First to Arrive: State and Local Responses to Terrorism PDF
Preview First to Arrive: State and Local Responses to Terrorism
First to Arrive The BCSIAStudies in International Security book series is edited at the Belfer Center for Science and International Affairs at Harvard University’s John F. Kennedy School of Government and published by The MIT Press. The series publishes books on contemporary issues in international security policy, as well as their conceptual and historical foundations. Topics of particular interest to the series include the spread of weapons of mass destruction, internal con- ºict, the international effects of democracy and democratization, and U.S. de- fense policy. Acomplete list of BCSIAStudies appears at the back of this volume. First to Arrive State and Local Responses to Terrorism Juliette N. Kayyem and Robyn L. Pangi, editors BCSIAStudies in International Security in cooperation with the Executive Session on Domestic Preparedness The MIT Press Cambridge, Massachusetts London, England ©2003bytheBelferCenterforScienceandInternationalAffairs JohnF.KennedySchoolofGovernment,HarvardUniversity Cambridge,Massachusetts02138 (617)495–1400 Allrightsreserved.Nopartofthisbookmaybereproduced,storedina retrievalsystem,ortransmittedinanyformorbyanymeans—electronic, electrostatic,magnetictape,mechanical,photocopying,recording,or otherwise—withoutpermissioninwritingfromTheMITPress, 5CambridgeCenter,Cambridge,MA02142. ThisbookwastypesetinPalatinobyWellingtonGraphicsandwas printedandboundintheUnitedStatesofAmerica. LibraryofCongressControlNumber:2003109630 ISBN0-262-11281-7(hc);0-262-61195-3(pbk) PrintedintheUnitedStatesofAmerica 10 9 8 7 6 5 4 3 2 1 Onthecover: WegratefullyacknowledgeJohnAxonforhiscoverimagedesign. Contents Acknowledgments vii Introduction 1 Chapter 1 The New Containment: An Alliance Against 9 Nuclear Terrorism Graham Allison and Andrei Kokoshin Chapter 2 Assessing Infrastructure Vulnerability and 21 Security Peter S. Beering Chapter 3 In Defense of the Law 39 Juliette N. Kayyem Chapter 4 Turning a Popular War into a Populist War: 47 Preparing the American Public for Terrorism Clarence Harmon Chapter 5 Telling It Like It Is: The Role of the Media in 59 Terrorism Response and Recovery Frances Edwards-Winslow Chapter 6 Is Density Dangerous? The Architects’ 77 Obligations after the Towers Fell David Dixon Chapter 7 Beyond Business Continuity: The Role of the 95 Private Sector in Preparedness Planning Juliette N. Kayyem and Patricia E. Chang vi I first to arrive Chapter 8 Inside and Outside the Loop: Deªning the 121 Population at Risk in Bioterrorism Robert F. Knouss Chapter 9 After the Attack: The Psychological 135 Consequences of Terrorism Robyn L. Pangi Chapter 10 Supporting the National Strategy for 163 Homeland Security: The Role of the National Guard Phillip Oates Chapter 11 Homeland Security and War-Fighting: Two 179 Pillars of National Guard Responsibility Paul D. Monroe, Jr. Chapter 12 The Two-Hat Syndrome: Determining 193 Response Capabilities and Mutual Aid Limitations Rebecca F. Denlinger with Kristin Gonzenbach Chapter 13 Sustaining Domestic Preparedness: Challenges 207 in a Post-9/11 World David Grannis About the Authors 221 Index 229 About the Belfer Center for Science and International Affairs 242 Acknowledgments W ork on this book began out of deliberations regarding the newly cre- ated Department of Homeland Security (DHS). As a response to the ter- roristattacksofSeptember11,2001,andthegrowingrecognitionthatthe federal government’s structure was too diffuse to be effective, the DHS was eventually proposed and, soon after, established. In the fury of activity regarding the DHS, it became clear that state and local responses to domestic preparedness planning were either ignored, or a mere afterthought. In the world of national security think- ers, that should come as no surprise as the focus tends to be on federal responses to international threats. But, by and large, domestic prepared- ness is a “ground up” response, since it is local responders who will be the ªrst to arrive. We came to regard this book, an edited volume about domestic preparedness planning on the state and local level, as a neces- sarycontributiontothevastamountofliteraturerelatedtoterrorismand homeland security. The thoughts behind this book were truly grounded in the biannual meetings of the Executive Session on Domestic Preparedness (ESDP) at the Kennedy School of Government at Harvard University. The ESDP, funded by the Department of Justice, is a joint project of two distinct re- search centers at Harvard University, two centers that rarely combine their intellectual efforts: the Belfer Center for Science and International Affairs and the Taubman Center for State and Local Government. The ESDP has brought together key leaders in domestic preparedness plan- ning, national security, and public health, since 1999 when the idea of homelandsecuritywasrarelyconsideredingovernmentorpolicycircles. The goal of the ESDP was to combine the operational insights of mem- viii I first to arrive bersoutintheªeld(policeofªcers,ªreªghters,electedofªcials,etc.)with the contributions of Harvard faculty to provide a unique forum to ad- dress the challenges of domestic preparedness. Their thoughts and con- tributions are memorialized at www.esdp.org. This book has beneªted from these continuing conversations, publications, and the Kennedy School’s efforts in this urgent arena. We are indebted to our contributing authors who provided their thoughts,andwords,forthiseffort.Weareequallyindebtedtothemem- bers of the ESDP, a list certainly too long to list here, but each, over the course of the last few years, has been an invaluable resource. In addi- tion, we would like to thank the Harvard faculty and scholars who as- sisted the ESDP and us in this project, particularly: Graham T. Allison, Alan Altshuler, Ashton Carter, Frank Hartmann, Steve Miller, Philip Heymann, Arnold Howitt, Matthew Meselson, and Jessica Stern. Ken- nedySchoolDeanJosephNyehasbeenavocalandsupportiveplayerin allourefforts.WealsowouldliketothankRichardFalkenrath,whoiniti- atedtheESDPwithArnoldHowittbeforeleavingtoserveattheOfªceof Homeland Security. Andy Mitchell and Sue Obuchowski at the Department of Justice’s Ofªce of Domestic Preparedness have been patient partners in our ef- forts.SeanLynn-JonesandKarenMotleyattheBelferCenterforScience and International Affairs have assisted tremendously in producing this book. We thank Richard Dill, a former Boston Globe editor, and Susan Lynchfortheirthoughtfuleditingandproofreadingofthisbook.Inaddi- tion, John Axon provided the powerful cover image, and John Grennan prepared the index. We also want to thank Rebecca Storo, Assistant Di- rectoroftheESDP,whohelpedwiththisbookatvariousstagesalongthe way. Whilethisbookhastakenatremendouseffort,ittrulycouldnothave been completed without the always helpful, and always willing work (both substantive, and not so substantive) of ESDP researcher Patricia Chang. She has been an invaluable resource for us. We could not thank her more. Finally,onamorepersonallevel,wewouldliketothankourrespec- tive spouses, David Barron and Corey Sassaman, who have provided calmandsuretyforus.Itisnoteasytoworkintheªeldofterrorism,and it may certainly be less easy to be married to someone who does. Our heartfelt thanks to both of them. Juliette N. Kayyem Robyn L. Pangi Cambridge, Massachusetts Introduction I tisdifªculttorememberwhatthisnationwaslikebeforeSeptember11, 2001. The date itself, now simply referred to as 9/11, represents more than the terrorist attacks on the World Trade Center and the Pentagon and the crashing of a fourth aircraft into a ªeld in Somerset, Pennsylva- nia. It has come to represent the day the United States fundamentally changed,whenmilitary-scaleviolencereturnedtoourshoresanddistant lands and different religions began to have greater implications within the nation’s borders. The amount already written about 9/11 and its implications for U.S. policyandgovernanceistoovasttomeasure.Yetmuchofitmerelycasts blameorpinpointsfailures.Incontrast,thisvolumecontainsadvicefrom astandingtaskforceofexperts,governmentofªcials,andacademicswho recognizedthegrowingterroristthreatagainsttheUnitedStateslongbe- fore September 11, 2001. Before the attacks there was steady low-key in- terest in terrorism, leading to piecemeal measures, congressional com- missions, and an occasional academic conference, but terrorism failed to capture the public’s attention or sustain high-level government interest until the unimaginable happened. Theessaysinthisbookhighlightthebestofwhathasbeenlearnedin the time since 9/11 concerning homeland security. They address the question: what are the most effective methods and means to protect the UnitedStates?Theseessaysemergedfromdiscussionsandinsightsofthe Executive Session on Domestic Preparedness (ESDP) at the John F. Ken- nedy School of Government at Harvard University. Since 1998, the Kennedy School has hosted a series of ongoing conferences, bringing to- getheradiversegroupofpractitioners,ªrstresponders,andacademicsto
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