responders who conduct search and rescue operations,
provide emergency medical care for victims, handle search and rescue
dogs, and evaluate and stabilize damaged structures. Twenty-six of our
28 US&R Task Forces have been employed in responding to the Pentagon
and New York disasters--5 at the Pentagon and 20 in New York, and one
Task Force is assigned as a Rapid Intervention Team to respond to other
events in New York City. At this time, 22 of the 28 Task Forces are
available to respond to additional emergencies.
The New York City Office of Emergency Management's US&R Task Force
was among the first responders at the World Trade Center. The New York
Force is a valued part of FEMA's 28 Task Forces that make up the
National US&R Response System. Its Task Force leader, Chief Raymond
Downey, was one of the first responders on the scene. Chief Downey was
also the leader of the National US&R Task Force Leaders and was a board
member of FEMA's US&R Advisory Committee. He and his Task Force members
are among the missing and dead brothers of FEMA's US&R system.
Our Federal partners have played extremely important roles in the
response efforts. The Department of Health and Human Services and
Public Health Service have played an important role in the health and
medical response. 167 persons are assigned to Disaster Medical
Assistance Teams and a Medical Support Team to support the response in
New York and remain in the City. Similarly, 160 persons are assigned to
Disaster Mortuary Teams and remain in the City. Thirty-three Centers
for Disease Control epidemiologists are assigned to track illness
trends. A Veterinary Medical Assistance Team is deployed to treat the
rescue dogs; a burn team consisting of 9 nurses is operating at New
York's Presbyterian Hospital; and a pharmaceutical stockpile were
deployed to New York City, and all except the stockpile remain there.
Debris management is, of course, another major area of concern with
building collapses of this magnitude. Approximately 1.4 million-plus
tons of debris are involved and some 300,000 tons of mixed debris have
been removed to the sorting and disposal site at the Staten Island
landfill. New York City has tremendous capability in this area and is
managing the debris removal effort with technical support from the U.S.
Army Corps of Engineers. Dredging of the Hudson River has been
accomplished to facilitate removal of debris by barges.
A great deal of our recovery focus is on helping individuals
impacted by the disaster and we have set up a Disaster Assistance
Service Center to help in this regard. FEMA Community Relations teams
are going door-to-door in Lower Manhattan to distribute information and
answer questions on the type of support FEMA is providing such as
temporary housing assistance, and grants for emergency home repair,
cleanup, unemployment assistance, and crisis counseling. The New York
State Department of Labor estimates that 285,000 workers have been
displaced or have become unemployed by the disaster.
We are also closely coordinating with the Department of Justice's
Office for Victims of Crime (OVC), the Department of Health and Human
Service's Center for Mental Health Services, and the American Red Cross
to provide a myriad of services. FEMA approved the State of New York
Crisis Counseling Immediate Services Program and it is providing crisis
counseling. The National Voluntary Organizations Active in Disasters is
helping us with a long-term strategy for managing donations.
There are several unique aspects of our responses to the terrorist
attacks that relate to the provision of assistance to individuals.
First of all, most disasters do not involve criminal acts, so FEMA does
not routinely need to coordinate with OVC in the course of providing
disaster assistance; however, in the current disaster, we are
coordinating with OVC because they are providing assistance to victims
of the terrorist attacks and their families and we want to make sure
that there is no duplication of assistance. Second, the outpouring of
donations that non-governmental organizations have received in the
aftermath of the attacks is unprecedented. Finally, because these
catastrophes involved airplane crashes, we are coordinating with the
National Transportation Safety Board (NTSB) with respect to the
provision of assistance from United and American Airlines to the
families of the victims. In response to the unique aspects of this
situation, we have aggressively coordinated with OVC, the NTSB, and the
non-governmental recipients of donated funds to put in place as
coordinated and efficient a response structure as possible. Since the
Stafford Act prohibits FEMA from duplicating disaster assistance, we
are being very careful to coordinate with all appropriate
organizations.
In another area, because the recovery of our infrastructure is so
critical to restoring economic viability, we have established an
Infrastructure Recovery Workgroup in New York to coordinate the
stabilization and ultimate reconstruction of infrastructure and to
incorporate reasonable enhancements and mitigation measures into the
reconstruction process throughout the affected area.
I would like to acknowledge the tremendous support we have received
from some of our other partners I haven't mentioned thus far:
Transportation and movement support provided by the
Department of Transportation;
Telecommunications assistance from the National
Communications System;
Logistical and managerial support provided by incident
management teams from the U.S. Firefighting Service;
Mass care, feeding, and mental health support from the
American Red Cross and other volunteer organizations;
Resource support from the General Services Administration;
Environmental monitoring and sampling support from the
Environmental Protection Agency;
Food stamp program support from the Department of
Agriculture
Assistance in resolving power restoration problems from
the Department of Energy; and
Invaluable support from the various branches of the
Department of Defense.
There has also been an incredible outpouring of offers of
assistance from the international community. Citizens of more than 80
nations were killed in the WTC attack, and 59 nations and the European
Union have offered humanitarian assistance. Canada, Brazil, France,
Mexico, Norway, and Sweden provided assistance, primarily in the form
of small rescue teams and technical emergency management expertise.
There is no doubt that the disaster response and recovery will be a
long-term process, but the President has said that we will provide
whatever assistance is needed to get the job done. I can assure you
that FEMA will be there as long as needed. We will continue to work
closely with New York City and the States of New York, Virginia, New
Jersey, and Pennsylvania to complete this mission. I am grateful that
Congress appropriated $40 billion to the President's Emergency Response
Fund for overall emergency assistance to fashion a creative plan to
recover from these events.
I am especially moved and deeply humbled by the heroic and
unselfish efforts of emergency responders from the local police and
fire departments who placed themselves in harm's way to help others in
their time of need. I am forever grateful to them for their ultimate
sacrifice and bravery. Many of these policemen, firemen, and emergency
medical technicians tragically lost their own lives while doing what
they do best, putting everything aside to rush to the scene to save
lives, rescue the trapped and injured, and be the first responders. Our
hearts are hurting along with those individuals who have lost their
loved ones. More than ever, we must reach out and do whatever we can to
console them and help them through this difficult and sad period.
The level of cooperation and professionalism exhibited by all of
the Federal, State and local personnel and emergency responders has
been outstanding, and the American people can be proud of the work they
are doing to help the Nation recover. I am pleased by the dedication,
abilities, and sheer will of the FEMA employees, the rescue workers,
and officials from all levels of government, representatives of private
businesses, volunteers, and others who are working together to help in
the aftermath of this tragedy. The support we have received from the
public has been tremendous. It won't be easy, but I know that we will
prevail in the recovery effort because of the spirit and dedication of
all of these people.
THE ROLE OF THE OFFICE OF NATIONAL PREPAREDNESS
I would also like to give you a brief status report on the Office
of National Preparedness (ONP). The President asked me on May 8, 2001
to establish the Office of National Preparedness, to lead the
management of the consequences of the use of the weapon of mass
destruction in the United States, if such use should occur despite the
efforts of our Government to prevent it. A crucial part of any such
consequence management effort, and a part for which FEMA is uniquely
suited, is to work closely with State, tribal and local governments to
ensure their planning training, and equipment needs are met.
Under the Federal Response Plan, FEMA's role in response, recovery,
and incident management is also crucial in responding to the
consequences of terrorist incidents. The principal goal of ONP is to
develop a coordinated, local, tribal, State and Federal effort to deal
with the consequences of mass destruction in the U.S.
On June 5th, I announced the restructuring of FEMA, which included
creating ONP, to be headed by an Executive Director who reports
directly to me. The ONP will have FEMA employees, detailees from the
relevant Federal departments and agencies and, as appropriate, State,
tribal and local representatives. On July 2, we activated ONP at FEMA
headquarters.
As you know, the President has announced the creation of an Office
of Homeland Security with Gov. Tom Ridge of Pennsylvania serving as its
director. This Office will coordinate the efforts of the Nation,
seeking to reduce our vulnerability to terrorist attacks and mitigating
their effects should they occur. I am pleased to report that the Office
of National Preparedness is ready to assist Governor Ridge as he crafts
and seeks to implement an overall strategy for the Nation.
The Federal Emergency Management Agency, and its Office of National
Preparedness, will play a key role in working with other Federal
agencies, and State, tribal and local personnel, to deal with the
consequences of uses of weapons of mass destruction.
CONCLUSION
Mr. Chairman, you convened this hearing to discuss FEMA's
operations in response to these two terrorist attacks. I have visited
both sites numerous times and seen first-hand the shocking degree of
destruction. I hope I have been successful in imparting some of what I
have seen. FEMA is responsible for ensuring that the national emergency
management system is adequate to respond to the consequences of
disasters of all types, including acts of terrorism. The Federal family
has focused its efforts on providing assistance to those affected by
these terrible events and has done so swiftly and successfully, in
part, because of the strong partnerships fostered through years of
preparedness planning, and responding to other types of disasters.
When I visit the disaster sites, I am amazed and gratified by the
cooperation and the coordination of all of the workers, whether
Federal, State, local or volunteers who, shoulder-to-shoulder, are
working long and hard hours. Each time I visit, I also remember that I
am entering a crime scene, as well as a memorial sight. Workers there
are working diligently, but also with a great deal of respect. These
workers, these heroes, continue to put themselves at risk trying to
help their brothers and sisters. It is tough duty, and these are unique
and special individuals who are called to this work. I am concerned
about the victims, the brave firefighters, and emergency and police
personnel who have worked so hard under extremely difficult conditions.
We owe all of them an immense amount of gratitude and thanks.
President Bush, Governor Pataki, and Mayor Guliani have provided
New York and the Nation with inspiring leadership at a time when it was
so desperately needed. The strength and spirit of the City and of New
Yorkers have allowed them to bounce back in fine fashion. While
recovery efforts continue at Ground Zero, life is returning to a
semblance of normalcy. Students whose schools were near the World Trade
Center have returned to class, but in different buildings blocks away.
Major League baseball and football have returned to New York. The New
York Stock Exchange opened less than a week after the terrorist attack.
Though our hearts are broken, the process of healing has started. This
Country is unique in its resilience and incredible spirit and we have
witnessed this during the past few weeks.
We appreciate your leadership during this difficult time. The
cooperation and support provided by the Congress, as evidenced by the
recently enacted supplemental appropriation and by your committee's
willingness to review statutory authorities to assist in our efforts,
is welcome and necessary. I thank the committee members for the
opportunity to describe the activities of all the responders in New
York City and at the Pentagon.
Thank you, Mr. Chairman. I would be happy to answer any questions
that you and the committee members have.
______
Statement of Edward P. Plaugher, Chief, Arlington County, VA Fire
Department
I am Chief Edward Plaugher of the Arlington County Fire Department.
I would like to begin by thanking the committee for having me today.
I understand that the committee is deeply concerned, as all of us
are, with the events of September the eleventh. The shocking and tragic
events of that day have had a profound impact on the men and women of
my fire department and on this Nation's fire service as a whole.
I will speak today to some of the specifics of Arlington County's
response to the attack on the Pentagon and to the role of the Federal
Emergency Management Agency on that day and subsequent weeks. I will
also make several recommendations on how we might improve our response
capability.
Our fire department's response to the plane crash began with a call
for help from an Arlington County Fire Department engine company
passing the Pentagon on its way to a more routine fire call.
Our northern Virgina Automatic Aid program was immediately
activated. Units from Ft. Myer, Alexandria, Fairfax and National
Airport responded on the initial aid alarm. The second alarm included
units from the District of Columbia Fire Department as well as from
Montgomery County and Prince George's County, Maryland. Those first
responding fire units fought an inferno triggered by 6,000 gallons of
jet fuel in the world's largest office building.
The Federal Emergency Management Agency's (FEMA) overall response
to the attack on the Pentagon and its aftermath was superb. FEMA
personnel arrived quickly and were extremely cooperative. They provided
and continue to provide support to the Arlington County Fire Department
and to our entire community. FEMA's field office director, Tom Davies,
arrived with a positive, can-do attitude. He quickly explained that
FEMA's core responsibility would be to work with the State of Virginia
to ensure that all legally available aid was delivered as quickly and
efficiently as possible. It came as a surprise to us that FEMA's
operation was self-sufficient and imposed no support burden from
Arlington County.
FEMA's front line operational contribution was made by its Urban
Search and Rescue (USAR) program. FEMA mobilized teams based in Fairfax
County and Virginia Beach, Virginia; Montgomery County, Maryland and
Memphis, Tennessee, to assist in the search for survivors. FEMA's USAR
team based in New Mexico was later mobilized to provide relief to
exhausted rescue personnel.
Mr. Chairman and members of the committee, I must tell you that
FEMA's USAR teams made an outstanding contribution to our effort. These
teams are comprised of dedicated professionals whose hard work and
unyielding efforts should not be overlooked.
The capabilities of these teams are unique and generally are not
available at the local level. As with FEMA's other operations, arriving
teams are prepared for self-sufficient operations and thus did not
burden Arlington County in any way with support requirements. That is
in and of itself a sign of a well-designed response program.
Two resources brought by FEMA's USAR teams stand out in my mind.
First, search-dog capability, a need unique to search and rescue in
structural collapse, allowed for a swift and thorough search for
victims that would not have been possible otherwise. Second, the
inclusion of structural engineers in USAR team deployment provided the
expert supervision that we needed to conduct the safest possible
operation. Where else, in a crisis, do you find people with expertise
like that?
All of us have room to improve how we do business. Though we in
Arlington were impressed with FEMA's USAR capability, we were largely
educated on FEMA's USAR capability at the Pentagon that day. It would
be helpful if fire chiefs nationwide had a good understanding of USAR's
role, capabilities and limits in advance of a catastrophe. My
recommendation is that FEMA's USAR capability, including resources and
operating procedures, be included in course curriculum at FEMA's
National Emergency Training Center and particularly its National Fire
Academy. A solid understanding of FEMA's USAR program, before a
catastrophic incident occurs, would improve the overall operation of
mitigating the event.
I would also recommend that performance capability objectives be
developed for the USAR program. By that I mean a standardized list of
capabilities that a local incident commander can count on when a USAR
team is deployed. I mentioned, for example, the exemplary canine search
capability brought by USAR to the Pentagon. We must ensure that every
USAR team enjoys the same capability. How many dogs should a team
employ? For how long and over what area can a dog team search? If those
kinds of capabilities can be standardized, we as fire chiefs can make
safe assumptions with respect to our overall operational capabilities.
It occurs to me that the development of these capability objectives
should be developed by a panel of experts that includes both local
emergency response officials and USAR experts.
There is another issue with respect to USAR that I would like to
address. It came to my attention in the aftermath of the attack on the
Pentagon that there is at least one, and usually two, complete back-up
teams that can be called upon to relieve deployed USAR team members.
However, I also learned that there is an equipment shortage that allows
for only one appropriately equipped team to be deployed at a given time
from any one of USAR's 28 bases. If the airplane that crashed in
Pennsylvania the morning of September 11 had instead reached
Washington, DC, how would we have chosen where to send the existing
cache of USAR equipment?
We know now that the passengers on that airplane took action to
relieve us having to make such a choice. I believe we owe it to their
memory to ensure sufficient USAR equipment cache is provided so that
those who are trained and organized to use it effectively are not left
helpless in any future multi-site incident.
We in the metropolitan Washington area are lucky to be home to both
Montgomery County and Fairfax County's USAR teams. This is a unique
situation.
FEMA has commonly been faced with the challenge of transporting
USAR teams over great distances to render aid. This takes precious
time. We in the fire service have testified repeatedly before the
Congress on the role of ``first response'' to any disaster, terrorist
or otherwise. The ``first response'' is key because in the minutes and
first 1 or 2 hours after an event has occurred is the timeframe in
which the vast majority of survivors are rescued.
It seems to me that we should look at creating a USAR ``lite''
capability that could be mobilized locally to work in the search for
survivors until a fully staffed and equipped FEMA USAR team can be
brought to the scene of an incident. This would go a long way to
bridging the specialized search and rescue gap that exists when USAR
teams must travel long distances.
Incident command in circumstances like those we faced at the
Pentagon is put to the test by fatigue. Our fire department's command
staff was exhausted by the need for coverage for 24 hours a day, 7 days
a week for several weeks. I would propose what I will call a ``Command
Overhead Team'' program be developed by FEMA that would allow a small
number of chief fire officers, with significant command experience, to
be mobilized to support operations in a future incident. These teams
could work in shifts to provide command and planning support to a fire
department engaged in large scale operations in the wake of a terrorist
attack or natural disaster. It might also serve in a situation similar
to that we saw in New York, where the fire chief and a large number of
his command staff were killed in the collapse of the World Trade
Center.
The level of cooperation and mutual assistance between FEMA and the
Arlington County Fire Department was excellent. There are many moving
parts to an effective response to a terrorist incident. Each of us must
have good expectations of our own capabilities and a clear
understanding of the roles and responsibilities of different agencies.
In the final analysis, what transpired at the Pentagon, under the
circumstances, was dealt with professionally and to the best of each of
our abilities. We at the Arlington County Fire Department learned
valuable lessons with regard to our own abilities and limits. It is my
hope that we can all use those lessons to further a more effective
preparedness effort.
I would like to conclude my remarks, Mr. Chairman, in speaking to
the overall Federal terrorism preparedness effort. There are said to be
over 40 different offices and bureaus involved in terrorism
preparedness across numerous Federal agencies. Though we have made
great strides in our operational interaction with Federal agencies,
there is an urgent need for better coordination of pre-incident support
and training programs.
I testified last spring before the House Transportation Committee
on a piece of legislation designed to address this issue. A Senate
companion bill, S. 1453, the Preparedness Against Terrorism Act, 2001,
was recently introduced by Senator Bob Smith and referred to this
committee. This bill codifies the Office for National Preparedness at
FEMA that President Bush created earlier this year. It creates a
``President's Council'' that will be charged with the development of a
single national strategy on terrorism preparedness that will include
measurable preparedness goals.
We applaud President Bush's designation of Governor Tom Ridge of
Pennsylvania as our new ``Homeland Security'' coordinator. However, it
seems to us that S. 1453 could bring focus and legal authority to this
new effort. It is my understanding that the Bush Administration had
significant input to this bill and I urge you to make whatever
modifications are necessary to address Governor Ridge's role and to act
favorably on the bill in sending it to the full Senate for
consideration as quickly as is possible. We owe it to our country to
have the best coordinated, comprehensive terrorism preparedness
strategy as is possible.
Thank you again for having me today. I am happy to answer any
questions.
______
Statement of Jeffrey L. Metzinger, Fire Captain, Sacramento, CA
Metropolitan Fire District; Member, FEMA Urban Search and Rescue Team
Mr. Chairman and members, my name is Captain Jeffrey Metzinger. I
am employed with the Sacramento Metropolitan Fire District and a member
of the Federal Emergency Management Agency's (FEMA) Urban Search and
Rescue (US&R) Team. Specifically, I am a member of California's Task
Force 7 (CA-TF7) team based in Sacramento, California.
I was dispatched to New York City as a part of the search and
rescue efforts in response to the terrorist attack on the World Trade
Center on September 11, 2001. I sincerely appreciate the opportunity to
share my hands-on experience as a heavy rigger/rescue specialist during
11 arduous days beginning on September 11, 2001.
The fire service and other emergency services are critical to the
mission of protecting our communities. The events of September 11, 2001
have demonstrated that first responders offer the best possible chance
of saving lives during catastrophic events. First responders must be
adequately equipped and trained to perform the jobs under the most
adverse conditions. Domestic terrorism is a relatively new threat to
citizens of the United States--and we will need Federal support to be
adequately prepared. Terrorist attacks may occur in many different and
unconventional ways: chemical, biological, hazardous materials, weapons
of mass destruction, to cite a few.
US&R teams are designed to provide supervision and control of
essential functions at incidents where technical rescue expertise and
equipment are required for safe and effective rescue operations. The
Federal Government, through FEMA, has established twenty-eight (28)
National US&R Task Forces throughout the Nation. US&R Task Forces are
able to deploy within 6 hours of notification.
Each US&R Task Force is comprised of 62 persons specifically
trained and equipped for large complex urban search and rescue
operations. The multi-disciplinary organization provides five
functional elements which include command, search, rescue, medical and
technical. The US&R Task Force is totally self-sufficient for the first
72 hours and has a full equipment cache to support its operation.
Transportation and logistical support is provided by either State or
Federal resources.
The US&R Task Force can provide round-the-clock operations (two 12-
hour shifts). The five functional elements in detail are:
Search--includes physical, canine and electronic (special
cameras and listening equipment)
Rescue--conduct rescue operations in all types of
structures
Medical--primarily responsible for the care and treatment
of task force members and entrapped victims during extrications
Technical--provides personnel competent in structural
integrity assessments, hazardous materials, heavy equipment and
rigging, communications and logistics.
Command--the US&R Task Force is commanded by a Task Force
Leader. The Task Force Leader is assisted by a Safety Officer and Plans
Officer.
Almost all members of an US&R Task Force are firefighter rescue
specialists. Many members have multiple abilities that allow them to
work in a variety of positions. My specific role is defined as ``heavy
rigging specialist'' on CA-TF7. The heavy rigger has expertise in
moving large objects (like steel and concrete). Typically, the heavy
rigger coordinates rescue operations between team members and heavy
equipment such as cranes. At the World Trade Center incident, heavy
riggers were an integral part of the rescue operation. I kept a small
notebook in my pocket and chronicled our efforts to assist the
firefighters, police officers, and citizens of New York City. The
following are excerpts from my personal journal on the devastating
events beginning on September 11, 2001.
Tuesday, September 11
(6:15 a.m.--Pacific Standard Time)
I was on my way to work like so many others when I heard on the
news on the radio that an airplane had crashed into the World Trade
Center. I raced into the office where I currently work as a Training
Officer for the Sacramento Metropolitan Fire District. Within minutes,
I heard that a plane had crashed into the other Tower as well--and that
news changed everything. It was obvious that these actions were no
accident.
(7:30 a.m.)
Captain Steve Cantelme (a co-worker) and myself are both members of
FEMA's California Task Force 7. We realized that our team would likely
be deployed to New York City. Our Team's rescue cache is located across
town and other team members were already in route to prepare for a
deployment. The forklift used to load our large rescue pallets was not
with the cache. It was being used in a Rescue Systems class several
miles from where it needed to be. We quickly hired a transport truck
and escorted our forklift across town in rush-hour traffic. (A second
forklift would have been highly useful.)
(9:00 a.m.)
CA-TF7 arrived at Fire Station 9 where our rescue cache is stored.
There is a great deal of activity as our team gets official word that
we are responding to New York City. There is a lot of tension in the
air and everyone is hurrying to move 62 people and tons of rescue
equipment onto 3 truck and trailers and 3 buses.
(2:30 p.m.)
CA-TF7 leaves Station 9 for Travis Air Force Base. There are lots
of other CA-TF7 members who helped get us out of town. They all wanted
to go with us--but only 62 people are deployed. Interstate 80 is closed
by the Highway Patrol as we get a code 3 (red lights and sirens) escort
to Travis. I finally have a minute to reflect on what is going on.
Tragedy awaits us and I already miss my wife and daughter. We get word
that both the World Trade Center and the Pentagon have been attacked by
hijacked civilian airplanes.
(4:20 p.m.)
We're waiting at Travis Air Force Base to load on the plane.
Sitting in a chair, I realize how hungry I am. I haven't eaten since
last night.
(4:35 p.m.)
We get a briefing from the Task Force Leader. We will be flying
into a crime scene. Everyone is advised to document their activities
when we finally get to work. Our Task Force is divided into two teams--
Gray and Blue. I'm assigned to the Blue team as ``heavy rigger''.
Captain Jay Coon will be my counterpart on the Gray team. I will report
to Marc Bentevoja who is the Blue team Rescue Manager.
(5:30 p.m.)
We are loaded onto a USAF C-5 Galaxy and our destination is McGuire
AFB in New Jersey. Security has been intense all day.
(5:50 p.m.)
We are served a delicious box lunch on the plane. I ate everything
except the box.
(6:27 p.m.)
We are ``wheels-up'' from Travis ARB. I'm too anxious to sleep. An
Air Force crewmember informs us that we have a 4 fighter jet escort to
the East Coast. It sinks in how treacherous this assignment really is.
Wednesday, September 12
(2:13 a.m. East Coast Time)
We land at McGuire AFB after a 4\1/2\-hour flight. The plane is
quiet. You can feel the anxiety in the air.
(4:30 a.m.)
We are provided a bed for about 3 hours of sleep.
(7:30 a.m.)
Breakfast is served in the dining hall.
(9:00 a.m.)
There is a morning briefing from the Task Force Leaders. The word
is that we will be waiting a while. Everyone is reminded that security
is at its highest level. We are not to wander or go anywhere alone.
(2:00 p.m.)
Buses arrive for our transport to New York City. Our bus is
searched by military dogs after we board. Everyone's identification is
checked again.
(2:55 p.m.)
We are finally leaving for New York City. Everyone is anxious to
get to work.
(5:00 p.m.)
As we approach the Hudson River from New Jersey, you can see a
large column of smoke coming up from the site where the World Trade
Center used to stand. This is my first trip to New York City, and I
feel sad by what I see.
(6:00 p.m.)
We have arrived in New York City. Traffic is incredible, even with
a full police escort. The corners are filled with people. We are just a
few blocks away from the large smoke column I had seen earlier.
(7:00 p.m.)
We arrive at the Javits Convention Center where we will set up our
base of operations. There are several other teams coming in as well.
They include teams from: Los Angeles City, Missouri, Indianapolis,
Riverside (Ca.), and Pennsylvania. It takes most of the evening to get
our cache unloaded and our area organized for an extended stay.
Thursday, September 13
(12:30 a.m.)
There are two physicians that are a part of our team. One of their
jobs is to keep other team members healthy. Averaging about 3 hours of
sleep per day, I took a sleeping pill to get some rest.
(6:00 a.m.)
Up for breakfast. Looks like we're gearing up to work at the
``site'' this morning.
(12:00 Noon)
Gray team will be working the day shift. They are deployed out to
the site. Members of the Blue team will relieve the Gray team this
evening.
(7:15 p.m.)
Blue team is loaded onto the bus and we head into our ``sector'' to
go to work. We meet up with the Gray team and exchange information. We
take a brief tour of the collapse zone along Church Street. The scene
is surreal. There are people everywhere. Smoke continues to drift from
massive piles of rubble. The expanse of this disaster is difficult to
comprehend. Our forward base of operations is located in a garage on
the bottom floor of an office building at West Broadway and Park.
Several searches are conducted by our search dogs in the vicinity of
Tower 7. The technical search camera is also used. We had no luck in
finding any victims.
Friday, September 14
(12:00 Midnight)
Our team is working the area for an assignment. The dogs have
alerted--but at a very dangerous location. It is too unstable to enter.
There is heavy thunder, lightning, wind, and heavy rains tonight.
(8:30 a.m.)
We're back at the Javits Center for breakfast and then 3\1/2\ hours
of sleep.
(4:00 p.m.)
Briefing form the Task Force Leader. We are told that President
Bush will be visiting. Secret Service is everywhere and dogs are
searching through our stuff.
(5:30 p.m.)
Met and shook hands with President Bush and Senator Hillary Rodham
Clinton. The Governor and Mayor were also in attendance. This was quite
an experience! Their visit was very much appreciated.
(8:15 p.m.)
Briefing for night operations. We will be moving to the Church and
Dey Street Command Post where we will be working with the Massachusetts
Task Force.
(8:40 p.m.)
On the bus headed to work. Hundreds of people line the streets and
cheer us as we go by. Traffic is so congested, we get off bus and walk
the last few blocks to Church and Dey.
(11:00 p.m.)
Tonight, I'm assigned to our technical search team. Our rescue team
is setting up a rope system to lower one of the rescue team members
into the debris crater near the Church St. command post. The objective
is to place a cellular phone antennae to assist with victim locations.
Saturday, September 15
(3:35 a.m.)
We are released for the sector for the evening. Everyone on the
team is anxious to do something to help.
(3:30 p.m.)
We had a visit from the New York Yankees. They thanked us and we
thanked them. Seems that everyone wants to help.
(7:30 p.m.)
Headed back to work. People are still lining the streets--cheering,
waving flags, holding signs, lighting candles.
(8:15 p.m.)
The search and rescue teams are out to complete searches of all the
building in our sector. There are several 30-plus story buildings
around the World Trade Center plaza. The searches are conducted from
basement to roof. Every door is opened, and every space is checked.
Climbing the stairwells, we take on one building at a time. Many walls
facing the plaza have sustained serious damage. We do not find any
victims. Every floor of every building we search is marked as being
completed. This assignment took a toll on the legs.
(9:00 a.m.)
Relieved by the day crew. We return to base for some rest.
(6:45 p.m.)
We get a briefing for the next work period. Three top FDNY Chiefs
are laid to rest today. We are to be moving into more dangerous ground
today between buildings 5 and 6 (possibly underground). Drawings show
up to 6 levels below street grade. Chaplain Ward Cockerton says a
prayer for the victims of this disaster and for the safety of our team.
(8:45 p.m.)
Reported to the Church and Dey Command Post and began work as a
heavy rigger. Steve of the Massachusetts TF1 and I worked with 4 New
York iron-workers. Using a 90-ton crane, we worked all night non-stop
moving steel.
Sunday, September 16
(8:00 p.m.)
Back to work with the crane and a new group of iron workers. Made a
connection with Mike, Rich, and Kevin. They are good people. We cut and
moved tons of steel again tonight.
Monday, September 17
(Early morning)
I found a child's doll in the rubble. I miss my family a bunch. I
heard our rescue team found a victim this morning--a police officer.
Hopes for a live rescue seem to be dimming.
(9:00 a.m.)
Back to Javits Center for some rest.
(8:00 p.m.)
We're on the bus back to the work site. I'm tired already. Headed
back to the crane. We work all night moving steel. I have noticed after
several nights that there is very little debris that is recognizable.
There are no desks, chairs, carpet, sheetrock, or anything else you
would associate with an office building--just the steel structure.
There are still no victims discovered in the immediate area.
Tuesday, September 18
(9:30 a.m.)
We're back to the Javits center for a sleeping pill. It worked.
(8:00 p.m.)
On the pile again moving steel and searching for victims. Today,
the smell of death is more evident. I found a business card of man
whose office was on the 83rd floor of one of the towers. I wondered
what his fate was. I said a prayer for him, hoping he's alive and well.
Wednesday, September 19
The crane operation is halted at midnight in order to make
preparations for a larger crane to move in. It looks like a 300-ton
crane will be ready to go within 24 hours. The reach and capability
will improve our efforts. While the crane is shut down, I joined forces
with some FDNY people. There were two battalion chiefs with their
sleeves rolled up working alongside us. We were moving debris by hand.
It's a very solemn night.
(6:00 a.m.)
Waiting for relief team . . . tired, tired, tired.
Thursday, September 20
(5:45 a.m.)
We're heading home today. It takes all day to pack our equipment
and load onto transport trucks.
(3:45 p.m.)
We're sitting on the bus waiting to return to McGuire AFB in New
Jersey. It's been a long 10 days. I'm exhausted, and the team physician
has diagnosed me with bronchitis.
The dust we have been breathing all week finally caught up with me.
Many others on the team have the same complaints of headache, sore
throat, sinus congestion, and sometimes fever. Everybody is troubled
that we didn't find any live victims.
(8:45 p.m.)
We have arrived at McGuire AFB. Security is still very high.
Everyone is carrying automatic weapons.
(11:00 p.m.)
Getting sicker by the minute. The team physician has me on
antibiotics, Sudafed, sleeping pill and albuterol inhaler.
Friday, September 21
(1:00 p.m.)
On board a 757, North American Airlines with the Task Force teams
from Riverside and Los Angeles, California.
(3:45 PST)
We drop off the Riverside and Los Angeles Team in southern
California.
(7:20 p.m.)
We land at Travis AFB in northern California. We have a full police
and fire escort for the drive back to Sacramento. Every freeway
overpass along the way is full of fire engines, police cars, and
citizens cheering us home. It was a very warm reception.
(9:15 p.m.)
We arrive in Sacramento to a huge gathering of family, friends, co-
workers, dignitaries, and the media. For the people of Sacramento, we
were their connection to the tragedy in New York City. It felt very
good to be home, but I felt like a part of me was still in New York
City.
When I go to sleep, I still dream about being there.
Additional support of the Federal Government is necessary to save
lives during future catastrophic events. Our citizens and first
responder's lives will depend upon our efforts to be proactive and
prepare. The following list identifies some of the areas that need to
be addressed:
Expand local resources (fire, emergency medical services,
law enforcement);
Increase support for the Urban Search and Rescue Program;
Improve radio communications among Task Forces and local
resources;
Provide additional chemical/biological protective
equipment and related training for fire and EMS first responders;
Support and integrate the actions of local fire and EMS
resources and FEMA teams in response to domestic terrorism and other
disasters.
Firefighters, law enforcement, and emergency medical services will
continue to be the first responders at future incidents. The toll on
our emergency personnel is tremendous, both physically and mentally. We
owe it to ourselves to be prepared for the mission to protect our
communities.
I appreciate the opportunity to provide comment and share my
experience as a firefighter search and rescue specialist during this
infamous event. I am available to answer any questions that members of
this committee may have.
______
Statement of Robert Hessinger, Logistics Chief, Ohio Task Force One
Chairman, committee Senators, distinguished guests, my name is
Robert Hessinger, I am the Logistics Chief for Ohio Task Force One and
was deployed with the Task Force to New York City September 11, 2001. I
would like to start by saying thank you on behalf of Ohio Task Force
One for allowing us to share our experiences with you. Ohio Task Force
One is the 27th of 28 FEMA US&R teams, established in spring of 1997
and based at Wright-Patterson Air Force Base (WPAFB) in Dayton, Ohio.
Since the establishment of our task force as a FEMA US&R team, our
members have been active in the FEMA system sharing our unique
relationship and knowledge of the Air Force with several teams across
the Nation, including working closely with the West Coast teams to
affirm their relationships with Air Force bases from which they
mobilize. Ohio Task Force One has continued to work hard at our
relationship with FEMA and the 27 other teams by offering our services
with instructors for FEMA courses, members on the national working
groups and the national instructors list, and, along with Wright-
Patterson Air Force Base, hosting Logistics Specialist Courses.
Ohio Task Force One's hard work was tested and proven successful on
September 11, 2001 when Ohio was one of the first three task force
groups dispatched to the New York City bombings. Ohio Task Force One
was officially activated for our first national deployment at 1100
hours on September 11, 2001 to mobilize our team to New York City
traveling by ground mobilization. The task force deployment was
multifaceted due to our member's activity within the FEMA system.
Initially, Task Force Leader (TFL)-1 Capt. James Gruenberg was
activated as a member of the Red Incident Support Team (IST) where he
holds the position of US&R Specialist as his primary role. Due to TFL-1
Gruenberg's past service with the New York City Fire Department, he was
given the role of Daytime Operations and Liaison to the Fire Department
New York (FDNY) which he held and operated with distinction. As a past
member of FDNY, TFL-1 Gruenberg had a unique perspective and
understanding of the scope of this incident on members and the
leadership of FDNY. A second Task Force Leader, TFL-3 Robert McKee, was
also activated as part of the Blue IST where TFL-3 McKee served as a
mobilization specialist based out of McGuire Air Force Based and was
the primary liaison to the Wing Commander Staff coordinating all
incoming teams. TFL-3 McKee noted that McGuire AFB Command Staff and
crews made a commendable difference in the mobilization and movement of
the Federal teams and staff. To complicate this matter, TFL-3 McKee and
myself, as Logistics Chief, were attending a meeting for the California
Governors Office of Emergency Services (CALOES) Logistics Working Group
in San Diego, California. Although this pressured Ohio Task Force One
with three of the leadership staff unavailable for initial task force
movement, it proved to strengthen our task force as a team. Since TFL-3
McKee and myself have a strong understanding and relationship with the
United States Air Force, we drove from San Diego to March Air Force
Base immediately after Ohio's deployment to aid in the coordination of
Los Angeles City CA-TF-1, Riverside CA-TF-6 and California IST members
air mobility to McGuire AFB. TFL-3 McKee and myself would personally
like to thank the FEMA staff, particularly Dave Webb, for their
professionalism and trust during configuration of an air movement
during the unique restrictions placed on aircraft mobility and traffic.
We would also like to thank Wright-Patterson Air Force Base for the
groundwork their commanders laid for a strong national relationship.
Ohio Task Force One is proud to have aided in such a strong
relationship. With two of the three Task Force Leaders activated on the
IST, Ohio Task Force One showed the depth in our organization by moving
up the Rescue Team Manager, Steve Shupert, to the Position of Task
Force Leader-2 to deploy with our remaining Task Force Leader, Mike
Muhl. During the onset of activation at Wright-Patterson Air Force
Base, base command staff did a commendable job ensuring over 90 members
of Ohio Task Force One gained access to a military post under Force
Protection Condition Delta.
Operationally, Ohio Task Force One arrived at the Jacob Javits
Center in Manhattan, New York at approximately 0600 a.m. on September
12, 2001 making it the third FEMA US&R team behind Massachusetts and
Pennsylvania. The primary mission of the task force, upon arrival, was
to establish the rear Base of Operation referred to as a BoO. The task
force also created two operational teams by splitting the members into
daytime operations and nighttime operations, running a seven to seven
12-hour operational period. At approximately noon on the 12th, Task
Force Leader Muhl became the day operation leader and proceeded to
Ground Zero. The first operation was to set up the forward BoO, which
was inside a Chase Manhattan Bank at Liberty and Southend Street in the
Liberty Street Division of the Incident Command System. After the
forward BoO was set a few missions consisting of mainly reconnaissance
and K-9 confirmation of victims.
The first full operational period for the task force came on day
shift Thursday September 13th. None of the team members were ready for
the magnitude of the destruction and size of the collapse. Three
thousand workers looked insignificant to the mass of rubble. Ohio Task
Force One was given many missions dealing with technical search of void
areas with search cameras and the team's K-9 handlers could not keep up
with the multitude of requests from command and workers alike. TFL Muhl
worked closely with the FDNY sector commander to coordinate sub-level
void searchers, technical rigging decisions and structural evaluations
by the team's structural specialists. As the operational periods
continued, Ohio Task Force One was tasked with many different missions,
unfortunately they all met with the same conclusion.
One of the missions included rigging a rope lowering system to
penetrate a small opening in a collapsed stairwell to search a
mechanical room four levels below grade. At this point, optimism within
the team ran high due to the size and structural stability of the void
spaces. The recon team also rigged another rope system to lower
searchers into a void where previously FDNY Ladder 6 personnel had
survived the collapse. Further voids around the area were found to have
inadequate anchor points to appropriately rig a lowering system. This
was the first letdown the team had suffered and found it difficult to
convey this to fellow FDNY firefighters. Continued missions to search
void spaces turned up parking levels with thigh deep, contaminated
waters and more void spaces without live finds. A mission to secure and
remove impaled steel of the World Financial Building was changed by the
task force structural specialist to securing the piece of steel
directly to the main structure due to increased risk to rescuers. This
decision proved to be the correct one and the piece remained stable.
Day operations were also tasked with reconnaissance of the surrounding
buildings. Teams climbed and searched multiple buildings, breaching
locked doors and systematically marking cleared areas for a thorough
search. A couple of searches turned up citizens either not able to
traverse the lengthy trip down the stairs or unwilling to leave their
personal possessions after being so violently violated. Local Emergency
Medical Services or National Guard was called and successful removal of
the citizens was accomplished with care and compassion. Speaking for
the task force, I can truly say our primary mission was accomplished.
As a FEMA US&R Task Force we are given the task to support the local
jurisdiction in mitigation of an overwhelming situation. The FDNY was
placed in such a situation. The FEMA US&R concept was alien to the
workers we encountered due to the loss of the majority of the special
rescue personnel within their department. As fellow firefighters we
offered special equipment, a fresh and educated set of hands, and
confidence the rescue was being accomplished to the best of our
abilities. I felt one of the most important things we offered the FDNY
firefighters on the rubble pile was our hand in battle, letting them
hoist us up to their position giving them a feeling of participation.
Most of all, letting them know we were there for them whenever and
wherever they needed us. A few members of Ohio Task Force One had
friends on FDNY, due to training courses offered by FEMA that died in
the line of duty September 11, so the operational teams would stop at
local firehouses and pay their tribute at the end of their operational
periods. This helped members cope with the large loss of life and
further bonded the respect for our brothers and sisters. On the last
operational period, Ohio Task Force One stopped by Rescue 5 FDNY and
donated equipment that would aid in the rebuilding of this
distinguished company. We hope this will somehow leave a lasting
impression of the FEMA system and the first class teams that adorn it.
Ohio Task Force One was given demobilization orders on Tuesday,
September 18 with a departure date of Thursday, September 20. The mixed
feelings of members who felt we had not finished the job and others
that felt it was time to see family and friends seemed to echo the
operational feelings of we were not doing enough and exhaustion setting
in. The citizens and leaders in Ohio made the return trip a memorable
one with police escorts, fire department apparatus lining the highways,
citizens with banners on overpasses and our families at Wright-
Patterson Air Force Base.
The magnitude of this incident was one that is unimaginable, no
matter how much you have trained and felt you were prepared. The
support Ohio Task Force One was given by the Incident Support Teams of
FEMA and the expertise and guidance of those placed in charge of this
tragedy were professional no matter what the situation, but given this
event we commend all the men and woman in those positions for an
exemplary job. Ohio Task Force One will take the valuable experience we
gained from this tragedy and prepare to respond to future deployments
and continue to provide this country with the best-trained personnel in
the world. Ohio Task Force One would like to thank FEMA, the State of
Ohio and our families for all the support given to us over the years.
We would also like to thank the Environment and Public Works Committee
for your time today and continued support protecting our Nation. May
God bless all of us.