The Advisory Panel to Assess Domestic Response Capabilities for Terrorism Involving Weapons of Mass Destruction was established by Section 1405 of the National Defense Authorization Act for Fiscal Year 1999, Public Law 105–261 (H.R. 3616, 105th Congress, 2nd Session) (October 17, 1998). That Act directed that a federally funded research and development center provide research, analytical, and other support to the Advisory Panel during the course of its activities and deliberations. RAND has been providing that support, under contract from the Department of Defense, since the Advisory Panel’s inception. This Third Annual Report to the President and the Congress is a document of the Advisory Panel, not a RAND publication. It was prepared and edited by RAND professional staff and is being submitted for review and comment within the U.S. Government Interagency process. It is not copyrighted but does contain material from copyrighted sources. 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THIRD ANNUAL REPORT TO THE PRESIDENT AND THE CONGRESS OF THE ADVISORY PANEL TO ASSESS DOMESTIC RESPONSE CAPABILITIES FOR TERRORISM INVOLVING WEAPONS OF MASS DESTRUCTION III. FOR RAY DOWNEY 15 December 2001 PHOTO CREDITS FROM COVER PAGE 1 2 4 3 1— A New York City ambulance burns in the street near the base of the World Trade Center towers. It was one of hundreds completely destroyed in the attacks. Photo by Shannon Stapleton/Reuters 2— Arlington County Fire Department rescue team at the Pentagon. Photo by Jocelyn Augustino/FEMA News Photo 3—Firefighters, rescue workers, and military personnel unfurl the American flag in anticipation of a visit to the Pentagon crash site on September 12 by President Bush. Photo by Jocelyn Augustino/FEMA News Photo 4— Rescue workers remove a man from the World Trade Center tower in New York City shortly after the attacks on September 11, 2001. Victims of the attack – many suffering from extensive burns – were transported to hospitals in New York City within minutes after two planes slammed into the twin towers. Photo by Shannon Stapleton/Reuters THE ADVISORY PANEL TO ASSESS DOMESTIC RESPONSE CAPABILITIES FOR TERRORISM INVOLVING WEAPONS OF MASS DESTRUCTION James S. Gilmore, III Chairman L. Paul Bremer December 15, 2001 Raymond Downey To Our Readers: George Foresman William Garrison The terrorist attacks on September 11, 2001, have become a defining moment for the Ellen M. Gordon future of the United States and the rest of the civilized world. Today, we continue to mourn for the thousands of victims and their families. Yet, in our grief also lies the hope of a more James Greenleaf secure future. We have an opportunity and an obligation to help to define that future. To William Jenaway that end, I am pleased to provide the Third Annual Report of the Advisory Panel to Assess William Dallas Jones Domestic Response Capabilities for Terrorism Involving Weapons of Mass Destruction to Paul M. Maniscalco support the United States in its leadership role in combating the threat posed by terrorists. John O. Marsh, Jr. America has responded to this assault on our values and character with steadfast Kathleen O'Brien determination. In our communities, states, and at the federal level, government, the private M. Patricia Quinlisk sector, and ordinary citizens have mobilized and begun to work together on many fronts with Patrick Ralston a sense of renewed determination. Our shared goal is protecting every American and others beyond our borders from the lawlessness of terrorists. A robust coalition of international William Reno partners stands united in military, law enforcement, and economic actions designed to Joseph Samuels, Jr. prevent further attacks and to identify, arrest, and prosecute those who committed these acts Kenneth Shine and continue to threaten people around the world. Those who govern this nation have Hubert Williams displayed the best in leadership, as they have sought to protect and maintain our fundamental civil liberties and constitutional values. Collectively, we know that the underpinnings of our democracy remain strong but also make it impossible to secure our nation completely. It is the inherent risk we face in our uniquely American way of life. Accordingly, our focus Ellen Embrey remains on protecting ourselves to the extent that we can within the framework of a free and U.S. Department of open society and on ensuring our ability to respond if more attacks occur. Defense Representative Michael Wermuth Our mission is urgent and clear: We must continue to bolster our capability to thwart RAND Executive terrorists wherever and whoever they are. Today, our panel presents its Third Annual Report Project Director to the President and the Congress as our contribution to the war against terrorism. This effort builds on findings and recommendations in our First and Second Annual Reports delivered in 1999 and 2000. It reflects a national strategic perspective that encompasses the needs of all three levels of government and the private sector. It seeks to assist those who are dedicated to making our homeland more secure. We recommend: 4Empowering state and local response by ensuring the men and women on the front line of the war against terrorism inside our borders have the tools and resources needed to counter the murderous actions of terrorists; 4Enhancing health and medical capacities, both public and private, to help ensure our collective ability to identify attacks quickly and correctly, and to treat the full scope of potential casualties from all forms of terrorist attacks; Please address comments or questions to: RAND 1200 South Hayes Street, Arlington, Virginia 22202-5050 Telephone: 703-413-1100 FAX: 703-413-8111 The Federally-Funded Research and Development Center providing support to the Advisory Panel 2 4Strengthening Immigration and Border Controls to enhance our ability to restrict the movement into this country, by all modes of transportation, of potential terrorists and their weapons and to limit severely their ability to operate within our borders; 4Improving Security Against Cyber Attacks and enhancing related critical infrastructure protection to guard essential government, financial, energy, and other critical sector operations against attack; and 4Clarifying the Roles and Missions for Use of the Military for providing critical and appropriate emergency response and law enforcement related support to civilian authorities. The attacks of recent weeks have caused human and physical scars that will be with us forever. Our nation, however, remains strong and resilient. Our collective call is to continue the momentum to secure our homeland and protect our citizens. While there is more work to be done, there is no question that we will be successful. America's strength is in its people, our leaders, and our collective commitment, especially during times of crisis. We dedicate this report to our fellow panel member and good friend, Chief Ray Downey. Our loss is tempered by the extraordinary opportunity that we had in being informed and counseled by Ray during the past three years. We therefore present our recommendations with a sense of profound commitment to Ray and all the other victims, that they will not be forgotten and that their loss will not have been in vain. Sincerely, James S. Gilmore, III Governor of Virginia Chairman IN MEMORIAM On September 11, 2001, at a few minutes after 10 o’clock in the morning, Ray Downey, chief in charge of Special Operations Command, Fire Department of the City of New York, perished in the collapse of the North tower of the New York World Trade Center. Although the impending disaster was obvious following the prior collapse of the South tower, and with fearless disregard for his own personal safety, Ray stayed at his post with his people, all doing their job. Ray served as a dedicated member of the Advisory Panel during its entire three-year tenure, bringing insightful first-responders’ perspectives and consistently providing invaluable counsel based on his years of training, unequaled leadership, and exceptional experience in the field. It is with increasing humility, but with a firm sense of our special privilege and high honor, that we dedicate this report to the memory of our great colleague and good friend, Ray Downey. RAYMOND MATTHEW DOWNEY, SR. Joined the Fire Department of the City of New York as a regular firefighter in 1962. Promoted to officer rank in 1972. Named commander of several fire companies. Served as fire department Incident Commander for the 1993 World Trade Center attack. Elevated to battalion chief in 1994. Assigned as Chief of Rescue Operations in 1995. Named FDNY Deputy Chief and Chief-in-Charge, Special Operations Command in 2000. Married to Rosalie Princiotta Downey, his wife of almost 40 years. Father of five children—two are New York City firefighters—and seven grandchildren. Trained and mentored firefighters and other responders nationwide. A nationally-recognized leader, author, and lecturer on rescue, collapse operations, and terrorism emergency response. Responded to the call for help in Oklahoma City, Atlanta, and other disasters outside his home jurisdiction. The most decorated firefighter in the entire New York Fire Department—21 times for valor. Ray Downey Husband .