STATEMENT OF
GOVERNOR CHRISTINE TODD WHITMAN
ADMINISTRATOR
U.S. ENVIRONMENTAL PROTECTION AGENCY
BEFORE THE
COMMITTEE ON ENVIRONMENT AND PUBLIC WORKS
SEPTEMBER 24, 2002
Chairman Jeffords and Members of the Committee, thank you
for the opportunity to discuss the measures taken by the Environmental
Protection Agency to respond to terrorist incidents and what steps the Agency
is taking to better prepare for, and respond to, future incidents based upon
the lessons learned after the tragic events that occurred on September 11,
2001.
I want to thank the Members of the Committee for all of
the support given EPA, both Headquarters and the 10 EPA Regions, as the Agency
has carried out its mission to protect human health and the environment both in
response to the attacks on the World Trade Center, the Pentagon, and the
cleanup of anthrax contamination in the Capitol Complex and other facilities
around the country.
EPA accomplished a remarkable achievement in responding
to three national incidents during the same time period; the attacks on the
World Trade Center and Pentagon, and anthrax contaminated buildings. Drawing upon the many years of EPA
experience in responding to the release of hazardous substances, and the
technical and scientific expertise found within the Agency, the outstanding men
and woman of EPA performed unprecedented tasks. One of these tasks, cleaning up anthrax contamination from the
Capitol Hill Complex, defied the customary thinking that the cleanup of an anthrax-contaminated
building was impossible.
The President, EPA and other Federal agencies have made
it clear that there is no higher priority than protecting our Nation’s homeland
security. After EPA’s response to the
terrorist attacks of 9/11 and anthrax contamination shortly thereafter, I asked
for the development of two reports: Lessons Learned in the Aftermath of
September 11, 2001 and Challenges Faced During the Environmental
Protection Agency’s Response to Anthrax and Recommendations for Enhancing
Response Capabilities: A Lessons Learned Report. EPA turned to objective outside sources to conduct extensive
interviews with Agency personnel involved with EPA’s response - - from front
line On Scene Coordinators - - to the upper reaches of Agency management to
form the basis of the reports. I
strongly believed it was important for EPA to examine what the Agency learned
from its response activities after 9/11 and from the anthrax contamination detected
throughout the United States, and to apply these lessons learned to future
Agency responses. Today, my testimony
will discuss EPA’s role in homeland security, how the Agency responded to the
attacks of last year, the lessons learned, and how EPA plans to address
homeland security issues.
EPA’S RESPONSE ROLE
EPA has led the National Response System (NRS) for over
30 years. The NRS is the system by
which our local, state and Federal responders address hazardous material and
oil spill emergencies. These contaminants
can include chemical, biological, and radiological materials that also could be
components of Weapons of Mass Destruction (WMD). The Agency’s basis for its emergency response program is outlined
under the National Oil and Hazardous Substances Pollution Contingency Plan. The NRS was originally authorized under the
Clean Water Act and supplemented by the authorities of the Comprehensive
Environmental Response, Compensation, and Liability Act (CERCLA or Superfund),
and is codified by the National Contingency Plan (NCP). The National Response Team (NRT),
established by the NCP, consists of 16 Federal agencies with responsibilities,
interests, and expertise in various aspects of emergency response to pollution
incidents. The EPA serves as chair and
the Coast Guard serves as vice chair of the NRT.
The NRT has an excellent track record for Federal, state
coordination and was asked by the Office of Homeland Security (OHS) in April
2002 to be an OHS workgroup providing interagency policy coordination
assistance on terrorist incident preparedness and response.
For example, at the request of OHS, NRT is developing a
Technical Reference Document for Determining Adequacy of Cleanup Following
Incidents Involving Weapons of Mass Destruction. This interagency effort will identify existing standards and
guidelines, processes and key Federal resources that will be used to determine
when it acceptable to reoccupy areas that have been decontaminated following
incidents involving chemical, biological, radiological, nuclear, and explosive
agents.
The NRT's priorities in 2002 also include implementing
its recommendation to the Justice Department from the Top Officials 2000
exercise that all responses to Weapons of Mass Destruction incidents utilize
the Incident Command/Unified Command (IC/UC) structure such as the National
Interagency Incident Management System (NIIMS). This will help ensure improved response management coordination
at WMD incident sites. In 2002 the NRT published
an ICS/UC technical assistance document and developed training policy
encouraging ICS/UC use for Federal training grants.
The NRT also completed Anthrax and World Trade Center /
Pentagon Lessons Learned Documents for use by member agencies and developed
Anthrax clean-up technical assistance documents for use by planners and
responders at all levels of government.
Further, the NRT participated in the Coast Guard Gulf of Mexico Spills
of National Significance Exercise in April 2002 which tested the national level
command for a multi-jurisdictional incidents.
NRT projects for the coming year will be drawn from its Lessons Learned
reports from the 2001 WMD incidents.
EPA has important roles in U.S. counter terrorism
activities. EPA assists the FBI during
crisis management in threat assessments and determining the types of hazards
associated with releases or potential releases of materials in a terrorist
incident. EPA, as the lead agency for
Hazardous Materials Response under Emergency Support Function (ESF) #10 of the
Federal Response Plan, also assists the Federal Emergency Management Agency,
during consequence management with environmental monitoring, decontamination,
and long-term site cleanup. EPA is the
lead agency with regard to protecting the Water Supply Sector of the Nation’s
infrastructure. In the
Nunn-Lugar-Domenici legislation, EPA was identified as one of the six key
Federal agencies for assisting in the WMD training program for the nation’s
first responders.
EPA maintains counter-terrorism experts in Headquarters
and each of EPA’s regions. In addition,
EPA has more than 200 On Scene Coordinators (OSCs) at 17 locations throughout
the country, who are ready to quickly respond to release notifications. OSCs are the Federal officials responsible
for monitoring or directing responses to all oil spills and hazardous substance
releases reported to the Federal government.
OSCs coordinate all Federal efforts with, and provide support and
information to, local, state, tribal, and regional response communities. EPA has two specialized Environmental
Response Teams and a Radiological Emergency Response Team available at all
times. Working through the National
Response System, these teams and experts are available and trained to respond
to incidents involving hazardous substances.
EPA can also provide direction, coordination, support on hazardous
release situations as needed.
EPA RESPONSE AT WORLD TRADE CENTER
As soon as the
first plane hit the North Tower, EPA activated its emergency response personnel
from its Regional office in lower Manhattan.
Before anyone knew the tragic consequences of the attack, EPA’s
responders were headed to the site to monitor the cloud of smoke and dust.
EPA immediately dispatched monitoring teams to test the
ambient air quality around the World Trade Center site (WTC) and as far away as
Jersey City, New Jersey. On the first
day, tests were taken for asbestos, lead and a class of chemicals associated
with fires and fuel called volatile organic compounds (VOCs). In most instances on the first day, EPA did
not detect the presence of these pollutants.
In some instances, we found them in very low levels - - well below a level that would be considered
a health threat.
EPA
performed environmental sampling of debris, as well as air monitoring and air
sampling in the work zone and support areas.
This data was used to ensure that health and safety plans were
implemented to minimize the exposure to hazardous chemicals of the responders
doing the firefighting, search and rescue efforts and criminal investigations.
Over the next few days, EPA also sampled dust and air in
Lower Manhattan, Brooklyn, New Jersey and at the Fresh Kills Landfill in Staten
Island. As to be expected, there were
some standards exceeded for certain chemicals within the fires, but this rarely
occurred outside of the World Trade Center site.
EPA
sampled drinking water from the distribution system and analyzed samples from
water towers on top of buildings. The
Agency also sampled water from the Hudson and East Rivers and wastewater from a
sewage treatment plant in Brooklyn after several rainfalls to check for
pollutants running off the World Trade Center site. EPA did not find any levels that posed either human health or
ecological risks. Over the course of
ten months, the Agency took 24,500 samples of air, dust, drinking water and
river water. Because many were analyzed
for more than one pollutant, these samples yielded more than 212,500
results.
The Agency
vacuumed dust from the streets, parks and other public spaces. EPA took the lead in establishing and
running worker and truck wash stations in both Lower Manhattan and on Staten
Island to prevent dust from migrating from the recovery site. In November, EPA erected what is thought to
be the largest worker wash tent in the world - a 31,000 square-foot heated
structure at which workers could vacuum, wash off, shower, and get a hot meal.
EPA has responded to the ongoing concerns of lower
Manhattan residents with the announcement of a residential indoor dust cleanup
program. This program was developed
with assistance from New York City, the Federal Emergency Management Agency,
and other members of the Indoor Air Task Force. Since the announcement of the program, EPA has met with resident
and tenant organizations, environmental and community groups, community boards
and many city, state, and Federal elected officials to refine the program. On June 3, EPA activated a hotline and online
form for residents to sign up for cleaning and testing or to get their homes
tested for asbestos. EPA began testing
homes in August and began cleaning in September.
PENTAGON RESPONSE
The initial emergency response to the terrorist attack on
the Pentagon, was led by an Incident Command established by the City of
Arlington Fire Department.
Concurrently, the FBI assumed the role of the lead Federal agency
on-scene and initiated a criminal investigation. EPA provided support to
DOD, the FBI, and to the Search and Rescue teams brought in by FEMA to support
the City of Arlington during their response efforts.
EPA provided investigators from its Criminal
Investigation Division (CID) to supplement FBI resources in performing the
difficult task of manually examining debris from the crash scene. In addition, EPA’s emergency response
personnel performed environmental sampling of debris, as well as air monitoring
and air sampling in the work zone and support areas. Collectively this data was used to ensure that health and safety
plans were implemented to minimize the exposure to hazardous chemicals of the
responders doing the firefighting, search and rescue efforts and criminal
investigations.
EPA also used its hazardous site cleanup expertise, as
well as results from monitoring data, to make recommendations to responders on
the types of protective clothing and equipment they should utilize to protect
the health and safety of their workers.
EPA also worked closely with the Commonwealth of Virginia while the fire
still burned, to monitor ambient air beyond the Pentagon to ensure there were
no significant levels of contaminants in the smoke plume. EPA accomplished its work at the Pentagon
under its own statutory authorities.
EPA RESPONSE TO ANTHRAX CONTAMINATION
In the Fall of 2001, when anthrax contaminated letters
started to appear, no one had ever attempted to cleanup anthrax contamination
transmitted through the mail. After an
anthrax contaminated letter was opened in the Hart Senate Office Building, and
anthrax spores were detected, several areas of the building were immediately
evacuated and closed. Two days later,
the entire Hart Building and several other buildings in the Capitol Complex
were closed because of health and safety concerns.
EPA emergency responders and Special Agents took
thousands of samples to identify the extent of anthrax, contamination and to
design and carry out site-specific clean-up strategies. Positive results indicating the presence of
anthrax spores were found at the Ford and Longworth House Office Buildings, the
Hart and Dirksen Senate Office Buildings, and the P Street Mail Warehouse on
Capitol Hill.
The cleanup of
the Hart Building posed the largest and most extensive anthrax clean-up
challenge ever undertaken in an office building. Following the initial anthrax discovery, further contamination
was detected on several floors of the building, as well as in filters within
a heating, ventilation, air
conditioning, and cooling system.
Fumigation with chlorine dioxide gas was conducted in the building on
December 1 and on December 30, 2001.
Further fumigation was performed in the air handling system that serves
that area. Several other suites and
common areas in the Hart Building and in other buildings in the Capitol Complex
were cleaned using chlorine dioxide liquid, Sandia foam, and high efficiency
particulate air filter vacuuming. Post
clean-up sampling showed no remaining viable anthrax, and on January 22, 2002,
the Hart Building was cleared for reoccupancy.
U.S. Postal Service Facilities
EPA has provided USPS with technical expertise and advice
in the cleanup of contaminated USPS facilities. EPA was requested by USPS to provide full-time OSC presence at
the USPS command center, which was established at USPS headquarters at L’Enfant
Plaza in Washington, DC, for consolidation of information and
coordination. Nineteen postal facilities
in EPA Regions 1, 2, 3, 4, 5, and 7 have needed cleanup.
EPA’s HOMELAND SECURITY CHALLENGE
Since
the terrorist attacks of September 11, 2001, the Federal government has taken
action to prepare and protect the public against terrorist threats. As a result, preparedness, response, and
other security activities have increased dramatically. The President created the Office of Homeland
Security and has proposed the creation of a new Department of Homeland
Security.
As the Federal Agency responsible for water and
wastewater infrastructure security, the cleanup of chemical, biological, and
certain radiological attacks, and the primary regulator of chemical facilities,
EPA is working to define its role in homeland security. EPA is also examining its role within
Federal response and making decisions where the Agency should allocate existing
and new resources, authority, and personnel to ensure the safety of human
health and the environment. Since
November of 2001, EPA has been re-examining its mission in homeland security. The Agency conducted two major lessons
learned reports, one relating to the incidents of 9/11 and the other related to
EPA’s anthrax response.
LESSONS LEARNED AND EPA ACTIONS
EPA’s approach to dealing with the threat posed by
terrorist attacks will focus on several principal objectives: greater
preparedness, improved response, and effective counter-terrorism
capabilities. The Lessons Learned
Reports have generally concluded that EPA responded successfully; however, we
can always do better. The following
lessons learned represent some of the preparedness and response issues that EPA
is taking steps to address.
Agency Decision Making
The current Federal emergency response management
structure provides a sound framework from which to build on. To ensure a coordinated Federal and EPA
response, Federal response leaders need to be fully trained in the functioning
of the Incident Command System and Unified Command structure. EPA leadership needs sufficient information
to provide the necessary support for emergency responders as they exercise
their roles and responsibilities.
EPA is addressing agency decision making by:
C
Working with
the Office of Homeland Security and the National Response Team to ensure that
EPA and all Federal agencies follow the Incident Command/Unified Command
structure when responding to incidents involving Weapons of Mass Destruction
(WMD).
C
Conducting and
participating in cross-Agency training and exercises; such as the U.S. Coast
Guard Spills of National Significance exercises in April of 2002.
Emergency
Response Structure and Plans
Federal, state, and local
coordination are essential during an emergency response. While a significant amount of inter-agency
communication and coordination took place during the World Trade Center
response, existing response plans and Presidential Decision Directives were not
always followed.
EPA is addressing emergency response
structure issues by:
C
Strengthening
the National Incident Coordination Team (NICT) and having it develop an action
plan to implement the recommendations of the Lessons Learned Report.
Data
Analysis and Information Management
EPA’s and other Federal, state, and
local agency response efforts at the World Trade Center generated an enormous
amount of monitoring data that needed to be analyzed and reconciled among a
large number of agencies. Further, the
number of samples collected to provide health and environmental data nearly
overwhelmed existing laboratory capacity.
EPA is addressing data analysis and
information management needs by:
C
Developing a
list of nationally recognized experts who can be called upon to give expert
advice and technical assistance shortly after an incident.
C
Establishing a
working partnership with the Centers for Disease Control and Prevention (CDC),
the Agency for Toxic Substances and Disease Registry (ATSDR) and other health
related agencies to share analytical resources.
C
Analyzing and
incorporating the information from the July, 2002, report prepared by the
Office of Science and Technology Policy: Preliminary Survey of Air Quality
and Related Health Studies Conducted in the Vicinity of Ground Zero.
C
Reaching
agreements between EPA Regions and states to share analytical resources.
C
Developing the
capability to conduct anthrax analysis in its Cincinnati, Ohio laboratory.
Public
Information Dissemination
EPA’s expectations during an
emergency response include the public dissemination of timely and reliable
information. EPA experienced
difficulties in meeting this expectation, particularly given the numerous
agencies and organizations involved in the response at the World Trade Center.
EPA is addressing information dissemination by:
C
Starting a
World Trade Center Interagency Monitoring Database that tracked environmental
monitoring results from13 different agencies and organizations.
C
EPA has also
developed a World Trade Center site EviroMapper to allow public users to view
all EPA monitoring data sorted by geographic area. Further, EPA has completed its WTC Indoor Air Residential
Services Database which tracks results of indoor air testing and monitoring
Agency
Resources
EPA was successful in its response
activities at the World Trade Center, Pentagon, and anthrax contaminated
buildings through creative use and sharing of existing Agency resources. However, in some instances, traditional
Agency work in the regions had to be suspended, personnel resources were
depleted and emergency supplies were almost exhausted.
EPA is addressing resource needs by:
C
Hiring response
staff to provide expanded response capability.
C
Providing
advanced counter-terrorism training to Agency On Scene Coordinators (OSCs).
C
Increasing the
number of personnel and specialized equipment available for chemical,
biological, and radiological response.
C
Establishing
the Environmental Response Team (ERT) West located in Las Vegas, Nevada, to
provide on-scene assistance for environmental emergencies and disasters.
Environmental
Vulnerability
The terrorist attacks of 9/11 and
subsequent anthrax incidents served as the catalyst for EPA to address the
vulnerability of critical facilities such as drinking water and waste water
systems, chemical, petroleum, and pesticide facilities and building interiors.
EPA has already obligated more than
$40 million to address the challenges of improving facility vulnerability. Specifically, EPA’s response actions
include:
C
Training more
than 6,000 operators and managers of water utilities in vulnerability
assessment methods and other security measures.
C
Providing more
than $40 million in grants to large drinking water utilities to conduct assessments,
revise emergency response plans, and improve other security measures.
C
Working with
stakeholders to improve communications capabilities with water utilities,
including the creation of secure communications.
C
Working with
the U.S. Department of Justice (DOJ), U.S. Department of Energy (DOE), and the
chemical industry to develop security guidelines that encompass facility
security screening and vulnerability assessments to improve site security.
C
Sending
Security Advisories to chemical, oil, and pesticide industry trade associations
and Emergency Planning Committees.
C
Assigning EPA
Criminal Investigation Division (CID) Special Agents to provide support to the
FBI, DOJ, the U.S. Secret Service, and the Office of Homeland Security, for
work related to terrorism involving chemical, biological, and nuclear weapons
of mass destruction.
C
Deploying EPA
CID Special Agents across the country providing environmental criminal
investigative support and training related to environmental threats to the law
enforcement community.
EPA
Safety and Security
EPA experienced operational
difficulties in the aftermath of the 9/11 attacks, including the identification
of facility security threats and the evacuation of facilities. Some regional offices and Headquarters found
that their Continuity and Operations Plan (COOP) needed to be updated or
revised.
EPA is addressing EPA safety and
security concerns by:
C
Completing
vulnerability assessments at critical EPA facilities and provided funding to
address those vulnerabilities.
C
Developing a
computer based security training program that will provide employees
information on security measures at EPA facilities and procedures for
responding to emergency situations.
C
Working with
the Office of Personnel Management and the Federal Emergency Management Agency
to provide greater reliability and security to Agency communications networks.
C
Revising
regional and Headquarters COOP and evacuation plans.
CONCLUSION
The President, EPA and other Federal agencies have made it clear that there is no higher priority than protecting our Nation’s homeland security. Within that mission, EPA is working diligently to ensure the protection of public health and the environment. The Agency is committed to taking the lessons learned after the terrorist attacks of September 11, 2001, and subsequent anthrax attacks, and implementing those lessons learned to improve EPA’s performance in preparedness, response and recovery. I look forward to working with this committee, and all members of Congress, with Governor Ridge’s Office of Homeland Security, and hopefully soon with a new Homeland Security Department, to protect and preserve the health and well being of every American citizen.