# Presentation: 127685

## Homeland Security and Emergency Management Session No. 6Recovery 

**William L. Waugh, Jr., Professor**
**Department of Public Administration and Urban Studies**
**Andrew Young School of Policy Studies**
**Georgia State University**

## Objective 6.1 - Describe the primary, secondary, and tertiary impacts of major terrorist attacks

- As indicated in Session 1, the primary purpose of terrorism is to influence the behavior of a target group through the creation of fear or terror.  Terrorist acts may or may not involve acts of violence.  If the threat of violence is sufficiently credible, actual violence may not be necessary in order to create fear.
- Terrorist acts can have direct impacts in terms of lives lost and property destroyed.  However, the primary reason for terrorists to use or threaten violence is to accomplish political (or criminal or religious) goals and destruction may not be useful in achieving those goals.
- Campaigns of violence can have secondary and tertiary impacts in terms of influencing audiences other than the target group and in terms of causing losses of lives or property or having political repercussions beyond the intended impact.
- For example, terrorist attacks on Westerners in Egypt had a strong negative impact on tourism in Egypt and surrounding nations in the 1990s.  Reductions in tourism cost the Egyptian government needed revenue and cost the communities around the major historical sites jobs.

## Describe the primary, secondary, and tertiary impacts of major terrorist attacks

- Recovery from terrorist attacks can be identical to recovery from other kinds of disasters.  For example, the World Trade Center attacks in 2001 involved air crashes, structural fires, structural collapses, and hazardous materials spills, as well as crimes.
- Terrorist attacks might involve dams or levees, water supplies, bridges, electrical power lines or facilities, food production, or any number of other critical resources or assets and the recovery process will be very similar to the process that follows a natural or technological disaster.

## Describe the primary, secondary, and tertiary impacts of major terrorist attacks

- Planning to recover from major terrorist attacks in the U.S. has been shaped largely by the experiences following the first bombing of the World Trade Center towers in 1993, the bombing of the Murrah Federal Office Building in Oklahoma City in 1995, the attacks on the World Trade Center towers and Pentagon in 2001, and the anthrax attacks that affected postal facilities and government offices in 2001.
- Americans have suffered mass casualty terrorist attacks outside of the U.S. and there have been programs to provide medical, including psychological, assistance to the victims and to rebuild facilities. But, the host nations have been responsible for the more long-term effects of those attacks.

## Describe the primary, secondary, and tertiary impacts of major terrorist attacks

- The Homeland Security Council in the Executive Office of the President has also recommended preparation to deal with fifteen disaster scenarios, most involving terrorist attacks (see Table 1).
- The terrorism scenarios with the longest estimated recovery times are the explosion of a nuclear device and the dispersal of radiological material.  It should also be noted that major natural disasters, i.e., hurricanes and earthquakes, are also expected to take months to years for recovery.
- The estimated economic costs are highest for the explosion of a nuclear device and an attack utilizing a biological (disease) agent, with the costs running into the hundreds of billions of dollars for the nuclear device and $70 to $160 billion for the disease agent.

## Describe the primary, secondary, and tertiary impacts of major terrorist attacks

- The estimated damage to infrastructure from a nuclear device is essentially complete within 0.5 to 1.0 miles of the explosion for a 10-kiloton device.
- The worst case scenarios are the explosion of a nuclear device and the use of chemical, biological, and radiological agents, i.e., “weapons of mass destruction.”

## Homeland Security Council’s Fifteen Planning Scenarios (1-5)

- ________________________________________________________________________
**Scenario****	****	****Casualties ****	****Infrastructure ****	****Economic ****	****Recovery****	**
**	****	****	****	****Damage****	****  ****	****Impact      ****	****Timeline**
- Nuclear Detonation	Can vary widely	Total within			Hundreds of Years
-   10-Kiloton Improvised		radius of 0.5	billions of
-    Nuclear Device			to 1.0 mile	dollars
- Biological Attack	13,000 fatalities 	Minimal	  	Billions of		Months
-   Aerosol Anthrax	and injuries			dollars
- Biological Disease 	87,000 fatalities,	None		$70 to $160	Several
-   Outbreak - 	300,000 hospitalized		 billion	 	months
-   Pandemic Influenza
- Biological Attack	2500 fatalities,	None		  Millions     	Weeks
-   Plague		7000 injuries			  of dollars
- Chemical Attack	150 fatalities,	Minimal	  	$500		Weeks, but
-   Blistering Agent	70,000 hospitalized			million	 	long-term effects

## Homeland Security Council’s Fifteen Planning Scenarios (6-10)

- ____________________________________________________________________
**Scenario****	****Casualties ****	****Infrastructure ****	****Economic ****	****Recovery****	****	****	****	****Damage****	****Impact      ****	****Timeline**
- Chemical Attack	350 fatalities,	50% of 	 	Billions 		Months
-   Toxic Industrial	1,000 hospitalized	structures 	of dollars
- Chemical Attack	6,000 fatalities,	Minimal, but	$300 		3-4 months
-   Nerve Agent	350 injuries	contamination	million
-   (in a building)
- Chemical Attack	17,500 fatalities,	In immediate	 Millions 	Weeks
-   Chlorine Tank	10,000 severe 	area damage, 	 of dollars
-   Explosion	injuries, 100,000	metal
- 		Hospitalized	corrosion
- Natural Disaster 	1400 fatalities, 	150,000	 	Hundreds of 	Months to
-   Major 		100,000 		buildings	  	billions		Years
-  Earthquake 	 hospitalized 	destroyed,	of dollars
- 				1 million damaged
- Natural Disaster 	1000 fatalities,	Buildings	  	Millions of 	Months
-   Major Hurricane	5000 hospitalized	destroyed,	dollars
- 				100,000 buildings
- 				seriously damaged

## Homeland Security Council’s Fifteen Planning Scenarios (11-15)

- ____________________________________________________________________
**Scenario****	****Casualties ****	****Infrastructure ****	****Economic ****	****Recovery****	****	****	****	****Damage****	****Impact      ****	****Timeline**
- Radiological Attack	180 fatalities,	Near		Up to 	 	Months to
-   Radiological 	270 injuries,	explosion	  	billions of	 	years
-   Dispersal Devices	20,000 detectable			dollars
- 		contaminations
- Explosives Attack	100 fatalities,	Near 		Local		Weeks to
-   Improvised 	450 hospitalizations	explosion			 	months
-   Explosive Device
- Biological Attack	300 fatalities,	None		Millions of 	Weeks
-   Food 		400 hospitalizations			dollars
-   Contamination
- Biological Attack	None		None		Hundreds of 	  Months
-   Foreign Animal					millions of
-   Disease (Foot &					dollars
-   Mouth Disease)
- Cyber Attack	None directly	None	 	Millions of	  	Weeks
- 						dollars
**_______________________________________________________**

## Describe the primary, secondary, and tertiary impacts of major terrorist attacks

- The recovery processes for major terrorist attacks begin with Presidential disaster declarations and the Stafford Act’s provisions for public and individual assistance and other (see Mary Jordan, *Federal Disaster Recovery Programs*, Congressional Research Service, 2005).

## Describe the primary, secondary, and tertiary impacts of major terrorist attacks

- The psychological impact of terrorist attacks may also be different than that of natural disasters (an “act of God”) or technological disasters (a human error or mechanical failure).
- But, research indicates that people will behave in much the same way as they do for other kinds of disasters.  The response to the sarin gas attack in the Tokyo subway system was remarkably calm, for example.

## Describe the primary, secondary, and tertiary impacts of major terrorist attacks

- The collapse of the World Trade Center towers had been the most costly disaster for FEMA, the US Department of Housing and Urban Development, and the US Department of Transportation (US GAO, 2003: 19).  [NOTE:  The costs of Hurricanes Katrina and Rita have not yet been fully assessed and they are already higher than the costs of the World Trade Center disaster.].
- To provide a context for the disaster recovery effort, Table 2 indicates the funds authorized and disbursed for the initial disaster response in New York City area.  [NOTE:  The distinction between authorized and dispersed funds is because not all funds authorized by Congress are necessarily spent and, even when spent, can be stretched out over many years.]
- Search and rescue operations cost $22 million and debris removal cost $695 million.  The total federal expenditures for the World Trade Center response were $1.17 billion.

## TABLE 2

**The 9-11 Disaster:  Initial Response Assistance (as of June 30, 2003)**
**_________________________________________________________**
- 				**Total Committed       ****	****Total Disbursed**
**_________________________________________________________**
- Search and rescue operations	 $22,000,000		   $22,000,000
- Debris removal		           1,689,000,000		   695,000,000
- Emergency transportation		 299,000,000		   298,000,000
- Temporary utility repairs	              250,000,000		                   0
- Testing and cleaning		   53,000,000		     42,000,000
- Other response services		 232,000,000	                114,000,000
- 		Total	          $2,554,000,000                  $1,170,000,000
- ___________________________________________________________________
- Source: USGAO, Federal Disaster Assistance, October 2003

## TABLE 3

**Compensation for Disaster-Related Costs and Losses (as of June 30, 2003)**
- ______________________________________________________________________				**       ****	****	****	****	****	****	****Total Committed       Total Disbursed**
**____________________________________________________________**
- Assistance for state, city, and other
- 	organizations	         		$3,319,000,000	  $1,593,000,000
- Assistance to individuals and families	     807,000,000          546,000,000
- Assistance for businesses	              	     683,000,000          510,000,000
- 		Total		         	$4,809,000,000	   $2,649,000,000
- _______________________________________________________________________
- Source:  USGAO, Federal Disaster Assistance, October 2003

## Describe the primary, secondary, and tertiary impacts of major terrorist attacks

- As Table 3 shows, $2.649 billion was provided as assistance to state, city, and other organizations, to individuals and families, and to businesses.
- Assistance to governments includes funds to repair damaged infrastructure, facilities, and other public assets.
- Assistance to individuals and families includes funds for property (e.g., housing) losses and assistance to businesses includes funds for property and inventory losses.
- The disbursements in Table 3 are the same kinds of disbursements as would be made after a major natural or technological disaster and eligibility requirements were essentially the same.

## Describe the primary, secondary, and tertiary impacts of major terrorist attacks

- The data in Table 4 indicate that over $5.5 billion was committed to rebuild the transportation system in lower Manhattan, repair utilities, and support short-term capital projects.
- Only $54 million of the committed $5 billion was disbursed as of June 2003 for the rebuilding of the transit system.
- The delays in spending funds to rebuild the transit system have largely been due to the need to evaluate transit needs.

## TABLE 4

**Infrastructure Restoration and Improvement (as of June 30, 2003)**
- _________________________________________________________________
- 				**Total Committed       ****	****Total Disbursed**
- _________________________________________________________________
- Rebuilding and improving lower
- Manhattan transportation system   $5,006,000,000             $54,000,000
- Permanent utility infrastructure           500,000,000	    0
-  repairs
- Short-term capital projects                   68,000,000	    0
- 	             	Total	     $5,574,000,000	    $54,000,000
- _________________________________________________________________
- Source:  USGAO, Federal Disaster Assistance, October 2003

## Describe the primary, secondary, and tertiary impacts of major terrorist attacks

- Table 5 indicates the authorization of $5.5 billion in funds and tax benefits for economic revitalization.  By June 2003, $173 million in funds had been disbursed.
- The impact of the tax benefits is more difficult to measure in part because the impact is more long-term.  Tax benefits are expenditures in the sense that the government loses revenue.
- Uninsured and insured losses from the World Trade Center disaster were also in the billions of dollars.
- Debris removal lasted nine months and approximately 18,000 businesses were directly affected.   Many businesses in lower Manhattan failed.
- The total amount of money committed to the World Trade Center disaster recovery through FEMA, the US Dept of Housing and Urban Development, and the US DOT was over $18 billion.
- The total does not include loans and grants provided by the Small Business Administration and disaster assistance programs (USGAO, 2003:  24) nor does it include funds provided by nongovernmental organizations and private firms.

## TABLE 5

**Economic Revitalization Efforts (as of June 30, 2003)**
**________________________________________________________**
- 				**       ****Total Committed       Total Disbursed**
- Tax benefits – Liberty Zone 	      $5,029,000,000		a
- Job creation and retention grants        320,000,000	    130,000,000
- Small firm attraction and
- Retention grants                                 155,000,000	      31,000,000
- Other planning efforts			40,000,000	      12,000,000
- 	Total		                   $5,544,000,000	   $173,000,000
- _________________________________________________________________
- Source:  USGAO, Federal Disaster Assistance, October 2003.  “a” = tax benefits 	not disbursed as grants.

## Describe the primary, secondary, and tertiary impacts of major terrorist attacks

- Table 5 lists programs designed to redevelop the area in and around “Ground Zero” in lower Manhattan.  The recovery process has evolved into a development process as new businesses are recruited, jobs are created, and new infrastructure is added.
- Memorializing the victims, including the emergency responders, killed in the attacks has become a central theme in the redevelopment and the families of the victims have been very vocal about the need to make the memorial a prominent feature of the new development.
- Large scale disasters, including terrorism caused disasters, encourage communities to redevelop disaster areas rather than simply assist in the rebuilding of the areas.  Recovery becomes economic development or redevelopment

## Describe the primary, secondary, and tertiary impacts of major terrorist attacks

- The Hurricane Katrina disaster is forcing a reexamination of policies and programs to deal with large scale terrorist attacks because the disaster demonstrated the difficulty in dealing with major displacements of residents, loss of housing, damage to infrastructure, interruption of economic activity, and social-psychological impact on victims (Waugh and Smith, 2006).
- As a result of the Katrina experience, officials in West Virginia have purchased sites to use for evacuees in the event of a major disaster in that state and officials in Arizona are identifying locations that may be used to relocate evacuees from other states, i.e., California, in the event of a major earthquake or another kind of disaster.

## Describe the primary, secondary, and tertiary impacts of major terrorist attacks

- Redevelopment of areas damaged by disasters like the 9-11 attacks and Katrina have become controversial because of the displacement of residents, as well as by the memorialization of victims.
- Disasters provide opportunity to relocate homes and businesses from hazardous areas to less vulnerable areas but also an opportunity to develop new businesses and new public facilities.  Redevelopment has been a contentious political issue around the World Trade Center site and (Mollenkopf, 2005).
- In Mississippi, the state recovery plan includes moving homes and businesses from areas along the coastline and replacing them with golf courses, resorts, boat harbors, and other tourist attractions (Waugh and Smith, 2006).
- The recovery/redevelopment process may be more politically contentious than the disaster response itself.

## Describe the primary, secondary, and tertiary impacts of major terrorist attacks

- Redevelopment decisions following natural disasters have lead to electoral defeats by those responsible, particularly when residents do not feel that they have been able to participate fully in decision making (see, e.g., Kweit and Kweit, 2002).
- Disaster recovery is a social, political, and economic process.  With large disasters, whether they be terrorist attacks or natural disasters or technological disasters, recovery can become a very long process.  It has taken years to determine how to redevelop the World Trade Center site and the redevelopment process will continue for years.

## Discussion Questions

**1.  In what ways might natural and unnatural (terrorism-related) disasters be similar?  **
**2.  In what ways might natural and unnatural (terrorism-related) disasters be different?**

## Objective 6.2- Describe the major challenges for economic & business recovery following a major terrorist attack

- The research on long-term economic recovery following a major disaster is mixed.
- Some studies indicate that there can be positive economic consequences, meaning that communities will be better off after a disaster) and other studies indicate there are few effects beyond the immediate post-impact and short-term recovery periods (Webb, Tierney and Dahlhamer, 2002).
- In terms of terrorist attacks, cities are resilient and do recover. The factors that encourage the development of cities also make them economically resilient (Harrigan and Martin, 2002).
- Terrorism has costs, including inhibiting transportation due to disruption and delays, increasing spending on security, increasing insurance premiums, and causing emotional trauma (Harrigan and Martin, 2002).
- However, people remain in cities because of the economic attraction – jobs, markets, etc. (Harrigan and Martin, 2002).

## Describe the major challenges for economic & business recovery following a major terrorist attack

- A recent study of businesses in Santa Cruz County, California, eight years after the Loma Prieta earthquake, and businesses located in South Dade County, Florida, six years after Hurricane Andrew found that “whether measured in terms of number of employees, clients, business profits, or overall financial condition, most businesses did not experience long-term declines” (Webb, Tierney and Dahlhamer, 2002).
- The longer that businesses are closed the less likely they are to survive.
- Businesses with a broader market, such as a regional or international market, tend to have a better long-term recovery outcome.  Regional or national chain stores are more likely to survive than small “mom and pop” stores.

## Describe the major challenges for economic & business recovery following a major terrorist attack

- In terms of long-term business recovery, the survival of smaller businesses depends upon how long they are closed following a disaster, whether they have adequate insurance coverage to replace facilities and equipment and inventory, the nature of the business, and how well they adapt to changing circumstances.
- In New York City following the World Trade Center attacks, hundreds of businesses in and around “Ground Zero” were destroyed or severely damaged.
- Many businesses were closed for months as the clean up progressed.  With residents evacuated and no pedestrian traffic, business would have been very poor in any case.

## Describe the major challenges for economic & business recovery following a major terrorist attack

- Large businesses tended to reevaluate their need to be located in New York City and some chose to move outside the city to New Jersey or Connecticut or to other parts of the country, or simply to work in temporary offices until they could return to their offices in lower Manhattan (see Chernick, 2005).
- Across the U.S., company officials discussed the vulnerabilities and exposure of offices in downtown high-rise buildings.  Suburban locations and less conspicuous facilities were thought to be less likely to attract terrorist attacks.
- Job loss among low-income, low-skill workers leads to increases in transfer payments, from Medicaid to TANF to Food Stamps.
- Low-income workers had fewer resources with which to survive months of unemployment or underemployment.  Many had to leave the city or move into less expensive housing.

## Describe the major challenges for economic & business recovery following a major terrorist attack

- New York City was plunged into a “deep fiscal crisis” by the attacks.  City tax revenues were greatly reduced and expenditures were greatly increased while individual tax burdens increased.  Cuts had to be made in basic services to compensate (Chernick, 2005:  315-316).
- 	The fiscal recovery has been slow given the sluggish U.S. economy since 2001.
- The physical damage from the 9-11 attacks was localized in New York City and Fairfax County, VA, where the Pentagon is located.  There are fundamental questions concerning economic recovery from a more widespread terrorist disaster.  If whole cities were destroyed and millions of residents were displaced for extended periods of time, recovery would take on new dimensions.

## Describe the major challenges for economic & business recovery following a major terrorist attack

- The impact of the 9-11 attacks on business in New York City was profound.  Seventy-eight percent of the people killed in the World Trade Center, excluding the emergency responders, were employed in finance, insurance, and real estate (Dolfman and Wasser, 2004). The “export sector” was hardest hit with job losses.
- Clearly, many small businesses and not-for-profit organizations do not recover from major disasters.  Some reopen and struggle for months before they fail.  Some cannot compete with new businesses and thus fail (Alesch, Holly, Mittler, and Nagy, 2001).
- Insurance coverage is an important factor in recovery.  Businesses tend to be undervalued to reduce tax burdens and tend to be underinsured to reduce costs.
- Older owners may simply retire rather than try to rebuild their businesses.
- Retail businesses tend to fare poorly in the aftermath of disaster because they often lose their market share and cannot adapt to new markets.

## Describe the major challenges for economic & business recovery following a major terrorist attack

- Disaster also provides opportunity for economic redevelopment, because large tracts of land are cleared, residents are displaced, property is available for sale because of foreclosures, and governments may wish to use buyouts to move homes and businesses out of hazardous areas.
- For example, the Katrina disaster has cleared large tracts of land in New Orleans that can be used for other purposes if destroyed neighborhoods are not rebuilt.

## Describe the major challenges for economic & business recovery following a major terrorist attack

- Some of the redevelopment recommendations for the City of New Orleans include building:
- an elevated light rail system to connect the city and the airport and to connect business and education centers and neighborhoods,
- new parks and undeveloped marshlands,
- new community centers in renovated school buildings,
- elevated residences in low-lying areas,
- more residential housing above businesses,
- a new medical research park to replace the damaged hospitals (Carr and Meitrodt, 2005), and
- new “education villages,” linking public schools and community colleges with their neighborhoods.

## Describe the major challenges for economic & business recovery following a major terrorist attack

- A new transit system could also be used for evacuation when the next major hurricane hits the city.
- A smaller city will also need fewer police, firefighters, and other personnel.
- Plans have been proposed to facilitate the cleaning and clearing of damaged neighborhoods so that they can be sold to developers.  Whole towns might be moved to higher ground (Nossiter, 2006a).
- FEMA has also hired scientists and other experts to help preserve cemeteries and other historic sites in New Orleans that were damaged by the storm and flood or might be damaged by the redevelopment to assure that the character of the city is preserved (Schwartz, 2005).
- Assuring that the city’s music, food, and diversity are preserved, as well as its famous Mardi Gras celebration, is essential to redevelopment.  Evacuees are more likely to return if the city’s unique culture is intact.

## Describe the major challenges for economic & business recovery following a major terrorist attack

- The plans for recovery and redevelopment raise a number of questions concerning the rights of property owners, the need to move residents out of hazardous areas, and the need to address short- and long-term recovery issues as well as equity issues because of the impact of decisions on the poor and the elderly.
- The New Orleans recovery plan has great appeal for those wary of state and federal intentions and may offer a middle ground between those who wish to see neighborhoods and communities rebuilt and their character preserved and those who wish to mitigate the hazard of flooding and, at the same time, redevelop devastated areas.  The fear of residents is that the unique culture of the city will be lost.

## Discussion Questions

**How do disasters provide opportunities as well as challenges for communities?**
**How might your (the students’) community change if all or most of the downtown area was destroyed?  Would businesses rebuild?  Would residents return?  Would the community implement changes like those proposed in New York City (e.g., the rail line to the airport) and New Orleans (e.g., a new transit system, educational parks, etc.)?**

## Objective 6.3- Describe the process of social recovery following a major terrorist attack, including the issue of victim compensation

- The 9-11 attacks had an international impact in the sense that people in many nations felt vulnerable and the events certainly had a broad national impact in the U.S.  However, there were serious and direct impacts on the residents of New York City and the surrounding metropolitan area.
- Since 2001, it is increasingly being recognized that there has been a long-term impact upon the health of those who lived and worked near the World Trade Center Towers and those who responded to the disaster.

## Describe the process of social recovery following a major terrorist attack, including the issue of victim compensation

- Ground Zero was a very dangerous worksite, according to Occupational Health and Safety Officials (Lyman, 2003).  Dust, debris, fire, structural collapses, jagged metal, and other hazards caused serious injuries among the responders.
- The presence of “trade center cough” among the residents and responders was noted within days of the attacks.  Dust, including toxic materials and gases, permeated everything at and near Ground Zero.  It was breathed by all who worked in the area, including the rescue dogs used to search for survivors in the rubble and damaged buildings.
- Respirators were provided to many of the responders, but many did not wear them despite warnings to do so.  Because of the heat, many chose to remove their respirators.
- A decade after the attacks, increasing numbers of cases of respiratory ailments, from emphysema to black lung disease, are encouraging some people to urge the appointment of an official to assess the long-term effects of 9-11 on residents and responders.
- New York City’s Department of Health and Mental Hygiene is tracking 71,000 people directly affected by the World Trade Center collapses, but cannot yet draw a direct connection between respiratory problems and the collapses.

## Describe the process of social recovery following a major terrorist attack, including the issue of victim compensation

- Social recovery was especially slow in those communities adjacent to the World Trade Center site, in those communities in which many of the first responders lived, and among those who worked in and around lower Manhattan.
- In *Wounded City* (2005), the authors describe the impact of the World Trade Center attacks on the close in neighborhoods of Battery Park City and Tribeca, the community of Belle Harbor where many first responders lived, and the Islamic community in Jersey City across the river from Manhattan.
- Battery Park City and much of Tribeca were evacuated when the towers collapsed.  Access to the neighborhoods was cut off after the evacuations and then restricted as residents slowly returned.
- Security and cleanup at Ground Zero blocked streets in lower Manhattan.  Subway and bus access was reduced.
- Businesses, particularly restaurants, close to the disaster area no longer had the foot traffic that they had depended upon prior to the attacks.  Many businesses were closed during the months of search and rescue and debris removal.  Many never reopened.

## Describe the process of social recovery following a major terrorist attack, including the issue of victim compensation

- Belle Harbor and other communities on the Rockaway Peninsula where many NYC emergency responders lived, the losses in the World Trade Center towers had a traumatic impact.  Many lost family members and close friends.
- In the Moslem community in Jersey City, residents stayed home because of the hostility toward anyone who even appeared to be of the Islamic faith.
- Airline employees had suffered through layoffs prior to 9-11 and thousands more lost their jobs following the attacks.  As many as 140,000 airline employees lost their jobs nationally and airline workers in New York were particularly vulnerable because of the reductions in passenger and cargo traffic through the city’s airports.
- Employment in Chinatown was also greatly reduced as restaurants closed.  Job loss within the garment industry had already made it difficult for ethnic Chinese families to live in the area and the loss of restaurant jobs exacerbated the problem

## Describe the process of social recovery following a major terrorist attack, including the issue of victim compensation

- Belle Harbor and other communities on the Rockaway Peninsula where many NYC emergency responders lived, the losses in the World Trade Center towers had a traumatic impact.  Many lost family members and close friends.
- In the Moslem community in Jersey City, residents stayed home because of the hostility toward anyone who even appeared to be of the Islamic faith.
- Airline employees had suffered through layoffs prior to 9-11 and thousands more lost their jobs following the attacks.  As many as 140,000 airline employees lost their jobs nationally and airline workers in New York were particularly vulnerable because of the reductions in passenger and cargo traffic through the city’s airports.
- Employment in Chinatown was also greatly reduced as restaurants closed.  Job loss within the garment industry had already made it difficult for ethnic Chinese families to live in the area and the loss of restaurant jobs exacerbated the problem.

## Describe the process of social recovery following a major terrorist attack, including the issue of victim compensation

- Taxi drivers, many of whom are Moslem, were insulted and harassed.  Leased vehicles became liabilities as streets were closed and city life slowed down.
- Artists, too, found galleries closed and businesses unwilling to commission art.  Many were forced to leave the city because they could no longer afford housing.
- Tens of thousands sought psychological counseling to help with stress.  Almost a half million people were expected to experience post-traumatic stress disorder (PTSD) and 3 million more would were expected to suffer depression, anxiety, and other effects.
- The New York State of Office of Mental Health created Project Liberty to address the needs of residents.
- Traders in the financial firms close to the World Trade Center found their businesses closed by the disaster.  Firms had to locate their employees and find alternative means of operating. Some traders worked in makeshift facilities in New Jersey, some worked via Internet, and others stayed connected by telephone.

## Describe the process of social recovery following a major terrorist attack, including the issue of victim compensation

- For the firms within the World Trade Center towers that lost employees, recovery involved strategies for leadership succession, business continuity, and decentralization.  Whole staffs had to be replaced, facilities found and equipped, and data retrieved.
- For the communities that lost large numbers of residents, churches, synagogues, and mosques provided spiritual and social support.  Charitable organizations provided financial support.
- For some of the occupational groups that suffered in the aftermath of the attacks, economic assistance was provided by government agencies, unions, trade organizations, and charitable organizations.  But, some industries, like the airline industry, have not recovered over four years after the attacks.

## Victim Compensation

- Over $38.1 billion has been paid to the victims and families of victims killed or injured on 9-11 (Rand, 2005).  [Note:  The victims include those in the World Trade Center towers and surrounding areas, the Pentagon, and in Pennsylvania where the fourth airliner crashed.]
- Ninety percent of the victim compensation has been paid by insurance companies and the federal government.
- The payments from insurance companies are expected to be $19.6 billion or higher, roughly one-half of the total victim compensation.
- The payments from government sources are expected to be almost $15.8 billion – 42 percent of the total victim compensation.
- The payments from charitable sources are expected to be around 7 percent of the total victim compensation.
- The federal government limited the liability of the airlines, airports, and some governmental organizations.
- The Victim Compensation Fund was created to compensate families of victims (see Figure 1 below).

## Victim Compensation

- The average compensation paid to the first families that applied was $1.36 million (Time, 2002).
- The estimated value of a 25-year old man with one child, who made $50,000 a year, was $2,235,997 – minus insurance payments and other benefits (Time.com, 2002).
- Businesses near the World Trade Center have received $23.3 billion in compensation for disrupted operations, property damage, and incentives.  Approximately 75 percent of the compensation has come from insurance companies (Rand, 2005).
- Victims (or their families) killed or seriously injured in the attacks have received approximately $1.3 million each.  Most of the compensation has come from the Victim Compensation Fund and the rest from insurance companies, charitable organizations, and employers.  Payments from the Victim Compensation Fund were based on estimated

## Victim Compensation

- Displaced residents, those left unemployed by the disaster, and those who suffered emotional trauma or were exposed to hazards such as asbestos dust have been paid approximately $3.5 billion (Rand, 2005).
- Emergency responders killed or seriously injured in the attacks have received $1.9 billion in compensation.  460 emergency responders were killed or seriously injured (Rand, 2005).
- In order to receive compensation from the Victims Compensation Fund, recipients had to agree not to sue those who might be responsible for the deaths or injuries.

## Victim Compensation Fund of 2001

|  |
| --- |

|  |  |
| --- | --- |

| Victim Compensation Fund of 2001 |  |
| --- | --- |
| Eligibility: | Anyone that was present (and suffered physical harm or death) at the World Trade Center, the Pentagon, or the site of the aircraft crash at Shanksville, Pennsylvania at the time, or in the immediate aftermath, of the terrorist-related aircraft crashes of September 11, 2001. 
Any personal representatives of the victims who were members of the flight crew or passengers on American Airlines flight 11 or 77 or United Airlines flight 93 or 175 on September 11, 2001 (except anyone identified by the Attorney General to have been a participant or conspirator in the attacks, or a representative of the perpetrator.)  |
| Benefits: | COMPENSATION FOR PERSONAL INJURY OR DEATH, but does not provide compensation for losses to physical property. 
There is no limit on the amount of compensation available to each claimant and there is no limit to the financial resources available to the fund.  |
| Limitations: | The amount of compensation will be reduced by any duplication of benefits that the claimant has received or is entitled to receive as a result of the September 11th terrorist attacks. 
No more than one claim may be submitted to the Fund by an individual or on behalf of a deceased individual. 
Fund claimants give up their rights to file a lawsuit (or to be a party to an action) in any Federal or State court against those responsible for victim’s injury or death.  |
| Deadline: | December 31, 2003
A determination of each applicant's eligibility and compensation will be made within 120 days. Compensation will be paid within 20 days of the determination.  |
|  | Source:  FEMA Region I website <http://www.fema.gov/regions/i/resources/victim.shtm>  |

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## Discussion Questions

**The Victim Compensation Fund based payments on estimated future earnings, but capped the payments at $231,000.   Are there problems valuing some lives more than others?**
**How should the government respond to job losses, including business closings, caused by terrorist attacks?  Should they respond by offering tax breaks, loans, and other financial assistance to firms to keep them in business (as they did for the airlines after 9/11)?**

## Objective 6.4 - Describe the nongovernmental resources available to aid in recovery following a major terrorist attack

- Disaster responses following terrorist attacks have included a mix of responders very similar to that for a natural disaster, but generally have involved law enforcement and military personnel in lead, rather than support, roles.
- The recovery efforts, too, have necessarily involved large numbers of governmental and nongovernmental agencies, as well as organized and spontaneous volunteers (Waugh, 2003b).
- Although authorities dealing with terrorist incidences may be reluctant to use nongovernmental resources, particularly volunteers, they may be essential in very large events and there may not be a choice in terms of their participation in response and recovery efforts.

## Describe the nongovernmental resources available to aid in recovery following a major terrorist attack

- The response to the Oklahoma City bombing involved dozens of organizations, from the American Red Cross to the Oklahoma Restaurant Association, and hundreds of individual volunteers (City of Oklahoma City, 1996).
- The response to the World Trade Center attack drew hundreds of organizations and many thousands of volunteers (see, e.g., Lowe and Fothergill, 2003; Sutton, 2003; and McEntire, Robinson, and Weber, 2003).
- Catering firms and disaster relief organizations fed emergency response and law enforcement personnel, including the thousands of volunteers who supported them.
- Private firms provided material support ranging from equipment for search and rescue to clean socks and underwear for emergency responders.

## Describe the nongovernmental resources available to aid in recovery following a major terrorist attack

- Representatives from the American Society for the Prevention of Cruelty to Animals, Pet Rescue, and other animal rescue organizations located and evacuated pets left in apartments by owners who had evacuated.
- Relief organizations cleaned apartments and businesses covered with dust and debris from the collapsed towers.
- Volunteer counselors provided psychological counseling for emergency responders, law enforcement personnel, and victims.
- Effective utilization of nongovernmental resources is a problem following terrorist attacks because of the lead roles of agencies unfamiliar with the networks that respond to large natural disasters and unused to communicating and collaborating closely with nongovernmental actors (Waugh, 2004a).

## Describe the nongovernmental resources available to aid in recovery following a major terrorist attack

- In response to dislocations due to Hurricane Katrina, FEMA awarded grants to the United Methodist Committee on Relief (UMCOR) and the National Voluntary Organizations Active in Disaster (NVOAD) to provide long-term recovery assistance to victims (FEMA, 2005).
- The funds included monies donated by foreign governments to the Katrina relief effort.
- The funding created a national network of case managers to address unmet victim needs, including long-term housing and social services.
- Voluntary and nonprofit organizations traditionally are involved in long-term recovery and address the needs of victims that are not addressed by government programs.  Victims with unmet needs are referred by government offices and other nongovernmental organizations.

## Discussion Questions	

**1.  Why should local resources be used for the disaster response and recovery operations?**
**2.  Can we rely upon nongovernmental and private resources in major disasters like 9/11 and Katrina?**

## Objective 6.5 - Describe the process of psychological recovery following a major terrorist attack

- Since 9-11, assumptions about the psychological impact of disasters and how to respond to the needs of victims have changed radically.
- Mental health officials have had to develop guidelines for addressing the needs of the victims of large-scale disasters, including those who experience the disasters from afar.
- There is increasing evidence that Critical Incident Stress Management (CISD) is ineffective in many cases.
- There is strong evidence that Post-Traumatic Stress Disorder is more common than previously assumed and should be addressed.

## Describe the process of psychological recovery following a major terrorist attack

- The symptoms of PTSD include
- 1. reliving the events with flashbacks, nightmares, and physical reactions;
- 2. avoidance behavior such as feeling detached and removing oneself from activities, particularly if they are related to the traumatic experience;
- 3. increased arousal such as difficulty sleeping, extreme alertness, and inability to concentrate; and
- 4. other maladies such as panic attacks, drug abuse, and feelings of isolation (CDC, 2006).

## Describe the process of psychological recovery following a major terrorist attack

- The National Mental Health Information Center provides guidelines for PTSD and related problems (see _[www.mentalhealth.smhsa.gov](http://www.mentalhealth.smhsa.gov/)__[/](http://www.mentalhealth.smhsa.gov/)_) and the Centers for Disease Control and Prevention provides guidelines for mental health for disaster responders and a list of disaster mental health resources (_[www.bt.cdc.gov/mentalhealth](http://www.bt.cdc.gov/mentalhealth/)__[/](http://www.bt.cdc.gov/mentalhealth/)_) (SMHSA, 2006; CDC, 2006).
- Thousands of volunteer counselors, as well as city, state, and federal counselors, provided mental health services to victims, emergency responders, law enforcement personnel, and other residents of the city following the World Trade Center attacks.

## Describe the process of psychological recovery following a major terrorist attack

- One of the controversies following the 9-11 attacks was the decision not to implement the provisions of the Aviation Disaster Family Assistance Act of 1996.
- The explosion and crash of TWA Flight 800 off Long Island in 1996 that killed all onboard the aircraft was initially assumed to be the result of a terrorist bomb.
- Normally, the National Transportation Safety Board would have investigated the crash and dealt with the victims families. But, because the FBI is the lead agency for terrorist incidences, they took responsibility for the crash site and for dealing with the victims.
- The FBI acted to preserve evidence, including evidence associated with the victims’ remains, and showed little sensitivity to the grieving families.
- The very slow process of identifying and releasing remains and poor communication with families, airline officials, and local public officials caused a public outcry.
-  As a result, the Aviation Disaster Family Assistance Act was passed to assure that the needs of victims and their families were met in aviation disasters.

## Describe the process of psychological recovery following a major terrorist attack

- The Act specifies roles for the airlines, the American Red Cross, and other agencies and the airline industry has developed procedures to deal with such disasters.  The American Red Cross, for example, is responsible for providing counseling services.
- The procedures mandated in the act were not followed after the 9-11 attacks and the victims on the four aircraft were treated much the same as the victims in and around the World Trade Center and Pentagon.  The airlines, however, did provide assistance to the families of those killed on the aircraft.
- The poor support for the victims’ families has angered some families and complicated the usual practice of memorializing the victims.

## Describe the process of psychological recovery following a major terrorist attack

- Some psychologists say that encouraging people to seek counseling after a traumatic event, such as a disaster, may make them view themselves as victims even it they are not affected.
- If individuals seek counseling because they are experiencing problems, such as those common to PTSD, assistance should be provided.  But, it is recommended that large programs not be created if there is little demand.

## Discussion Questions

**1.  Should the federal government be responsible for providing or funding psychological counseling to victims, victims families, emergency responders, and those less directly affected by disasters like 9/11?  **
**2.  Should the victims on the four aircraft involved in the 9/11 attacks be memorialized separately and should their families have been assisted by the **

## Objective 6.6 - Describe how local services are restored and maintained following a major terrorist attack

- When a major terrorist attack occurs, such as the World Trade Center attacks, critical infrastructure may be seriously damaged, essential services may be disrupted, and emergency services personnel and organizations may be dealing with the emergency and unable to maintain normal services.
- During the World Trade Center response, fire and emergency medical services companies from surrounding jurisdictions moved into New York City to provide regular service to parts of the city not directly affected by the attack.  They responded to 911 calls to free up FDNY personnel to work at “Ground Zero.”
- Just as a plan is necessary to activate and mobilize emergency responders and support personnel during an emergency, a plan is necessary to restore essential services.  Police, fire, and emergency medical services, including 911 call services, should be the first to be restored to assure public health and safety.  The restoration of power and water is essential to public health.

## Describe how local services are restored and maintained following a major terrorist attack

- The maintenance of medical and other essential life-saving services in a major terrorism-related disaster is a major question.
- For example, there are questions concerning whether emergency responders, including medical personnel, will report for duty in a major disaster, such as a terrorist attack or pandemic.
- Some New Orleans police and firefighters did not report for duty during the Katrina disaster because their families and, in some cases, they themselves were victims.
- In a bioterrorist attack, medical personnel may fear that they will expose their own families to the biological agent (virus or bacteria) and, as a consequence, not report for duty when a disaster occurs.
- Emergency personnel who are single-parents or who have spouses who are unavailable, perhaps responding to the disaster themselves, may have to take care of their own families rather than report for duty.

## Describe how local services are restored and maintained following a major terrorist attack

- Medical facilities, fire stations, police stations, 9-1-1 call centers, and other essential facilities may be destroyed, contaminated, or otherwise unavailable during and after a major terrorism-related disaster.  Restoration of those facilities or the creation of alternative facilities may take weeks or months, as the Katrina disaster has shown.
- Mobile command centers, medical facilities, and other essential facilities may have to be brought in when the destruction is widespread and assistance cannot be obtained from neighboring communities.
- More simply, it is common for communities to offer their EOCs and other facilities to support operations in neighboring communities.  Just as firefighters and equipment were dispatched to New York City by officials in surrounding cities during the 9/11 response, personnel and equipment can be shared.

## EMAC – the Emergency Management Assistance Compact

- The Emergency Management Assistance Compact facilitates the sharing of emergency personnel and equipment between and among states.  Emergency management personnel, firefighters, police officers, and others were deployed to Louisiana, Mississippi, Texas, Alabama, and Florida during the 2005 hurricane disasters.
**EMAC Background:  **
- Following Hurricane Andrew, Florida Governor Lawton Chiles proposed the creation of a mutual aid compact.
- The 19 members of the Southern Governors’ Association (SGA) had their state legislatures approve the Southern Regional Emergency Management Assistance Compact (SREMAC).
- The compact was signed by the SGA governors in August 1993.
- The National Governors’ Association and the Federal Emergency Management Agency supported a national compact and the U.S. Congress enacted the Emergency Management Assistance Compact (EMAC) as Public Law 104-321 in 1996.
- The compact facilitates mutual assistance by addressing the problem of liability and by providing procedures for reimbursement to for those providing assistance (www.emacweb.org).

## Describe how local services are restored and maintained following a major terrorist attack

- The transition from disaster operations to normal operations presents several problems:
- Personnel in the affected community may well have been working long shifts with little rest and, therefore, may need rest before resuming normal operations.
- Even with outside assistance in manning EOCs and conducting search and rescue and other disaster operations, the personnel usually have been working far longer than eight hour work shifts and will need to sleep, wash clothes, repair their own homes, and take care of their own families.
- A transition period should include ample time to rest and to adjust psychologically from the stress of disaster operations to less stressful normal operations.
- Equipment may need to be replaced or repaired before it can be used in normal operations, as well.  Equipment may have been brought in by emergency responders from other jurisdictions and will be unavailable when they leave.
- “Normal” operations may be different after the disaster.  For example, there may be greater vulnerability to structural fires when buildings and power lines are damaged.  There may also be greater demand for emergency medical services as people clean up their homes and businesses.  Stress levels may rise as residents come to realize the tasks ahead and stress related illnesses may increase.

## Discussion Questions

**1.  In what cases may mutual assistance agreements with neighboring jurisdictions not be activated?  **
**2.  Why might emergency management and other emergency personnel not report for duty in a major disaster?  **
**3.  What issues arise when communities transition from disaster operations to normal, day to day, operations?**

## Objective 6.7 - Describe how communities can deal with “dirty” sites that may be left by a major terrorist attack, including determining how “clean” they need to be before residents can return 

- Attacks involving radiological, biological, or chemical material or a nuclear device may contaminate large areas.  Such attacks might contaminate whole towns, large sections of cities, large areas of agricultural land, historic or cultural sites, or any number of other physical assets.
- Cleaning up after a nuclear explosion or an attack involving radiological material, biological agents, or toxic chemicals might take months or even years.
- One of the worst case scenarios is for terrorists to detonate a “dirty bomb” or radiological dispersion device (RDD) – a conventional bomb used to disperse radiological or chemical material.

## Describe how communities can deal with “dirty” sites that may be left by a major terrorist attack, including determining how “clean” they need to be before residents can return

- Dispersed in an urban environment, toxic material would be difficult to remove.  While some of the material would be carried out of the area by wind and rain and some may be transported by people, on purpose or not, a considerable amount of material might have to be cleaned up before the area would be habitable again.
- The amount of contamination would be related to the size of the explosive, the type of material, weather conditions (wind, rain, etc.), and topography (buildings, hills, etc.).
- People in the immediate area of the explosion should move away from the blast area and find shelter.  People should take shelter in buildings with windows shut, doors closed, and air-conditioning shut down.  It is also suggested that they shower, discard clothing in plastic bags, and listen for information concerning testing for exposure and, if necessary, treatment (NRC, 2006).

## Describe how communities can deal with “dirty” sites that may be left by a major terrorist attack, including determining how “clean” they need to be before residents can return

- There are practical issues related to warning systems that typically signal the need to evacuate and seldom signal the need to shelter-in-place.  Clearly, sheltering-in-place is critical in incidents involving “dirty bombs” and evacuation may result in severe exposure to radiation.
- Community warning systems, building warning systems, training programs, and other preparedness efforts need to assure that alert and warning systems include sheltering-in-place and that people understand what to do when they hear that warning.
- There is less consensus concerning what to do in the aftermath of a “dirty bomb” explosion and the Department of Homeland Security has been developing guidelines for resettlement of contaminated areas.
- As with other kinds of disaster, the speedy restoration of services, economic activity, and social interaction can reduce the impact of the disaster and be beneficial to public health and safety.

## Describe how communities can deal with “dirty” sites that may be left by a major terrorist attack, including determining how “clean” they need to be before residents can return

**Just how much contamination would be safe for those returning to the area is being debated?**
- Some officials think that applying EPA standards for radiation exposure would be too restrictive, too difficult to achieve quickly.  They would use benchmarks used by other nations that are much higher (Wald, 2006).
- For example, the International Commission on Radiation Protection says that radiation doses may be as high as 10 rem per year before evacuation or decontamination should be required (Wald, 2006).
- This dose is about 30 times the amount that the average American receives from natural and manmade sources, five times the amount that workers in power plants receive per year, and twice the maximum dose that workers in power plants can legally receive (Wald, 2006).
- The dose that the EPA permits when power plants are dismantled is 0.025 rem per year (Wald, 2006).

## Describe how communities can deal with “dirty” sites that may be left by a major terrorist attack, including determining how “clean” they need to be before residents can return

- Department of Homeland Security officials have suggested choosing a maximum exposure based upon the circumstances, including the need for restoration of the contaminated area and the cost.  **This suggestion constitutes the advice given to state and local governments by the Department of Homeland Security for resettlement of areas contaminated by a “dirty bomb” (Wald, 2006).**
- Opponents argue that exposure to 10 rem of radiation for 30 years would lead to cancer or leukemia in one in four people (Wald, 2006).

## Describe how communities can deal with “dirty” sites that may be left by a major terrorist attack, including determining how “clean” they need to be before residents can return

- The question that those who may be exposed to radiological contamination may ask is:  Do you trust the guidance provided by authorities, such as the DHS guidance for exposure, enough to return to the contaminated area to live or work?
- There is substantial disagreement concerning the long-term effects of radiological exposure from the Chernobyl disaster, chemical exposure from the Bhopal disaster, and chemical exposure from the sarin gas attack in the Tokyo subway in 1995.
- There is substantial disagreement concerning the long-term effects of exposure to dust created by the collapse of the World Trade Center towers.
- But, in each of these cases, there is a general consensus among medical and other experts that there are long-term health effects and even fatalities associated with exposure.
- Ultimately, the question is how much risk are you willing to accept and who do you trust to provide guidance concerning that risk.

## Discussion Questions

**1.  What should people do if they are near an explosion that might be a “dirty bomb” or radiological dispersion device (RDD)?**
**2.   Would you recommend that residents in a community live and/or work in an area where they might be exposed to 10 rem per year, twice the maximum amount that workers in power plants can legally receive?  Would you expect that residents will return to areas with that level of contamination?**