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Responding to the September 11 Terrorist Attacks

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Responding to the September 11 Terrorist Attacks National Park Service U.S. Department of the Interior National Center for Cultural Resources National Park Service Responding to the September 11 Terrorist Attacks Janet A. McDonnell 1 2 3 4 The National Park Service: Responding to the September 11 Terrorist Attacks Library of Congress Cataloging-in-Publication Data McDonnell, Janet A., 1952- The National Park Service : responding to the September 11 terrorist attacks / by Janet A. McDonnell. p. cm. Includes bibliographical references and index. 1. United States. National Park Service. 2. September 11 Terrorist Attacks, 2001. I. Title. SB482.A4M338 2004 973.931--dc22 2004026454 Cover: U. S. Park Police patrol New York Harbor after the attacks. Inside cover, Maj. Tom Wilkins, U.S. Park Police, holds the American flag during rescue operations at Ground Zero. The National Park Service: Responding to the September 11 Terrorist Attacks Janet A. McDonnell National Park Service Department of the Interior iii Table of Contents Preface ...................................................................................................... vii Introduction ............................................................................................. x I. National Park Service’s Initial Response ........................................... 1 Main Interior Building, Tuesday, September 11, 2001 ............ 1 Continuity of Operations ......................................................... 4 Park Closures ............................................................................ 8 Support to the Department of the Interior ............................ 11 Conclusion ................................................................................ 13 II. National Capital Region .................................................................... 15 U.S. Park Police Headquarters ................................................ 15 Securing the White House, Monuments, and Memorials ..... 17 Motorcycle Unit ....................................................................... 18 Aviation Unit ............................................................................. 19 Evacuation of Cabinet Officials ............................................... 24 Traffic Management ................................................................. 25 Additional Park Police Missions ............................................. 26 Park Rangers Respond ............................................................. 26 National Mall ............................................................................ 29 Catoctin Mountain Park .......................................................... 30 Conclusion ................................................................................ 31 III. New York City ................................................................................... 33 U.S. Park Police New York field office .................................... 33 Manhattan Sites ........................................................................ 36 Statue of Liberty and Ellis Island National Monuments ...... 46 iv The National Park Service: Responding to the September 11 Terrorist Attacks Gateway National Recreation Area ......................................... 55 Conclusion ................................................................................ 58 IV. Incident Management ...................................................................... 61 Convening Incident Management Teams ............................... 61 Incident Management System ................................................. 64 Delegation of Authority ........................................................... 65 Role and Activities of the Type 1 Team .................................... 66 Type 2 Incident Management Team—Northeast Region ....... 70 Conclusion ................................................................................ 73 V. Challenges .......................................................................................... 77 Communications ...................................................................... 77 Coordination ............................................................................ 80 Funding ................................................................................... 85 VI. Aftermath ......................................................................................... 89 Impact on Parks and Visitors .................................................. 90 Shortage of Law Enforcement Personnel ............................... 95 Multi-region Coordination Group ......................................... 101 Conclusion ............................................................................................... 107 Notes ......................................................................................................... 111 Oral History Interviews ........................................................................... 123 Photo Credits ........................................................................................... 125 Index ......................................................................................................... 126 Table of Contents v vi The National Park Service: Responding to the September 11 Terrorist Attacks Preface The terrorist attacks of September 11, 2001, and their aftermath left few Americans unaffected. As the federal agency with primary respon- sibility for protecting and preserving many of the nation’s most signifi- cant cultural and historic sites, the National Park Service had a unique perspective and role in responding to this tragedy. The most profound personal impact within the Service was no doubt on those employees who either witnessed the attacks firsthand or were directly involved in the immediate response, but every national park was affected to one degree or another. Park Service historians and ethnographers quickly recognized the need to record and preserve the experiences and perspectives of those who had witnessed or responded to the attacks. They conducted more than a hundred oral history interviews with Service employees throughout the country, in parks, regional offices, and the Washington headquar- ters. These unique interviews reveal the memories and interpretation of the event and aftermath in the words of those directly affected. In addition to conducting interviews, there was also a need to document and evaluate the official response of the National Park Service. With that in mind, I began to research the following questions: How did Service managers and staff respond at the national level and in the regional and park offices? What actions did they take and why? How did the attacks and their aftermath affect the way the Service and the parks oper- ated? How did they affect park resources and the allocation of those resources? What impact did the attacks have on the way park staffs viewed their jobs and the way Americans viewed their parks? And finally, what lessons could the Service learn from this experience? What did the Service’s response say about its values and responsibilities? Simply put, my goal was to foster a deeper appreciation and understand- ing for the way the Service and its employees responded to the attacks and to create a detailed historical record of this unique and significant period in the Service’s history. This history is also designed to provide View of the Statue of Liberty overlooking New York Harbor. vii Service managers and policymakers with information they might find useful in responding to future emergencies. Writing this history presented some unique challenges. Many of the major decisions about the response operations were made in phone conversations or in meetings with little or no written record. A scarcity of written records meant a greater reliance on the oral history interviews that National Park Service historians and ethnographers conducted. This approach involved a certain amount of risk: memories can be faulty especially after experiencing such a traumatic event; oral accounts can sometimes be confusing or lack specific details. The September 11 event was truly unique in nature and scope. For the first time in our history, American commercial airplanes were used as terrorist weapons. Never before had a terrorist attack within the United States resulted in so many casualties. The resulting story is complex, involving a broad range of perspectives, activities, and locations. When dealing with such a traumatic and chaotic event, even determining an accurate sequence of events can be difficult. Memories are powerful. Witnesses were often more likely to recall vividly their sense of shock and fear, the acrid smell of burning debris, or their images of wounded victims than to recall factual details. Yet both types of information are important for the historical record. “The lived experience is more com- plex than subsequent interpretations reveal,” explains Mary Marshall Clark, the director of the Oral History Research Office at Columbia University.1 The personal stories conveyed in the interviews reflect the horror of what witnesses experienced before these stories were turned into a more acceptable narrative. This history reveals how the event strained Park Service resources, highlighted vulnerabilities in security, and brought into sharp relief the emotional and symbolic power of National Park Service sites, such as Independence Hall, the Statue of Liberty, and Manzanar. It also addresses deeply embedded cultural values. Weaving these threads together proved challenging: there were no historical
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