First to Arrive: State and Local Responses to Terrorism

251 Pages·2003·0.85 MB·English

by  Juliette N. Kayyem

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,
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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