京 都 大 学 防 災 研 究 所 年 報 第47号 C 平成16年3月
Annuals of Disas. Prev. Res. Inst., Kyoto Univ., No. 47 C, 2004

The Role of GIS in the Response to the Terrorist Attacks of September 11in New York City

Paul YOSHITOMI** COE Researcher, DRS, DPRI, Kyoto University
Synopsis
The primary goals of emergency management activities are to protect life, property, andthe environment. Having the right data at the right time presented logically is critical in
responding effectively to natural and human-generated hazards and taking appropriateactions. Most of the data required for emergency management are of a spatial natureand GIS provides a framework in which critical information can be gathered,centralized, synthesized, visualized, and shared. This paper describes the critical rolethat geographic data and GIS played in the response to the attacks of September 11 in
New York City. Although the processes that generate the disaster might be different
depending on the type of hazard (natural as well as man-made), the techniques to assess
risk, evaluate damage, and assist response have much in common and can share andbenefit from the lessons learned in New York City.
Keywords: WTC, 9/11, Emergency Response, NYC Disaster, GIS

1. Introduction
GIS and geographic information have been usedfor decades to help organizations collect and analyze
data to make better decisions. It is said that any
opposing opinions and skepticism anyone had about
the effectiveness of GIS in New York City wereerased after 9/11. This paper will examine the role ofGIS and geographic data in the response to theattacks of September 11 in New York City.
2. The utilization of GIS for WTC
GIS was used mainly for the following four
purposes in the response to the attacks of September
11 in New York City.:
1.
2.
3.
4.

To build base map products for damage
assessment
To support recovery operations and preventionof secondary damage
To conduct three-dimensional analysis
To conduct plume analysis

2.1 Base Map products for damage assessment

Using GIS, officials can assess damages
caused by a disaster and begin to evaluate theconsequences in order to take appropriate actions.
New York City's Emergency Operations Center(EOC), which was operated by the Mayor's Office ofEmergency Management (OEM), had the geographic
data, GIS software, and computer hardware theyneeded for any crisis in a state-of-the-art facility,
housed within steel-framed, reinforced exterior walls
designed to withstand 200-mile-an-hour winds. TheEOC was only three and one-half years old, and wasequipped with generators, backup generators, a watersupply, and a ventilation system capable of filteringout 99 percent of airborne impurities with
uninterruptible power supplies. It was located withinwalking distance of City Hall and most City agencies,
and was designed to operate as a self-contained
headquarters in a crisis. However, when the two
World Trade Centers collapsed, the building (7World Trade Center) that housed the EOC had alsocaught on fire and the building, along with the stateof-the-art equipment and data, had completely burnt
down. Hence, at a time when the City needed theEOC's resources the most, those resources had to beregenerated practically from scratch.

Collecting and integrating GIS data for theEOC's mapping was a very complicated andoverwhelming task. Data first had to be found andassembled from various departments and agencies, aswell as from other government agencies outside theCity, and from private vendors. As shown in thefollowing figures, much effort was mad during thefirst week simply in trying to gather base map datafrom various organizations and to plot them.

Various data and maps were produced during
the first two weeks to assess the situation anddamages. As shown in Fig. 3 and Fig. 4, theseassessments included Safety Map, which indicatedunsafe areas that people working in the Ground Zeroarea had to be aware of; LIDAR based volumetriccalculations; and maps showing damaged areas andutility outages.
Mayor Requests Maps （NYC）
NYC）
Need for HighHigh-Resolution Images （NYC）
NYC）

Contact Vendors for Aerial Photos （NYS）
NYS）

Discuss the Need for Image （NYS）
NYS）

Scan Building Plans from Tourist Map （FEMA）
FEMA）

9/11

Obtain Satellite Image from EPA （NYS）
NYS）
9/11

9/13

9/15

W1 9/18

9/20

9/22 W2 9/25

9/27

9/13

9/15

W1 9/18

9/20

9/22 W2 9/25

9/27

9/29 W3

Finalize Contract for
Ortho/LIDAR/Thermal Infrared（Infrared（ NYS）
NYS）

9/29 W3

Base Map

Assessement

Plot Collapsed Buildings （ FEMA）
FEMA）
Plot Electricity Outage Areas（Areas（FEMA）
FEMA）

Capture IKONOS/LANDSAT7 Data

Plot “As Was”
Was” Maps (NYC）
NYC）

Plot Restricted Areas （ FEMA）
FEMA）

Analyze Existing Images（Images（NYS）
NYS）

Obtain Satellite Images from NY Times
(NYC）
(NYC）
Plot Damaged Areas and Utility Outages
(NYC）
(NYC）

Problem Identified with BIN （NYC）
NYC）
Plot Street Centerlines and Blocks（Blocks（FDNY）
FDNY）
Plot Critical Facilities and Restricted
Buildings（Buildings（NYS）
NYS）

Take Photos using Airplane (FDNY）(FDNY）

Extract Data from NYCMAP （ NYC）
NYC）

Establish Four Sector Grid（Grid（FDNY）
FDNY）

Capture SPOT Data

Fig. 3:Fig. 1:

GIS Related Activities – Damage Assessment 1

GIS Related Activities – Base Map 1
Data Inquiry（Inquiry（FEMA）
FEMA）
Scan Underground Plans（Plans（ FEMA ）9/11

Base Map

9/13

9/15

W1 9/18

9/20

9/11

Request Locations of Fuel Tanks andElevators （NYC）
NYC）
9/27 9/29 W3

9/13

9/15 W1 9/18

9/20

9/22 W2 9/25

9/27

9/29 W3

Request for Analyzing Subsidence(FEMA）(FEMA）

9/22 W2 9/25

Establish Deep Underground
Infrastructure Team （NYC）
NYC）
Assessment

Volumetric Calculation of Debris
using LIDAR Data (FEMA）(FEMA）

Map Fuel Tanks from CAD and Thermal
Infrared Data （NYC）
NYC）
Obtain Underground CAD Data（Data（ FEMA ）Plot Building Conditions（Conditions（FEMA）
FEMA）

Plot Hospital Locations （ FEMA ）Generate Safety Map（Map（FEMA）
FEMA）

Obtain Digital Building Plans （ FEMA ）Produce Status Maps （NYC）
NYC）

Plot “As Was”
Was” Maps （NYC）
NYC）

Obtain Thermal Infrared Data（Data（NYS）
NYS）

Plot Building Plans（Plans（FDNY）
FDNY）

Obtain LIDAR Data（Data（NYS）
NYS）

Fig. 4:
Fig. 2:

GIS Related Activities – Damage Assessment 2

GIS Related Activities – Base Map 2During the first several days, the demand forimages showing the extent of damages was so greatthat plotting aerial photographs and satellite images
was all mapping center staffers could do to simply
keep up with the request for maps. The first maps
were based on aerial photographs from the New YorkState Emergency Management Office and satellite
images from Space Imaging, which was the only
reliable data available. Simple street maps were also
created during the first several days with NYCMAP,
the City's first accurate base map.
It is important to note that a problem wasidentified with building addressing and Building
Identification Numbers (BIN) during the first week,
causing difficulties in integrating data among various
agencies.

2.2 Support for recovery operations andprevention of secondary damage
GIS was also used to help stabilize the situation
and reduce the probability of secondary damage (e.g.,cordoning off affected areas to prevent further injury,looting, or other problems) as well as to speed up
recovery operations (e.g., damage assessment).
Hazard data (e.g., fire hazard areas, etc.) was viewed
with other map data (e.g., streets, building plans,pipelines, power lines, etc.) to identify potential
disaster hot spots. Data also came in from the field:
command post locations, vehicle and pedestrian
restrictions, utility outages, pedestrian and vehicle
access zones, subway and bus line status, and rivercrossing access. This information was in highdemand, and some were updated several times a day.
This data became part of a growing list of standard
map products, which in turn became a key
component for public information, used by Mayor
Rudolph Giuliani's office and posted on the New
York City Web site.
OEM had implemented the Emergency
Management Online Locator System (EMOLS), aWeb-based, ArcIMS application that let New York
City residents enter an address and see the location of
the nearest emergency shelter in the event of somenatural disaster such as a hurricane. This capability
was easily pivoted, after the attacks, to allow
residents to find out whether they lived in a restrictedsector and whether they were subject to any utilityoutages.
Other maps were produced to help with theprocess of identifying damaged buildings, destroyedbuildings, those in danger of collapse, and buildings
needing cleanup. Daily updates of these maps werean important resource to provide to both residential
and commercial tenants who were shut out of theirbuildings.
A 75-ft by 75-ft search grid was established toassign search and rescue crews to working areas,
record the damage condition, document the findings
and the date of discovery, and to track the progress ofsearch and rescue effort. A device that allowed thefirefighters to identify and bar code items found on
the pile along with time, date and GPS location wasused, and the information was compiled and depictedin the GIS database.

through the smoke and the debris piled up on top ofbuildings.

Fig. 6:LIDAR

2.4 Plume analysis
GIS was used to model the plume dispersion inorder to track and monitor the effects of dispersal ofparticles into the atmosphere, and to determine
exposure and risk.

Fig. 7:

3.

Plume Analysis

Lessons Learned

3.1 Data

Fig. 5:75-ft by 75-ft Search Grid

2.3 Three-dimensional analysis
Light detection and ranging (LIDAR)-based
three-dimensional analysis maps of the debris field at
Ground Zero was used to monitor shifts in the debris
pile. LIDAR allowed emergency managers to see

The capability to quickly and effectively accessdata that can minimize damage, and save lives is thekey in disasters. The geographic information thatorganizations have today are the foundation on which
to build strategies for a knowledge base that will
enable organizations to create, publish, and accessgeographic and associated datasets for disasters. It istherefore critical to maintain and develop a solid andcomplete dataset for an effective emergency
management.
3.2 Enterprise GIS and Security

GIS resources, and the expertise that builds
them, are highly dispersed, so a distributed
architecture to facilitate maintenance and sharing ispreferable to extensive data replication and themaintenance of massive centralized repositories.
Relying on the Internet, or secure Intranets orExtranets, to access data also has the direct advantage
of keeping data resources dispersed and therefore
potentially less vulnerable to a direct threat.
Devices such as mirror sites, remotely stored
backupcopies,permanentarchiving,andsophisticated firewalls can further enhance security.
Leaving these data resources in the hands of those
who created them also increases the likelihood thatdata will be current and of high quality.

GIS can display "real-time monitoring" for an
emergency early warning. Remote weather stations
can provide current weather indexes based on
location and surrounding areas. Wind direction,
temperature, and relative humidity can be displayedby the reporting weather station. Wind information isvital in a chemical release or anticipating thedirection of wildfire spread upon early report. Air
quality, airborne pathogens, environmental healthissues, radiation, and so forth, can all be monitored
and displayed by location in a GIS. It is also possible
to deliver this type of information and geographic
display over the Internet for public information or theIntranet for organizational information delivery.
4.

Conclusion

3.3 Risk assessment and planning
Disaster events such as terrorist attacks,
wildfires, floods, epidemic spread, and hazardous
material spills can be modeled and displayed in a GIS
prior to an emergency. This will allow agencies tomake comprehensive assessments and develop
mitigation plans.
GIS can be used for consequence assessment
and developing an emergency response plan also by
integrating data on the location of schools,
neighborhoods, key infrastructures, and emergency
personnel. Analysis can identify transportation chokepoints near bridges or overpasses. GIS can help cityand emergency managers plan for different scenarios
and types of events and create the action plansneeded to deploy personnel, vehicles, heavyequipment, fencing, and other important materials orresources.
3.4 Real-time data collection

The response to the attacks of September 11
has demonstrated the critical role a GIS can play inthe event of a disaster, and the significance of having
solid geographic datasets. Analysis, preparation, andimplementation of strategies will hinge not only on
how information is collected and analyzed, but more
important, on how it is coordinated and shared. The
capability to build on existing data sets in the public
and private sector, along with the knowledge andmethodologies allows organizations to respondsuccessfully in emergencies, and help reduce the costand impact on society, and mitigate risk to human life,property, and the environment
References
Ronald, J., Langhelm (2002): WTC GIS Chronology
Susan, Harwood, (2001): New York City--Creating a
Disaster Management GIS on the Fly, ArcNews
Winter 2001-2002 Issue

GIS can also help manage data in real time,allowing emergency managers to make importantdecisions. Wireless technology allows for dynamic
data exchange from field personnel back to thegeodatabase. GIS integrates data on the fly, allowing
emergency managers to visualize and analyze eventsas they unfold. GIS can assist by displaying thelocations of emergency resources and tracking
ongoing incidents throughout a larger geographic
region. Selecting and routing emergency resources,
equipment, and supplies can be accomplished using
GIS.
GIS Internet applications can allow emergency
managers to view the status of incidents, resources,
and the overall situation from remote locations using
a browser.
要 旨
ニューヨークでのテロ事件後GISが使われた主な目的はオーバレイ機能による迅速な状況把握、救援作業のサポートまた二次災害防止、3次元データによる視覚化・容積解析、及びプルーム・モデルによる空間解析の四つの点に集約される。
ニューヨークで使用されたGIS分析の殆どはオーバレイ機能であった。有効にオーバレイ機能を行うには、充実した基図が整備されている事が必須条件である。
キーワード: WTC, 9/11, 緊急対応, ニューヨークテロ事件, GIS

A-01

9・11 米国同時多発テロ事件における GIS の活用〇吉富
１．はじめに望る。ニューヨークで使用された GIS 分析の殆どが災害が一度発生すると数多くの問題を同時にこのオーバレイ機能であった。有効にオーバレイ処理し、分析しなければいけない。またそれと同機能を行うには、充実した基図が整備されている時に、全てのもの、全ての命は救う事ができない事が必須条件である。今後の課題として我々は既という極めて厳しい現実に直面する事になる。僅

存の基図を整理するだけではなく、災害時においか数秒という時間が人の生死を左右する中にあて必要となるデータを注意深く検討し、基図としって、災害対応に携わる人々は複雑な問題を同時て含むべきデータを見直す必要がある。特に、イに扱い、また的確な判断を瞬時に下さねばならな

ンフラ、ライフライン、地下鉄や地下街などの地い緊迫した状況下に身を置くのである。GIS（地下構造、また公共交通機関のネットワークなど、

理情報システム）はそのような状況下で様々な問

都市機能を支える基盤となるデータは、その有無題を整理し、災害に対応する人々が正確な判断をの確認のみならず、精度、互換性、アクセス権限下す事ができるフレームワークを提供する。

を明確にし、また異なる組織が使用可能な仕組み

GIS は意思決定をいち早く行える環境を効果的を構築する必要がある。に提供するツールとして、長年にわたって世界中

GIS は救援作業のサポートや二次災害防止におの防災関係者の間で評価されてきた経緯がある。

いて、救援隊員の作業エリアの割り当て、災害状その有効性を多大に実証した事例として 2001 年

況や危険物の有無に関する分析、また救援作業のに起こった 9・11 米国同時多発テロ事件がある。

進行状況や発見物・遺体などを記録するために利ニューヨーク世界貿易センターでの応急対応、ま用された。ニューヨークの場合、75ft x 75ft のた復旧・復興作業において GIS は必要不可欠なツ正方形からなるグリッドを被災地全域に規定しールとして様々な役割を担い、ニューヨーク市や作業の効率化を図った。グリッドを用いた理由と米国連邦緊急事態管理庁(FEMA)などを始め、多数しては、一定の場所を従来の住所体系を用いて特の関連組織で使用された。テロ事件発生後、GIS定する事が被災地では極めて困難であることがの必要性や費用対効果に対する疑問の声がニュ挙げられる。現場での作業員から意思決定に携わーヨーク市では全く聞かれなくなったと言われる管理職まで、災害に対応する全ての人や組織がているが、GIS が実際にどのように使用され、ま即座に理解でき、また伝達不良などを回避するた

たその体験から何を学んだのかを明らかにして、めの仕組みとしも、位置特定のための手法を事前

今後の危機管理分野における GIS の活用についてに確立する事は極めて重要である。更に、危険物考えてみたい。などを扱う施設は二次災害を防止するために、危険物の内容、保管場所、またそれが人体に及ぼす

２．テロ事件における GIS の活用と今後の課題
ニューヨークでのテロ事件後 GIS が使われた主な目的は以下の四つの点に集約される。

影響などの情報を事前にデータ化する必要がある。それに伴い、情報の所有権を保護する法的な手続き、またデータの独自仕様などに対応できる

1.

オーバレイ機能による迅速な状況把握技術的な基盤も整備する必要がある。ニューヨー

2.

救援作業のサポートまた二次災害防止

クでは LIDAR（3 次元データ取得のための技術）

3.

3 次元データによる視覚化・容積解析

や熱センサーを搭載した飛行機などを用いて上

4.

プルーム・モデルによる空間解析

空からのデータも毎日取得されたが、測量会社なオーバレイ機能とは GIS に取り入れた複数のレどの民間企業との協議及び契約等を事前に行えイヤーを重ね合わせることにより、同一空間上にる制度も検討しなければいけない。最後に、災害おける異なる情報・要因を相互間の空間的関係をのサイクルを通して利用できる空間解析のモデ基に比較、参照、また抽出する基本的な機能であルの整理や開発もまた重要な課題である。