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COUNC I L ON FORE IGN RELAT IONS

REPORT OF AN INDEPENDENT TASKFORCESPONSORED BY THE COUNCIL ON FOREIGN RELATIONS

WARREN B. RUDMAN, CHAIRRICHARD A. CLARKE, SENIORADVISERJAMIE F. METZL, PROJECT DIRECTOR

EMERGENCY RESPONDERS:

DRASTICALLY UNDERFUNDED,

DANGEROUSLY UNPREPARED


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The Council on Foreign Relations is dedicated to increasing Americas understanding ofthe world and contributing ideas to U.S. foreign policy. The Council accomplishes this main-ly by promoting constructive debates, clarifying world issues, producing reports, and pub-lishing Foreign Affairs, the leading journal on global issues. The Council is host to the widest

possible range of views, but an advocate of none, though its research fellows and IndependentTask Forces do take policy positions.

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The Council will sponsor an Independent Task Force when (1) an issue of current and crit-

ical importance to U.S. foreign policy arises, and (2) it seems that a group diverse in back-grounds and perspectives may, nonetheless, be able to reach a meaningful consensus on apolicy through private and nonpartisan deliberations. Typically, a Task Force meets betweentwo and five times over a brief period to ensure the relevance of its work.

Upon reaching a conclusion, a Task Force issues a report, and the Council publishes its textand posts it on the Council website, www.cfr.org.Task Force reports can take three forms:(1) a strong and meaningful policy consensus, with Task Force members endorsing the gen-eral policy thrust and judgments reached by the group, though not necessarily every find-ing and recommendation; (2) a report stating the various policy positions, each as sharplyand fairly as possible; or (3) a Chairs Report, where Task Force members who agree withthe Chairs report may associate themselves with it, while those who disagree may submitdissenting statements. Upon reaching a conclusion, a Task Force may also ask individuals

who were not members of the Task Force to associate themselves with the Task Force reportto enhance its impact. All Task Force reports benchmark their findings against currentadministration policy in order to make explicit areas of agreement and disagreement.The

Task Force is solely responsible for its report. The Council takes no institutional position.

For further information about the Council or this Task Force, please write the Council onForeign Relations, 58 East 68th Street, New York, NY 10021, or call the Director ofCommunications at 212-434-9400. Visit our website at www.cfr.org.

Copyright 2003 by the Council on Foreign Relations, Inc.

All rights reserved.

Printed in the United States of America.

This report may not be reproduced in whole or in part, in any form (beyond that copyingpermitted by Sections 107 and 108 of the U.S. Copyright Law and excerpts by reviewersfor the public press), without written permission from the publisher. For information, writethe Publications Office, Council on Foreign Relations, 58 East 68th Street, New York, NY

10021.


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CONTENTS

Foreword v

Acknowledgments ix

Executive Summary 1

Task Force Report 7

Introduction 7

Definitions 12

Budget Estimates 13

Recommendations 15

Conclusion 24

Task Force Members 25Emergency Responders Action Group Members 28

Appendixes 29

Appendix A: National Estimates for HomelandSecurity Emergency Responder Funding 31

Appendix B: Excerpt from The National Strategy forHomeland Security 42

Appendix C: Homeland Security PresidentialDirective-5/HSPD-5 53


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FOREWORD

As I sit to write this foreword, it is likely that a terrorist group some-where in the world is developing plans to attack the United Statesand/or American interests abroad using chemical, biological,radiological, nuclear, or catastrophic conventional weapons. At thesame time,diplomats, legislators, military and intelligence officers,

police, fire, and emergency medical personnel, and others in theUnited States and across the globe are working feverishly to pre-vent and prepare for such attacks.These two groups of people areultimately in a race with one another.This is a race we cannot affordto lose.

In October 2002, the Council on Foreign Relationssponsored Independent Task Force on Homeland Security issued

the report AmericaStill Unprepared, Still in Danger. ThatTask Force, co-chaired by former Senator Warren B.Rudman andSenator Gary Hart, came to the general conclusion that Amer-ica remains dangerously unprepared to prevent and respond to acatastrophic terrorist attack on U.S. soil. The report furtherwarned that Americas own ill-prepared response could hurt itspeople to a much greater extent than any single attack by a ter-

rorist. . . . But the risk of self-inflicted harm to Americas liber-ties and way of life is greatest during and immediately followinga national trauma.

Although progress continues to be made through the newly formedDepartment of Homeland Security and other federal, state, andlocal institutions,America remains dangerously unprepared for anoth-er catastrophic terrorist attack.

In March 2003, the Council on Foreign Relations establishedan Independent Task Force on Emergency Responders to followup on the specific recommendations of the Task Force on Home-land Security and to examine the status of preparedness and theadequacy of funding for emergency responders in the UnitedStates. The Task Force on Emergency Responders subsequently


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established an Emergency Responders Action Group, consistingof representatives of emergency responder professional associations,jurisdictional associations representing state and local officials, andcongressional and budgetary experts, to provide expertise andadvice to the Task Force. The Task Force performed its analysisin partnership with the Concord Coalition and the Center for Strate-gic and Budgetary Assessments, two of the nations leading bud-get analysis organizations.This represents the first realistic effortto develop a budget estimate of the costs necessary to protect thehomeland.

The preliminary analysis conducted by the Task Force suggeststhat the United States may be spending only one-third of whatis required to adequately provide for Americas emergency respon-ders.

Of its most important recommendations, I would like to high-light the following:

Congress should require that the Department of HomelandSecurity work with state and local agencies and officialsand emergency responder professional associations to estab-lish clearly defined standards and guidelines for emergencypreparedness.

Congress should work to establish a system for distributing fundsbased less on politics and more on threat.To do this, the fed-

eral government should consider such factors as population,pop-ulation density, vulnerability assessment, and presence ofcritical infrastructure within each state. State governmentsshould be required to use the same criteria for distributing fundswithin each state.

Congress should make emergency responder grants in FY04and thereafter on a multiyear basis to facilitate long-term

planning and training.

The U.S. House of Representatives should transform theHouse Select Committee on Homeland Security into a stand-ing committee and give it a formal, leading role in the autho-


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Foreword

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rization of all emergency responder expenditures in order tostreamline the federal budgetary process.

The U.S. Senate should consolidate emergency preparednessand response oversight in the Senate Government AffairsCommittee.

Congress should ensure that all future appropriations bills foremergency responders include strict distribution timelines.

States should develop a prioritized list of requirements in

order to ensure that federal funding is allocated properly andquickly to achieve the best possible return on investments.

I have the greatest respect for this efforts chairman, SenatorWarren B. Rudman, who lent his experience and knowledge ofhomeland security to this product. He was supported by a cast ofseasoned professionals who with their diverse backgrounds and exper-tise were able to tackle the topic of emergency response from every

angle. In addition to the able leadership of Senator Rudman, theTask Force relied on the inestimable skills of Council Senior Fel-low and Project Director Jamie Metzl and senior adviser RichardA.Clarke, whose combined experience makes for a formidable wealthof knowledge on this topic.

Leslie H. Gelb

PresidentCouncil on Foreign RelationsJune 2003


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ACKNOWLEDGMENTS

When Leslie H.Gelb approached me early this year with the char-acteristic twinkle of determination in his eye and asked me to directa Council on Foreign Relations Task Force on Emergency Respon-ders, I sensed immediately that Less offer, and his enthusiasm,wouldbe difficult to refuse. Since the tragic events of September 11, 2001,

Americans have lived with a sense of vulnerability not felt atleast for decades and possibly for centuries. A second attack, Lesappropriately pointed out, could be even more disastrous to thefabric of American society on multiple levels, particularly if theAmerican people were to feel that America had not been prepared.I was honored to accept Less offer because of my deep respect forthe Council on Foreign Relations as an organization and my

firm conviction, strengthened over the course of our work onthis report, that America has not reached a sufficient level ofpreparedness for potential future terrorist attacks.

My work as project director of the Task Force on EmergencyResponders was shaped by two inspirational leaders.The Coun-cil was once again fortunate to have the distinguished formerSenator Warren B. Rudman chair this Task Force, and to be able

to reconvene many of the members of the original Task Force onHomeland Security as well as incorporate some new voices andperspectives into the group. For former Senator Rudmans lead-ership I am extremely grateful. I am also thankful for the hard workand enthusiasm the Task Force members dedicated to this prod-uct. Richard A.Clarke, the former special adviser to the presidentfor cyber-security, served as this projects senior adviser. Dick hasbeen a close friend and mentor since I worked for him on the Nation-al Security Council six years ago. His strategic contribution to thiseffort was monumental, and the project could not have beencompleted without him.

In addition, this report would not have been possible withoutthe contributions of two of the countrys leading budget analysis


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organizations, the Concord Coalition and the Center for Strate-gic and Budgetary Assessments (CSBA). Joshua Gordon of theConcord Coalition, and James Jay Carafano representing theCSBA, put enormous time and effort into collecting and analyzingpreliminary estimates of national needs for emergency responders.Josh and Jim were helpful in this effort in every way, and their thought-ful contribution had an enormous impact on the projects devel-opment.

Much of the data the Task Force collected regarding the needsof emergency responders came from a remarkable group of emer-

gency responder professional associations, and I am extremely grate-ful to all of the members of the Emergency Responders ActionGroup for their policy and budget input.The information they pro-vided, directly from the emergency responder communities theyrepresent, helped shape this report. The Task Force membershope that the report will help focus attention on the critical needsof these emergency responder communities.

We also gained valuable insights and information throughvisits to Baltimore, San Francisco, and Kansas City. MayorMartin OMalley and Deputy Mayor Michael Enright ofBaltimore; Lucien Canton, director of the mayors Officeof Emergency Services in San Francisco; and Erin Lynch andMarlene Nagel of the Mid-America Regional Council in KansasCity all went well above and beyond what might have been

expected, providing invaluable information and arranging exten-sive meetings with a wide range of emergency response leadersin their communities. Ben Canada from the CongressionalResearch Service and former Congressman David Skaggs alsoprovided thoughtful advice. Additionally, Andrew Mitchell,acting director of the Department of Homeland Security (DHS)Office of Emergency Preparedness,Matt Bettenhausen of the DHS

Office of State and Local Government Coordination, and RichardFalkenrath, assistant director of the Homeland Security Councilat the White House, all shared with me their time and insights.

Working on this project at the Council on Foreign Relationshas been a tremendous pleasure for me. Les Gelb, who retired from


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the Council on the day this report was released, has been aninspirational and fiercely determined leader. I dont believe in beinga lame duck, Les told me when I took the job at the Council. Iwant to end my tenure here with a strong report on an importantsubstantive issue. We hope that this report lives up to Less aspi-rations for it. As a member of the Council on Foreign Relationsand as project director of this Task Force, I know firsthand thatthe Council is a much better place because of Less visionaryleadership. He will be missed.

Michael P. Peters and Lee Feinstein also played critical roles

in getting this Task Force off the ground, and Jennifer Anmuthand Patricia Dorff spared no effort helping us get this reportready for publication. For that, I am extremely grateful.

It is also impossible to overestimate the tremendous contribu-tion made to this effort by Lisa Shields and Abigail Zoba. Mostimportant, I would like to thank my two superb research associ-ates, Elizabeth Dahan and Sarah Vogt. Liz worked tirelessly and

enthusiastically to get this project up and running. Sarah joinedus later and helped keep the project on track.Without Liz and Sarah,you would not be reading this report.

The Task Force was supported by generous grants from the StarrFoundation, Peter G. Peterson, Tishman Speyer Properties, andGuardsmark, LLC.

Jamie F. MetzlProject Director


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EXECUTIVE SUMMARY

If we knew that there was going to be a terrorist attack sometime inthe next five years but did not know what type of attack it would be,who would carry it out, or where in the United States it would occur,what actions would we take to prepare and how would we allocate ourhuman and financial resources to do so?

The tragic events of September 11, 2001,brought home to the Amer-ican people the magnitude of the danger posed by terrorism onU.S. soil. Now, in the aftermath of the September 11 attacks, theUnited States must assume that terrorists will strike again, pos-sibly using chemical, biological, radiological, or even nuclearmaterials. The unthinkable has become thinkable.

Although in some respects the American public is now betterprepared to address aspects of the terrorist threat than it was twoyears ago, the United States remains dangerously ill prepared tohandle a catastrophic attack on American soil.

On average, fire departments across the country have only enoughradios to equip half the firefighters on a shift, and breathingapparatuses for only one-third. Only 10 percent of fire depart-ments in the United States have the personnel and equipmentto respond to a building collapse.

Police departments in cities across the country do not have theprotective gear to safely secure a site following an attack withweapons of mass destruction (WMD).

Public health laboratories in most states still lack basic equip-

ment and expertise to adequately respond to a chemical or bio-logical attack, and 75 percent of state labs report beingoverwhelmed by too many testing requests.

Most cities do not have the necessary equipment to determinewhat kind of hazardous materials emergency responders maybe facing.


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If the nation does not take immediate steps to better identifyand address the urgent needs of emergency responders, the nextterrorist incident could have an even more devastating impact thanthe September 11 attacks.

According to data provided to the Task Force by emergency respon-der professional associations and leading emergency responseofficials from around the country, America will fall approximate-ly $98.4 billion short of meeting critical emergency responder needsover the next five years if current funding levels are maintained.

Currently the federal budget to fund emergency responders is

$27 billion for five years beginning in 2004. Because record keep-ing and categorization of state and local spending varies greatlyacross states and localities, it is extremely difficult to come up withan estimate for a five-year total for expenditures by state andlocal governments. According to budget estimates referenced byAppendix A of this report, state and local spending over thesame period could be as low as $26 billion or as high as $76 bil-

lion.Therefore, total estimated spending for emergency respon-ders by federal, state, and local governments combined would bebetween $53 billion and $103 billion for five years beginning in FY04.

Because the $98.4 billion unmet-needs budget covers areasnot adequately addressed at current funding levels, the total nec-essary overall expenditure for emergency responders would be $151.4billion over five years if the United States is currently spending $53

billion, and $201.4 billion if the United States is currently spend-ing $103 billion. Estimated combined federal, state, and localexpenditures therefore would need to be as much as tripled overthe next five years to address this unmet need. Covering thisfunding shortfall using federal funds alone would require a five-fold increase from the current level of $5.4 billion per year to anannual federal expenditure of $25.1 billion.

The preliminary figures were based on the critical analysis ofneeds estimates provided by emergency responder communitiesand were developed in partnership with the Concord Coalitionand the Center for Strategic and Budgetary Assessments, two ofthe nations leading budget analysis organizations.While these fig-ures represent the most reliable public numbers to date, the nation


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to enhance the capacity of emergency medical technicians,paramedics, and others to respond to mass casualty events.

There are two major obstacles hampering Americas emer-gency preparedness efforts. First, it is impossible to know preciselywhat is needed and how much it will cost due to the lack of pre-paredness standards. Second, funding for emergency respondershas been sidetracked and stalled due to a politicized appropria-tions process, the slow distribution of funds by federal agencies,and bureaucratic red tape at all levels of government.

To address the lack of standards and good numbers, the TaskForce recommends the following measures:

Congress should require the Department of Homeland Secu-rity (DHS) and the Department of Health and Human Ser-vices (HHS) to work with state and local agencies and officialsas well as emergency responder professional associations to estab-lish clearly defined standards and guidelines for emergency pre-

paredness. These standards must be sufficiently flexible toallow local officials to set priorities based on their needs, pro-vided that they reach nationally determined preparedness lev-els within a fixed time period.

Congress should require that DHS and HHS submit a coor-dinated plan for meeting identified national preparednessstandards by the end of FY07.

Congress should establish within DHS a National Institute forBest Practices in Emergency Preparedness to work with stateand local governments, emergency preparedness profession-al associations, and other partners to share best practices andlessons learned.

Congress should make emergency responder grants in FY04

and thereafter on a multiyear basis to facilitate long-termplanning and training.


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To deal with the problem of appropriations and stalled distri-bution, the Task Force recommends the following measures:

Congress should establish a system for allocating scarceresources based less on dividing the spoils and more on address-ing identified threats and vulnerabilities. To do this, the fed-eral government should consider such factors as population,population density, vulnerability assessment, and presence ofcritical infrastructure within each state. State governmentsshould be required to use the same criteria for distributing funds

within each state.The U.S. House of Representatives should transform the

House Select Committee on Homeland Security into a stand-ing committee and give it a formal, leading role in the autho-rization of all emergency responder expenditures in order tostreamline the federal budgetary process.

The U.S. Senate should consolidate emergency preparednessand response oversight in the Senate Government AffairsCommittee.

Congress should require DHS to work with other federalagencies to streamline homeland security grant programs in away that reduces unnecessary duplication and establishes coor-dinated one-stop shopping for state and local authorities seek-

ing grants. States should develop a prioritized list of requirements in

order to ensure that federal funding is allocated to achieve thebest return on investments.

Congress should ensure that all future appropriations billsfunding emergency response include strict distribution time-

lines. DHS should move the Office of Domestic Preparedness

(ODP) from the Bureau of Border and Transportation Secu-rity to the Office of State and Local Government Coordina-tion in order to consolidate oversight of grants to emergencyresponders within the Office of the Secretary.


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TASK FORCE REPORT

INTRODUCTION

The tragic events of September 11, 2001,brought home to the Amer-ican people the magnitude of the danger posed by terrorism onU.S. soil. Now, in the aftermath of the September 11 attacks, the

United States must assume that terrorists will strike again, pos-sibly using chemical, biological, radiological, or even nuclearmaterials. The unthinkable has become thinkable.

It is impossible to overestimate the need to prepare for this threat.One way of understanding Americas urgent need to prepare is toask the question: if we knew that there was going to be a terror-ist attack sometime in the next five years but did not know what

type of attack it would be, who would carry it out, or where in theUnited States it would occur, what actions would we now take andhow would we allocate our human and financial resources toprepare? The American people must assume that this is thesituation this nation currently faces.

In the almost two years since September 11, the U.S. federal gov-ernment and state and local authorities around the nation have takenunprecedented steps to enhance preparedness on multiple levels.The Department of Homeland Security (DHS) was establishedin March 2002; federal, state, and local expenditures on emergencypreparedness have increased; and personnel in the fields of emer-gency preparedness and response have undergone additionaltraining. Although the United States remains highly vulnerableto terrorist attack, the American public is, in some respects, bet-ter prepared to address some aspects of the terrorist threat now thanit was two years ago.

But the United States has not reached a sufficient national levelof emergency preparedness and remains dangerously unpreparedto handle a catastrophic attack on American soil, particularlyone involving chemical, biological, radiological, or nuclear agents,


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or coordinated high-impact conventional means. To offer a fewexamples:

On average, fire departments across the country have only enoughradios to equip half the firefighters on a shift, and breathingapparatuses for only one-third. Only 10 percent of fire depart-ments in the United States have the personnel and equipmentto respond to a building collapse.

Police departments in cities across the country do not have theprotective gear to safely secure a site following an attack using

weapons of mass destruction (WMD).

Most states public health laboratories still lack basic equipmentand expertise to respond adequately to a chemical or biolog-ical attack. For example, only Iowa and Georgia have thetechnology to test for cyanide, even though the deadly com-pound is readily found both naturally and commercially in 41states. Seventy-five percent of state labs report being overwhelmedby too many testing requests.

Most cities do not have the necessary equipment to determinewhat kind of hazardous materials emergency responders maybe facing.

According to the International City/County ManagementAssociation (ICMA), the average number of full-time paid police

employees for jurisdictions of 250,000 to 499,999 residents todayis 16 percent below the figure for 2001.

Although significant gaps in overall preparedness exist, thereis currently an inadequate process for determining, and thereforeaddressing, Americas most critical needs. Americas leaders havenot yet defined national standards of preparednessthe essential

capabilities that every jurisdiction of a particular size should haveor have immediate access to. It is therefore not yet possible to deter-mine precisely the gaps in each jurisdiction between how preparedit is now and how prepared it needs to be.The absence of a func-tioning methodology to determine national requirements foremergency preparedness constitutes a public policy crisis. Estab-


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lishing national standards that define levels of preparedness is acritical first step toward determining the nature and extent of addi-tional requirements and the human and financial resources need-ed to fulfill them.

National capability standards would, for example, determine theminimum number of people that cities of a certain size should beable to decontaminate, inoculate, quarantine, or treat after achemical, nuclear, biological, or radiological attack. Local juris-dictions would then be allowed flexibility in reaching those lev-els over a fixed period of time. Standards would make it possible

to use funding efficiently to meet identified needs and measurepreparedness levels on a national scale.

In some respects, there is no natural limit to what the UnitedStates could spend on emergency preparedness.The United Statescould spend the entire gross domestic product (GDP) and still beunprepared, or wisely spend a limited amount and end up suffi-ciently prepared. But the nation will risk spending an unlimited

amount on emergency preparedness only if it fails to definerequirements and determine national priorities. Without estab-lishing minimal preparedness levels and equipment and perfor-mance standards that the federal government and state and localcommunities can strive to attain, the United States will have cre-ated an illusion of preparedness based on boutique funding ini-tiatives without being systematically prepared. The American

people will feel safer because they observe a lot of activity, not besafer because the United States has addressed its vulnerabilities.

The United States must rapidly develop a sophisticated require-ments methodology to determine the countrys most criticalneeds and allow for the setting of priorities in readiness trainingand procurement. The United States does not, however, havethe luxury of waiting until an overarching process is created to fund

urgently needed enhancements to current capabilities. In thenearly two years since the September 11 attacks,Congress has dan-gerously delayed the appropriation of funds for emergency respon-ders, federal agencies have been slow getting funds to state andlocal jurisdictions,and states have hampered the efficient dissemina-tion of much-needed federal funds to the local level. The overall


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effectiveness of federal funding has been further diluted by the lackof a process to determine the most critical needs of the emergencyresponder community in order to achieve the greatest return oninvestments.

A dual-track approach is therefore required. While develop-ing a reliable and systematic requirements methodology andstreamlining the appropriations process must be a priority, the Unit-ed States must make its most educated guess based on incompleteinformation about what emergency funds are needed immediately.

The development of a rational strategy would center around

four goals: 1) meeting the nations special security needs by bring-ing the high payoff targets to a high state of readiness; 2) estab-lishing a baseline system for the rest of the nation that allows forthe planning, assessments, and the command, control, and com-munications needed to link the country under a flexible, coher-ent national emergency response system; 3) building up thecapacity of state and local governments to respond to a terrorist

attack; and 4) providing emergency supplemental funding foractual emergencies.

This report does not prejudge how these critical needs shouldbe met, but insists that they must be. It is essential that federal,state, and local authorities come to a consensus on sharing respon-sibilities and make a commitment to meet them. In this process,it will be important to keep in mind that the threat of terrorism,

particularly international terrorism, is a national security threat tothe entire United States.Although state and local jurisdictions mustmaintain primary responsibility for funding basic levels of pub-lic health and safety readiness, the incremental costs of respond-ing to the additional national security threat posed by terrorismare appropriately a federal responsibility.This federal responsibilityis even more critical considering the current budget crisis faced by

most state and local jurisdictions, which makes it more difficultto allocate sufficient resources for emergency response and toaddress other important needs.

Emergency responders come from the fire, police, emergencymedical services (EMS), public health, and other communities,


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and the underlying strength of those general capabilities has a sig-nificant impact on the level of emergency preparedness within agiven jurisdiction. While the focus of this report is on the cost ofenhancing U.S.preparedness for terrorism, it must also be acknowl-edged that many emergency response entities do not have the capa-bility to adequately address basic emergencies. For example,two-thirds of fire departments do not meet the consensus fire ser-vice standard for minimum safe staffing levels. Additionally, pub-lic health systems across the country are dangerously underfundedand lack the capacity to do what is increasingly expected of them.

The building blocks of increased capabilities can only be laidupon a solid foundation.The United States must therefore bothenhance the capabilities of its emergency responders and work toguarantee the overall health of police, fire, emergency medical, andpublic health systems.

Enhancing responder capabilities will require inputs on mul-tiple levels. Providing response equipment is only one aspect of im-

proving overall preparedness. Without appropriate staffing, trainingof personnel, and sustaining equipment and capabilities overtime, new equipment may contribute only marginally to greaterpreparedness.Wherever possible, an all-hazards approach shouldbe followed to ensure that, to the maximum extent possible,resources devoted to responding to a terrorist attack can enhanceunderlying emergency preparedness capabilities for addressing

natural disasters.With whatever capabilities they have, however, Americas local

emergency responders will always be the first to confront a ter-rorist incident and will play the central role in managing itsimmediate consequences.Their efforts in the first minutes and hoursfollowing an attack will be critical to saving lives, reestablishingorder, and preventing mass panic. Like the police, emergency

medical services, and fire professionals who entered the World TradeCenter on September 11, emergency responders will respond to crises with whatever resources they have. The United States has aresponsibility to provide them with the equipment, training, andother necessary resources to do their jobs safely and effectively.


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This report seeks to raise critical questions regarding levels ofemergency preparedness across the United States. The reportoffers a preliminary budget estimate for the emergency expendi-tures that may be necessary over the next five years to meetnational needs, and policy recommendations for moving forward.Emergency preparedness is only one facet of the much largerissue of homeland security. Investments in enhancing emergencyresponder capabilities, therefore, will be lost if they are not inte-grated into a larger national strategy for meeting broader home-land security needs. Additionally, this report does not address the

relative merits of funding homeland security versus other impor-tant national needs.

Although the report raises more questions than it answers, itis intended to foster critical national debate regarding the steps thatmust be taken immediately and in the future to ensure that all juris-dictions within the United States reach a baseline level of capac-ity, as well as to ensure a higher level of readiness for higher-threat

or more vulnerable areas.

DEFINITIONS

The Task Force used the definition of emergency responders fromthe Homeland Security Bill. The bill states: The term emer-gency response providers includes federal, state, and local emer-gency public safety, law enforcement,emergency response, emergencymedical (including hospital emergency facilities), and related per-sonnel, agencies, and authorities. The Task Force took this defi-nition to include the fields of emergency management, police,firefighting, EMS, emergency communications, public health,hospitals, and public utilities.The Task Force also recognized thatprivate-sector assets such as private hospitals and ambulance ser-

vices as well as volunteer organizations such as volunteer fire-fighters must be considered part of the national response system.


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Because the $98.4 billion unmet needs budget covers areas notadequately addressed at current funding levels, the total nec-essary overall expenditure for emergency responders would be$151.4 billion over five years if the United States is currently spend-ing $53 billion, and $201.4 billion if the United States is cur-rently spending $103 billion. Estimated combined federal,state, and local expenditures therefore would need to be as muchas tripled over the next five years to address this unmet need.Covering this funding shortfall using federal funds alonewould require a fivefold increase from the current level of $5.4

billion per year to an annual federal expenditure of $25.1 bil-lion.

As outlined in Appendix A, these additional funds would beused for, among other things, the following purposes:to extend the emergency-911 system nationally to foster

effective emergency data collection and accurate local dis-patch;

to significantly enhance urban search and rescue capabili-ties of major cities and the Federal Emergency ManagementAgency (FEMA) in cases where buildings or other large struc-tures collapse and trap individuals;

to foster interoperable communications systems for emer-gency responders across the country so that those on the frontlines can communicate with each other while at the sceneof an attack;

to enhance public health preparedness by strengthening lab-oratories, disease tracking, communications, and trained pub-lic health professionals for the tasks associated with biological,chemical, and radiological events;

to strengthen emergency operations centers for local pub-lic safety coordination;

to provide protective gear and WMD remediation equip-ment to firefighters;

to support an extensive series of national exercises thatwould allow responders to continually learn and improveon effective response techniques;


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to enhance emergency agricultural and veterinary capabil-ities for effective response to national food supply attack;

to help develop surge capacity in the nations hospitals andto help them better prepare for a WMD attack; and

to enhance capacity of emergency medical technicians,paramedics, and others to respond to mass casualty events.

The Task Force notes that its budget estimates are very pre-liminary and cannot be more precise in the absence of a sys-tematic national requirements methodology and that the

development of such a methodology is badly needed.The Task Force further notes that not all emergency respon-

der needs must necessarily be met with federal funds, andthat it might be possible to significantly reduce estimatedcosts through enhancing mutual aid agreements between juris-dictions, and by other efforts to foster the most efficient useof resources possible. Nevertheless, the national security nature

of the terrorist threat and the current budget crisis in most statesmake a strong federal contribution both appropriate andnecessary.

RECOMMENDATIONS

1. Define and Provide for Minimum Essential Capabilities.The Task Force found that there is no systematic national stan-dard that defines the essential minimum capabilities for emergencyresponders that every jurisdiction of a given population sizeshould possess or be able to access. Because of this, there are cur-rently no comprehensive, systematic, and consolidated principlesor measures against which the degree and quality of preparedness

can be tracked nationwide. Current efforts to develop such stan-dards are inconsistent and dispersed among various governmentagencies and nongovernmental organizations. Additionally, exist-ing standards for minimum capabilities for emergency respondersare a patchwork with many missing pieces that lacks systematicintegration, are insufficient to address many major challenges


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including that of catastrophic terrorism involving WMDandare not harmonized across the many types of emergencyresponders. While existing standards provide a useful startingpoint, they do not constitute national standards for emergencyresponse training and preparedness, as called for in the Nation-al Strategy for Homeland Security. (A selection from this docu-ment is included in Appendix B.) At the end of five years of federalfunding, therefore, some metropolitan areas may still lack funda-mental emergency responder capabilities.

Congress should require DHS and HHS to work with otherfederal agencies, state and local emergency responder agenciesand officials, and standard-setting bodies from the emergencyresponder community to establish clearly defined standards andguidelines for federal, state, and local government emergencypreparedness and response in such areas as training, interop-erable communication systems, and response equipment.Thesestandards must be sufficiently flexible to allow local officialsto set priorities based on their needs, provided that they reachnationally determined preparedness levels within a fixed timeperiod. These capabilities must be measurable and subject tofederal audit.

Congress should require that the FY05 budget request forDHS be accompanied by a minimum essential emergency

responder capability standard for WMD- and terrorism-related disaster equipment and training per 100,000 personsin a metropolitan region, and by separate standards for ruralareas. Each recipient state and metropolitan area should thenbe required to submit a plan detailing how it intends to achievethat standard, to incorporate it into all appropriate trainingprograms, and to regularly test its effectiveness.

National performance standards could be implemented throughan incentive grant system making federal funding condition-al and available to those localities that adopt federally approvedstandards of preparedness.


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2. Develop Requirements Methodology.National capability standards for levels of preparedness mustdrive an emergency preparedness requirements process. Thisprocess must evolve into one similar to that currently used by theU.S. military.Threats must be identified, capabilities for address-ing threats determined, and requirements generated for establishingor otherwise gaining access to necessary capabilities.The Task Forcefound that the administration and Congress were funding emer-gency preparedness without any agreement on a methodology todetermine how much is enough or what the requirements are. It

is therefore extremely difficult, if not impossible, to measure howwell prepared the United States is.

Congress should include in the FY04 appropriations for DHSand HHS a provision calling on each agency to accompany theFY05 budget request with a detailed methodology for deter-mining the national requirements for emergency responder capa-bility and assistance.

Congress should require that DHS and HHS submit a coor-dinated plan for meeting national preparedness standards bythe end of FY07.

Congress should require DHS and HHS to report annually onthe status of emergency preparedness across the United States.This report should indicate the levels of federal, state, and local

expenditures for emergency preparedness, evaluate how effec-tively that funding is being used, and assess the status of pre-paredness in each state based on national preparedness standards.

3. Accept Necessary Burden-Sharing.The Task Force found that there were no accepted national guide-lines for determining the nature of burden-sharing between the

federal government and state and local jurisdictions.Although stateand local jurisdictions should maintain primary responsibility forfunding normal levels of public health and safety readiness, the TaskForce found that the federal government should be responsible forproviding the funds necessary to cover the incremental costs of achiev-


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ing essential standards in responding to the additional national secu-rity threat posed by terrorism. In some outstanding cases, feder-al funds may be required to enhance state and local emergencyresponder infrastructure that has been starved of resources if thedeterioration of capabilities is such that it poses a threat to nation-al security and state and local resources are not reasonably suffi-cient for addressing this shortfall.

4. Guarantee Sustained Multiyear Funding.The Task Force found that many state and local governments are

unwilling or unable to accept federal funding for programs thatwill generate long-term costs in the absence of guarantees that thefederal government will make funds available for sustaining suchprograms. Stable and long-term funding is critical for encourag-ing state and local governments to develop the necessary emer-gency response capabilities and, most critically, to sustain them overtime.

Congress should accompany all authorizations for emergencyresponder assistance grants in FY04 and thereafter with bud-get authority for sustaining those grants through the follow-ing two fiscal years.

5. Refocus Funding Priorities.The Task Force found existing systems for determining the dis-tribution of appropriated funds to states to be badly in need of reform.The federal government currently determines levels for emergencypreparedness funding to states primarily on a formula that guar-antees minimum funding levels to all states and then determinesadditional funding based on each states population. All citizensof the United States deserve a base level of protection regardlessof where they live. Nevertheless, the state and population-driven

approach has led to highly uneven funding outcomes.Wyoming,for example, receives $10.00 per capita from DHS for emergencypreparedness while New York State receives only $1.40 per capi-ta. While this approach may have political appeal, it unneces-sarily diverts funding from areas of highest priority. In addition,


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decisions by state officials regarding the allocation of funds in theirstates have not sufficiently taken into account the multitude ofimportant factors.

Congress should establish a system for allocating scarceresources based less on dividing the spoils and more on address-ing identified threats and vulnerabilities. To do this, the fed-eral government should consider such factors as population,population density, vulnerability assessment, and presence ofcritical infrastructure within each state. State governments

should be required to use the same criteria for distributing fundswithin their states.

Congress should also require each state receiving federal emer-gency preparedness funds to provide an analysis based on thesame criteria to justify the distribution of funds in that state.

6. Rationalize Congressional Oversight.

The Task Force found that the proliferation of committees andsubcommittees in Congress makes it hard to devise a coherent home-land security policy and a focused homeland defense system.Congress needs to have a lead committee, or an effective joint com-mittee, to shape overall policy. Otherwise the system is likely tobe fragmented and plagued with irrelevant spending.

The U.S. House of Representatives should transform the

House Select Committee on Homeland Security into a stand-ing committee and give it a formal, leading role in the autho-rization of all emergency responder expenditures in order tostreamline the federal budgetary process.

The U.S. Senate should consolidate emergency preparednessand response oversight in the Senate Government Affairs

Committee.

7. Accelerate Delivery of Assistance.The Task Force found that many metropolitan areas and states hadactually received and spent only a small portion of the funds foremergency responders that have been appropriated by Congress


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since September 11.The current inflexible structure of homelandsecurity funding,along with shifting federal requirements and increasedamounts of paperwork, places unnecessary burdens on state andlocal governments as they attempt to provide badly needed fundsto emergency responders. While a balance should be maintainedbetween the need for the rapid allocation of emergency pre-paredness funds and the maintenance of appropriate oversight toensure that such funds are well spent, the current danger is too greatto allow for business as usual. According to the National Emer-gency Managers Association, appropriation cycles have been

erratic causing extreme burdens on state and local governmentsto continue preparedness activities when there is no federal fund-ing, and then forcing them to thoughtfully and strategically applyseveral years of federal funds and millions of dollars at one time(NEMA,State Spending and Homeland Security Funds, April2, 2003). As a first step toward addressing this problem,Congressinstructed the DHS Office of Domestic Preparedness in the

FY03 consolidated appropriations measure (P.L. 108-7) to distributegrant funds to states within 60 days of the enactment of the billand required states to distribute at least 80 percent of those fundsto localities within 45 days of receipt.

Congress should ensure that all future appropriations billsfunding emergency response include strict distribution time-frames as exemplified by the FY03 consolidated appropriationsmeasure.

Congress should require states to submit data regarding the speedof distribution of the federal funds for emergency respondersappropriated to states.

Congress should grant DHS the authority to allow statesgreater flexibility in using past homeland security funding. As

a first step in this direction,Congress should authorize greaterflexibility in the federal guidelines laid out in the FY03Omnibus Appropriations Bill for the percentages of fundsthat can be used for various emergency response activities(e.g., 70 percent for equipment, 18 percent for exercises, 7


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percent for planning, 5 percent for training) to make it possi-ble for states to better allocate resources according to their mosturgent needs. This authority should be granted on a case bycase basis by means of a waiver from the secretary of theDepartment of Homeland Security.

8. Fix Funding Mechanisms.Many states have been mandated to develop more than five sep-arate homeland security plans. While the information requestedby each homeland security plan is similar, states and communi-

ties are often required to reinvent the wheel from one emergencyplan to the next.

DHS should move the Office of Domestic Preparedness fromthe Bureau of Border and Transportation Security to theOffice of State and Local Government Coordination in orderto consolidate oversight of grants to emergency responderswithin the Office of the Secretary.

States should develop a prioritized list of requirements inorder to ensure that federal funding is allocated to achieve thebest return on investments.

Congress should require DHS to work with other federalagencies to streamline homeland security grant programs in away that reduces unnecessary duplication and establishes coor-

dinated one-stop shopping for state and local authorities seek-ing grant funds.Efforts to streamline the grants process shouldnot, however, be used as a justification for eliminating exist-ing block grant programs that support day-to-day operationsof emergency responder entities. In many cases, such grants mustbe expanded.

Congress should create an interagency committee to eliminateduplication in homeland security grants requirements andsimplify the application process for federal grants.


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9. Disseminate Best Practices.Although emergency responders have consistently identified as ahigh priority the need to systematically share best practices andlessons learned, the Task Force found insufficient national coor-dination of efforts to systematically capture and disseminate bestpractices for emergency responders. While various federal agen-cies, professional associations, and educational institutions havebegun initiatives to develop and promulgate best practices and lessonslearned, these disparate efforts generally are narrow and unsyste-matic and have not sufficiently reached potential beneficiaries.Such

information-sharing could be one of the most effective ways to extractthe greatest amount of preparedness from a finite resource pool.Once centralized and catalogued, such data will allow all emer-gency responders to learn from past experiences and improve thequality of their efforts, thereby assuring taxpayers the maximumreturn on their investment in homeland security. Access to this re-source will provide the analytical foundation for future decisions

regarding priorities, planning, training, and equipment. Congress should establish within DHS a National Institute

for Best Practices in Emergency Preparedness to work with stateand local governments, emergency preparedness professional asso-ciations,and other partners to establish and promote a universalbest practices/lessons learned knowledge base.The National Insti-tute should establish a website for emergency preparednessinformation and should coordinate closely with HHS to ensurethat best practices for responding to biological attack aresufficiently incorporated into the knowledge base.

10. Enhance Coordination and Planning.The Task Force found that although effective coordination andplanning are among the most important elements of preparedness,

jurisdictions across the country are neither sufficiently coordinatingemergency response disciplines within their jurisdictions nor ade-quately reaching across jurisdictional lines to coordinate theirefforts with neighboring communities. Although Title VI of theStafford Act (P.L. 106-390) authorizes the director of FEMA to


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coordinate federal and state emergency preparedness plans, thisauthority has not been applied sufficiently to ensure adequate lev-els of coordination and planning between and among federal, state,and local jurisdictions. In addition, state and local emergencymanagement agencies lack the resources to develop and maintaincritical emergency management capabilities. More also needs tobe done to encourage and facilitate mutual aid and other cross- jurisdictional agreements that pool resources, minimize costs,and enhance national preparedness.

DHS should require that all states and territories submitstatewide mutual assistance plans, including cross-border plansfor all cities and counties adjoining state or territorial borders.Reference to such plans should be required in all homeland secu-rity grant applications for federal funding. Wherever possible,grants should be structured to reward the pooling of assets acrossjurisdictional lines.

DHS should develop a comprehensive national program forexercises that coordinates exercise activities involving federalagencies, state and local governments, and representativesfrom appropriate private sector entities including hospitals, themedia, telecommunications providers, and others.These exer-cises should prepare emergency responders for all types ofhazards, with a specific focus on WMD detection and response.

When necessary, funds should be provided to ensure thatexercises do not interfere with the day-to-day activities ofemergency responders.

Congress should work with DHS to expand the capacity ofexisting training facilities involved in the National DomesticPreparedness Consortium and to identify any new training facil-ities for emergency responders that may be required.


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CONCLUSION

The terrible events of September 11 have shown the American peo-

ple how vulnerable they are.Because attacks on that scale had neverbefore been carried out on U.S. soil, the United States and the Amer-ican people were caught underprotected and unaware of the mag-nitude of the threat facing them.In the wake of September 11, ignoranceof the nature of the threator of what the United States must doto prepare for future attackscan no longer explain Americas con-tinuing failure to allocate sufficient resources to preparing local emer-

gency responders. It would be a terrible tragedy indeed if it tookanother catastrophic attack to drive that point home.


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TASK FORCE MEMBERS

CHARLES G. BOYD is currently Chief Executive Officer andPresident of Business Executives for National Security (BENS).Before retiring from the U.S. Air Force in August 1995,General Boyd served as Deputy Commander in Chief for theU.S. European Command.

RICHARD A. CLARKE is Senior Adviser to the Council on ForeignRelations and is currently Chairman of Good Harbor Consult-ing, LLC. Previously, Mr. Clarke served under the last threepresidents as a senior White House adviser.

WILLIAMJ.CROWE is Senior Adviser at Global Options.Previously,Admiral Crowe served as Chairman of the Joint Chiefs of Staff

under President Ronald Reagan.

MARGARET A.HAMBURG is Vice President for Biological Weaponsat the Nuclear Threat Initiative.Before coming to NTI,Dr.Ham-burg was Assistant Secretary for Planning and Evaluation at theU.S. Department of Health and Human Services.

JAMES KALLSTROM is Senior Executive Vice President at MBNAAmerica Bank.After September 11, 2001,Mr. Kallstrom took aleave of absence from MBNA America and served as Directorof the Office of Public Security for the State of New York.

JOSHUA LEDERBERG is a Nobel Laureate and currently serves asPresident Emeritus and Sackler Foundation Scholar at Rocke-feller University.

DONALD B. MARRON is Chairman of UBS America as well as ofLight-year Capital.Previously,he served for twenty years as Chair-man and Chief Executive Officer of Paine Webber Group,Inc.,until its merger with UBS in 2000.

Note:Task Force members participate in their individual and not institutional capacity.


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JAMIE F. METZL, Director of the Independent Task Force onEmergency Responders, is Senior Fellow and Coordinator forHomeland Security Programs at the Council on Foreign Rela-tions. He has served on the National Security Council staff, inthe Department of State, and as Deputy Staff Director of theSenate Foreign Relations Committee.

PHILIP ODEEN is former Chairman of TRW Inc. Previously,Mr.Odeen was President of BDM International,Inc.,and a ViceChairman at Coopers & Lybrand LLP.

NORMAN J. ORNSTEIN is a Resident Scholar at the AmericanEnterprise Institute, and Senior Counselor to the Continuity ofGovernment Commission.

DENNIS REIMERis Director of the National Memorial Institute forthe Prevention of Terrorism in Oklahoma City.Prior to that,Gen-eral Reimer served in the U. S. Army in a variety of joint and

combined assignments, retiring after 37 years as the Chief of Staffof the U.S. Army in 1999.

WARREN B.RUDMAN is Chairman of the Independent Task Forceon Emergency Responders.He is currently a Partner in the inter-national law firm Paul, Weiss, Rifkind, Wharton andGarrison and was Chairman of the Presidents Foreign Intelli-

gence Advisory Board under President Clinton. Previously, herepresented New Hampshire in the U.S.Senate from 1980 to 1992.

GEORGE P. SHULTZ is the Thomas W. and Susan B. Ford Distin-guished Fellow at the Hoover Institution. He has served asSecretary of State, Secretary of the Treasury, Secretary of Labor,and Director of the Office of Management and Budget.

ANNE-MARIE SLAUGHTER is Dean of the Woodrow WilsonSchool of Public and International Affairs at Princeton University.Prior to her appointment at Princeton, she was the J. SinclairArmstrong Professor of International, Foreign and Compara-tive Law at Harvard Law School.


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DAVID STERN has been Commissioner of the National BasketballAssociation since 1984. He joined the NBA in 1978 as GeneralCounsel and became the leagues Executive Vice President in 1980.

PAULTAGLIABUE is Commissioner of the National Football League.Prior to becoming NFL Commissioner in 1990,he served as ChiefLegal Counsel to his predecessor.

HAROLD E. VARMUS is President and Chief Executive Officer ofMemorial Sloan-Kettering Cancer Center. Previously, he served

as Director of the National Institutes of Health.JOHNW.VESSEYis Chairman of the Council on Foreign Relations

Center for Preventive Action and previously served as Chairmanof the Joint Chiefs of Staff as well as Vice Chief of Staff of theU.S. Army.

WILLIAM H. WEBSTER is a Partner at the law firm of Milbank,

Tweed, Hadley & McCloy. He previously served as Director ofthe Central Intelligence Agency from 1987 to 1991 and Directorof the Federal Bureau of Investigation from 1978 to 1987.

STEVEN WEINBERG is Director of the Theory Group of theUniversity of Texas. He is a Nobel Laureate in Physics, and arecipient of the National Medal of Science.

MARYJOWHITE is Chair of the 192-lawyer litigation group ofDebevoise & Plimpton.She also served as U.S.Attorney for theSouthern District of New York from 1993 until 2002.


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APPENDIXES


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APPENDIX A

NATIONAL ESTIMATES FORHOMELAND SECURITYEMERGENCYRESPONDERFUNDING

(Prepared in cooperation with the Concord Coalition and theCenter for Strategic and Budgetary Assessments)

A five-year estimate of total federal, state, territorial, and localgovernment homeland security funding for emergency responders,beginning in FY04 falls in the range of $53 to $103 billion.1 Basedon the data made available to the Councils Independent Task Forceon Emergency Responders by emergency responder profession-al associations and others, the preliminary estimate for addition-al funding required to cover potential emergency responder needs

is approximately $98.4 billion over five years, or $19.7 billion peryear.2This estimate does not include overtime costs for trainingas well as needs in several critical mission areas, which could notbe determined by the Task Force. Most significantly, this figuredoes not include the needs of police forces across the UnitedStates because national police organizations were unable to pro-vide this data.These unknowns might raise costs considerably. On

the other hand, the potential needs discussed here might bereduced significantly through enhancing mutual aid agreementsbetween jurisdictions and other efforts to foster the most efficientuse of resources possible.

The study addressed emergency response functions only anddid not address other homeland security mission areas such as intel-

1This represents a federal contribution based on the FY04 budget request and an esti-mate of FY04 state and local spending derived from The Homeland Security Market,a research report by Deloitte Consulting and Aviation Week.

2This estimate is based on FY04 dollars and does not account for inflation or sup-plemental appropriations. This analysis did not consider requirements for emergencyresponse to a nuclear attack or large-scale infectious-disease outbreak which mightdemand significantly more response resources.


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ligence and early warning, critical infrastructure protection, anddomestic counterterrorism.

ESTIMATED CURRENT LEVEL OFFUNDING(PROJECTED FY04FY08)

Federal Spending$27 billionFederal homeland security funding for emergency responseincludes assistance to state, territorial, and local community

responders; efforts to enhance the capabilities of volunteer groupsand elements of the private sector; and support for federal responseassets.

Federal spending was computed using the administrationsFY04 budget request. In that request, funding for state and localresponders comes primarily from the Department of HomelandSecurity, including $3 billion allocated to the Office of Domes-

tic Preparedness (ODP).3 Another $1.5 billion contribution comesout of the Department of Health and Human Services proposedbudget.4Together these programs total $4.5 billion.The FY04 pro-posal consolidates virtually all assistance for state and local emer-gency response functions in DHS and HHS.5

In addition, the federal government also funds various nation-al response teams from several federal agencies that might be crit-

ical responders to a terrorist incident. Some examples are theDepartment of Defense Weapons of Mass Destruction Civil

3 Proposed ODP Grants total $3.5 billion. $500 million of these grants, however, relateto state and local efforts to prevent terrorism and were not included as emergencyresponse funding.

4This includes $940 million for state and local preparedness from the budget of the

Centers for Disease Control and Prevention and $518 million for hospital preparednessand $19 million for emergency medical services in case of a bioterrorism attack.See U.S.Department of Health and Human Services, FY2004 Budget in Brief, pp. 1617, 27.

5 For example, this analysis did not include proposed funding for the Department ofJustices Community Oriented Policing Services ($180 million) and Justice Assistance ($520million) grant programs because although some of these funds may contribute tohomeland security activities they are not primarily intended to address emergencyresponse functions.


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Support Teams and the FBI Crisis Response Units. Also, sever-al federal agencies have programs that assist volunteer activitiesthat could aid local responders.The FY04 budget proposal requestsapproximately $0.9 billion for these activities.6

In total, estimated federal support for emergency responsebased on the FY04 budget request therefore amounts to about $5.4billion a year or $27 billion over five years.

State and Local Government Spending$26 to $76 billionFunding at the state and local level is more difficult to determine

than is federal spending.The best available data suggests that totalFY04 spending on emergency responders by state and local gov-ernments might be around $5.2 to $15.2 billion.7Multiplied overfive years, estimated spending falls in the $26 to $76 billion range.

This report does not address private sector spending on emer-gency response functions, which could be substantial and deservesfurther scrutiny.8

6These are rough estimates based on a review of the Budget of the United States Gov-ernment, Fiscal Year 2004Appendix [http://www.whitehouse.gov/omb/budget/fy2004/app_down.html] and Fiscal Year 2004 Budget of the United States, Table S-5,note 1, p. 315.

7Data derived from The Homeland Security Market, a research report by Deloitte

Consulting and Aviation Week. The report was written in 2002 and projected a rangefor FY2003 emergency responder spending by state and local governments at $4.9 bil-lion to $14.9 billion.The Homeland Security Solutions, added together for the actiongroup estimate, were the following: health management, communications, integration,inventory management, response management,and training and education.Those num-bers were then inflated by the CPI estimate for 2003 in the Presidents Budget (2.2%).

8 Bart Hobijn, What Will Homeland Security Cost?Economic Policy Review(Novem-ber 2002, p. 25), estimates total private sector spending at $10 billion per year. TheDeloitte report estimates total private sector spending at between $45.9 billion to $76.5billion per year.Private sector investments primarily fall in the areas of critical infrastructure

protection, mostly for cyber and physical security and business continuity and disasterrecovery programs, although a specific accounting of firm investment is very difficult todetermine. Therefore, while it seems that only a small percentage of private sectorhomeland security funding specifically relates to emergency responder activities, that cat-egory does include some important contributions to the national emergency response sys-tem. Volunteer and private ambulance services (a $4 billion industry) and funding bynongovernmental organizations (such as the Red Cross, which spends about $250 mil-lion on disaster response) would be included in this category.


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Current Baseline for Total Federal/State/Local/Government Spending

A five-year national emergency responder spending baseline fol-lowing current funding levels would be about $53 billion to $103billion, an average of $10.6 billion to $20.6 billion a year.9

ESTIMATE OFPOTENTIAL ADDITIONAL NEEDS

This list of potential needs includes equipment, training and sus-

tainment, and selected personnel costs.The list is not comprehensivebut is based on the best information made available. Dollaramounts cover the five fiscal years beginning in FY04.

Fire Services$36.8 billion10

This includes fire, hazardous material, and associated emergencymedical services tasks,equipment, and training associated with respond-

ing to a chemical/biological or related incident.

9 The House of Representatives passed the Department of Homeland SecurityAppropriations Act (HR 2555) on June 24, 2003, which increased proposed expendituresfor emergency responders by approximately $700 million over the administrations bud-get proposal for FY04. If this act is not changed and becomes law, an additional $3.5 bil-lion would be added to estimated five-year federal expenditures beginning in FY04.Assuming that these federal funds would be matched 30 percent by state and localfunding, a total expenditure of $4.6 billion would be added to our estimate. This would

increase these totals to $57.6 billion and $107.6 billion respectively.10 Data drawn from the National Fire Protection Association (NFPA) studyEstimatedCosts to U.S. Local Fire Departments.This document estimated HAZMAT and EMStasks associated with chemical/biological attacks or related incidents at $34.2 billion to$38.5 billion initially, with $6.4 billion to $8.9 billion in sustainment costs.The study notedthat the estimate could be reduced by two-thirds if it were determined that first respon-ders currently trained to the operational level also have the basic equipment they need.However, the Task Force found this estimate to be unrealistic based on current capabil-ity levels and therefore determined that a one-third reduction would be more appropri-ate. Based on this more conservative approach, initial needs were estimated at $22.8 billion

with an additional $17.2 billion for sustainment over the five years. The action group alsoassumed that federal funds would be used to offset some of these potential requirementsand that state and local communities would match 30 percent of federal funds.The FY04budget proposal provides $500 million per year for Fire Grants, thus our total federal off-set was $650 million per year.The Estimated Costs to U.S. Local Fire Departmentsalsoincluded an estimate of the cost for additional fire service personnel at $7.6 billion to $8.5billion per year.This estimate did not include federal or state fire services. Regional exer-cise costs were excluded as well because they were computed under a separate category.


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Urban Search and Rescue$15.2 billion11

This figure includes the cost of preparing fire departments for tech-nical rescue and EMS tasks associated with the structural collapseof a building with 50 occupants and the cost of enhancing the capac-ity of FEMAs national search and rescue teams.

Hospital Preparedness$29.6 billion12

This includes enhanced capabilities for communications, per-sonnel, protective equipment, mental health services, decontam-ination facilities, and training for U.S. hospitals.

Public Health$6.7 billion13

This includes enhanced capabilities at the Centers for Disease Con-trol and Prevention (CDC), health professions recruiting andtraining programs,epidemiologist services, upgraded state and localpublic health department capacities to respond to terrorism, andFDA programs such as food safety and bioterrorism response.

11The action group found that although urban search and rescue capabilities are all-hazard, they have become central in the response to major terrorist attacks. The NFPA

estimated a $3.6 billion to $3.8 billion initial cost and a $2.6 billion to $3 billion annualsustainment cost and the action group estimate was calculated using the middle ofthose ranges. The FEMA teams needs were estimated to be around $56 million a yearfor effective training and mobilization exercise development and for equipment main-tenance.

12 Data derived from the American Hospital Association (AHA) reportHospital Resourcesfor Disaster Readiness.This placed total requirements at $11.4 billion, which includedabout $2.8 billion in annual costs and $8.6 billion in equipment, programs, and facilities.Over five years, assuming 30 percent sustainment costs, the program would cost about$33 billion. In the FY04 proposed budget, grants from DHS for medical services amount

to about $0.5 billion. Assuming 30 percent matching funds from state and local governments,the cost of these potential needs can be reduced by about $3.3 billion.

13These figures are derived from estimates provided by the Trust for AmericasHealth. These numbers were designed to improve funding for public health infrastruc-ture by doubling funding over a five-year period. $210 million was deducted from the Trustsfigures to account for infectious disease control funding within the CDC. Hospital pre-paredness activities were not included in this estimate because they were included underthe hospital category using the AHA numbers.


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Animal/Agricultural Emergency Response$2.1 billion19

This includes funds for developing regional and state teams torespond to emergencies and enhancing laboratory supportcapacity.

Emergency Medical Services Systems$1.4 billion20

This includes improving the state and local EMS infrastructure,including coordination,planning, mutual aid, physician resources,workforce development, training, and the establishment of trau-ma systems.

Emergency Management Planning and Coordination$1 billion21

This includes enhancing basic emergency coordination and plan-ning capabilities at the state and local level.

Emergency Response Regional Exercises$0.3 billion22

This includes funding annual regional exercises.

19This includes $163 million for modernization of the Ames, Iowa, Animal DiseaseResearch and Diagnostics Laboratories; $250 million for the Plum Island Foreign Ani-mal Diseases Laboratories; $85 million for additional startup costs for the National

Animal Health Laboratory Network; and $200 million for emergency preparedness andresponse programs per year.20 Data provided by the National Association of Emergency Medical Technicians. They

placed total additional needs at $450 million. Included in the figures were $28 millionfor equipment and $26 million for training (within the exercises category). These itemswere not included in the Task Force estimate since they are covered under the fire ser-vice category. This made total needs cited $396 million. $220 million are one-time costswith the assumed 30 percent sustainment costs totaling $484 million over five years. Anannual cost of $176 million was also part of the total figure. All costs combined broughtthe five-year total to $1.4 billion.

21 Emergency management planning was not listed as a separate category in the FY04budget proposal. In FY03, Emergency Management Planning Grants totaled about $165million. The total responder grant program in DHS declined slightly overall (proposedbudget for FY04 is about $3.5 billion, down from the FY03 request of $3.6 billion).Thus,even without emergency management being listed as separate category it can be assumedfunding for this area in FY04 will be similar to the previous year. Given the data fromthe NEMA Draft Report on Local Emergency Management, the potential need remain-ing would be about $200 million per year.


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SUMMARYCOST ESTIMATE OFPOTENTIAL NEEDS

These potential additional responder needs total $113.6 billion.How-

ever, state and local emergency responder services are eligible forstate and local terrorism preparedness grants from the Office ofDomestic Preparedness (ODP).23These grants would offset thepotential needs estimate by $15.2 billion over five years, bringingthe total down to $98.4 billion.24 Cost accountings included arein no sense comprehensive or exact, nor is the list of need areasexclusive.

NEEDS NOT DETERMINED

Data were not available to adequately address the following:

Police. A national estimate was not available. For emergencyresponse, however, it is known that many police departmentslack adequate detection and personal protective equipment and train-ing for responding to chemical, biological,or radiological incidents.

Volunteer Groups. No data was available on unfunded require-ments for government support to volunteer groups such as Com-munity Emergency Response Teams.

22 ODP grants for emergency response functions in the FY04 budget request totaled$2.5 billion. Of this total, $165 million for emergency management planning and $500million for fire services were accounted for in computing the additional requirements inthose specific areas. To account for how the remaining $1.8 billion per year of grant fund-ing would help meet the estimate of additional needs, we assumed that all these fundswould be used to meet the unfunded requirements in this study and that state and localgovernments would make a 30 percent matching contribution to these grants.Thus, the

total additional needs estimated might be reduced by as much as about $3.04 billion peryear or $15.2 billion over five years.

23These grants total $2.5 billion a year. From that total we subtracted the $165 mil-lion already included as an offset in the emergency management planning category. Wethen assumed a 30 percent state match for an offset total of $3.04 billion a year. Fire grantstotaling $500 million are not included in the $2.5 billion.

24 If HR 2555 is not changed and becomes law, this figure would be reduced to $93.8billion.


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Federal Response Teams. This report did not assess the adequa-cy of funding for federal response teams.

Geographic Information Services.This report did not address thenational need for critical information services that might berequired by first responders. However, the September 11 attacksdemonstrated this to be a critical need.

Skilled Support Personnel.The September 11 attacks also demon-strated that skilled private sector workers (welders, drivers,plumbers, etc.) may be needed as part of an emergency response.

The World Trade Center site required 10,000 workers per day dur-ing the initial search and cleanup period. These workers requirepersonal protective equipment and hazardous material training.

Public Utilities and Public Transportation.This study did not obtainsufficient data to determine if there are significant needs in thisarea. For example, it is unclear whether there is adequate personal

protective equipment for public utility and transportation personnelwho would be required to respond to a terrorist incident.

Overtime for Training. Estimates do not include the cost of pro-viding overtime pay for training or hiring replacement personnelwhile training personnel are away from the job. This report alsodoes not include overtime requirements for responding to high-er terrorist threat alert levels.

METHODOLOGY

The five-year current spending estimate was determined usingthe federal governments FY04 budget request and estimatesof state and local government spending on emergency responsefunctions. These numbers were then projected at a steadystate over five years with no accounting for inflation.


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Potential additional needs were determined by using esti-mates provided to the Task Force by expert organizations.25 Fromthese submissions it was determined which needs fell pri-marily in the category of emergency response.

Potential needs for general public safety or all-hazards emer-gency response were not included in the estimates.26

The analysis did not include other homeland security tasks (e.g.,intelligence and early warning).

The analysis did not consider the additional needs of respond-ing adequately to a nuclear attack or a major infectious diseaseoutbreak.

Potential needs were calculated over a five-year period. Esti-mated annual costs were multiplied by five. Estimates deter-mined to represent one-time procurement costs were addedseparately as costs over one year. Where sustainment data for

these costs were provided, they were added to the estimate. Ifno sustainment costs were provided, they were computed to be30 percent of the initial cost of the program over four additionalyears.

If federal funds were determined to be provided in a need cat-egory, the amount of the current grant and 30 percent state match-ing funds of the current grant were assumed and multiplied by

five, then subtracted from the potential need total.

For those federal grants that were not identifiable within a spe-cific category, 30 percent matching state funds were added tothe dollar amount of the grant and multiplied by five years.That

25The one exception to this was the interoperable communications number which wasextrapolated from the cost of the CAPWIN program.

26The exceptions were in the areas of interoperable communications, emergency 911systems, and urban search and rescue. These shortcomings were thought to be so sig-nificant and important to responding to terrorist attacks, as well as vital to any baselinecapabilities emergency responders would need to respond to disasters, that the action groupdetermined that they should be included as potential needs even though they are all-hazards capabilities.


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APPENDIXB

EXCERPT FROM THENATIONALSTRATEGY FORHOMELANDSECURITY

Section Emergency Preparedness and Response,pages 4145, July 16, 2002

We must prepare to minimize the damage and recover from anyfuture terrorist attacks that may occur despite our best efforts atprevention. Past experience has shown that preparedness effortsare key to providing an effective response to major terrorist inci-dents and natural disasters.Therefore, we need a comprehensivenational system to bring together and command all necessary

response assets quickly and effectively. We must equip, train, andexercise many different response units to mobilize for any emer-gency without warning. Under the Presidents proposal, theDepartment of Homeland Security, building on the strong foun-dation already laid by the Federal Emergency ManagementAgency (FEMA), will lead our national efforts to create andemploy a system that will improve our response to all disasters, bothman-made and natural.

Many pieces of this national emergency response system are alreadyin place. Americas first line of defense in the aftermath of any ter-rorist attack is its first responder communitypolice officers,firefighters, emergency medical providers, public works person-nel, and emergency management officials. Nearly three million stateand local first responders regularly put their lives on the line to savethe lives of others and make our country safer. These individuals

include specially trained hazardous materials teams, collapsesearch and rescue units, bomb squads, and tactical units.

In a serious emergency, the federal government augments stateand local response efforts. FEMA,which under the Presidents pro-posal will be a key component of the Department of Homeland


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Security, provides funding and command and control support. Anumber of important specialized federal emergency responseassets that are housed in various departments would also fallunder the Secretary of Homeland Securitys authority for respond-ing to a major terrorist attack. Because response efforts to allmajor incidents entail the same basic elements, it is essential thatfederal response capabilities for both terrorist attacks and natur-al disasters remain in the same organization. This would ensurethe most efficient provision of federal support to local respondersby preventing the proliferation of duplicative boutique response

entities.Americans respond with great skill and courage to emergen-

cies.There are, however, too many seams in our current responseplans and capabilities.Today, at least five different plansthe Fed-eral Response Plan, the National Contingency Plan, the Inter-agency Domestic Terrorism Concept of Operations Plan, theFederal Radiological Emergency Response Plan, and a nascent

bioterrorism response plangovern the federal governmentsresponse.These plans and the governments overarching policy forcounterterrorism are based on a distinction between crisis man-agement and consequence management. In addition, differentorganizations at different levels of the government have put in placedifferent incident management systems and communicationsequipment. All too often, these systems and equipment do not func-

tion together well enough.We will enhance our capabilities for responding to a terrorist

attack all across the country. Today, many geographic areas havelittle or no capability to respond to a terrorist attack using weaponsof mass destruction. Even the best prepared states and localitiesdo not possess adequate resources to respond to the full range ofterrorist threats we face. Many do not yet have in place mutual aid

agreements to facilitate cooperation with their neighbors in timeof emergency. Until recently, federal support for domestic prepared-ness efforts has been relatively small and disorganized, with eightdifferent departments and agencies providing money in a tangledweb of grant programs.


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MAJORINITIATIVES

Integrate separate federal response plans into a single all-discipline

incident management plan. Under the Presidents proposal, theDepartment of Homeland Security will consolidate existing fed-eral government emergency response plans into one genuinely all-discipline, all-hazard planthe Federal Incident ManagementPlanand thereby eliminate the crisis management and con-sequ

CFR - Responders TF

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