Learning from 9/11: Understanding the Collapse of the World Trade Center:Ralph M. Hall

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PREPARED STATEMENT OF REPRESENTATIVE RALPH M. HALL
I want to join Chairman Boehlert in welcoming everyone to this afternoon's hearing.

Today's hearing will focus on the aftermath of the cowardly attacks on the World Trade Center and the Pentagon, which will rank as one of the great tragedies in American history. As with any tragedy we try to find some shred of consolation by looking to lessons that can help protect us against possible future tragedies. We need to carefully examine our emergency preparedness, evacuation procedures, and emergency response as well as the structural integrity of tall buildings as we sift through the events of September 11 in our search for meaning.

Today we will focus on the procedures and efforts to collect data at the World Trade Center site. I want to learn how we about the problems encountered by the structural assessment team and what changes need to be made to our procedures. I understand that we need to improve the coordination between all the Federal, state, and local agencies that were on-site. Important information was lost during the first month and we need to ensure this doesn't happen again. I also believe that NIST needs to play a more active role in the follow-up assessment and research that is required. NIST should serve as a pro-active liaison to the building code community to ensure that findings of the structural analysis in this case are reflected in our building codes. Page 32      PREV PAGE       TOP OF DOC    Segment 1 Of 2

I would like to thank the members of the FEMA Building Performance Assessment Team assembled by the American Society of Civil Engineers. These distinguished professionals have volunteered their time to work on this team. Volunteers from the Structural Engineers Association of New York have also assisted them. This isn't the first time a group of professionals have volunteered their time and expertise to serve on a FEMA assessment team. However, this is one of the few opportunities we have had to publicly thank them for their services. The FEMA team's report isn't due until April and their work is ongoing. It may be that the Committee has questions the witnesses don't feel ready to answer—I hope that we will keep at this issue so that we get answers as they become available. It is particularly important that we do follow-up work on any recommendations that the FEMA team offers. I hope this Committee will hold subsequent hearings to review the implementation plans for the research and analysis phase.

I would like to offer my condolences to the families of the victims of this tragedy, some of whom are at this hearing. You have suffered a terrible loss. This Committee will continue to follow the issue of disaster response and building safety to ensure that the lessons learned form the World Trade Center Disaster will be implemented to improve building safety codes, emergency response and evacuation procedures.

Chairman BOEHLERT. The Chair recognizes Mr. Israel for three minutes and 20 seconds.

Mr. ISRAEL. I thank the Chairman and I thank Ranking Member Hall for the time. And let me join with all of my colleagues in extending condolences to all of the families who suffered devastating losses, who have assembled with us today. Page 33      PREV PAGE       TOP OF DOC    Segment 1 Of 2

I represent in my district over 100 families who lost someone in the rubble of the World Trade Center. In the days after September 11, they wanted to know why our national intelligence and why our airport security wasn't strong enough to withstand an attack. And now, they are asking whether our steel was strong enough to withstand an attack, whether our building codes, our fire codes, our safety codes were strong enough to withstand the attack.

They want to know what we have learned from the collapse of the World Trade Center, what we learned from the collapse of the Federal Building in Oklahoma City. They want to know whether older buildings, buildings far older than the World Trade Center and the Murrah Building in Oklahoma City, have the steel and the safety codes that are necessary to withstand the same kind of catastrophic attacks that occurred at the World Trade Center.

Since September 11, we have responded to the assault on the World Trade Center and the Pentagon in many ways. Militarily, we have eviscerated al-Qaeda and the Taliban. We have started to revamp our airport security systems. We have passed a comprehensive Bioterrorism Act. And, even on Capitol Hill, as we came to this Committee hearing from voting on the Floor, we saw all sorts of new steel barricades and shatterproof glass that had been erected to protect Members of Congress.

But we are still asking our police and our fire, our rescue and our emergency services personnel around the country to risk their lives, rushing into buildings without really knowing what they need to know about the construction, the integrity, and the technical conditions that exist in those buildings. We need to know what could be done to make our buildings more structurally sound, what can be done to control intense fires caused by airplanes or bombs, what new precautions should be taken to minimize the weakening of steel, even under the most catastrophic conditions. Page 34      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Mr. Chairman, I went, with many of my colleagues, to the wreckage of the World Trade Center only days after the attack with our President. We have an obligation to those who were lost in that rubble, and we have an obligation to everyone who walks into a skyscraper around our country to get some answers, and to get some answers today, and, even more vital, to act on what we learned. Protecting our buildings is just as important a homeland security and economic security issue as flying F-16s over Washington and New York.

I want to thank the Chairman for convening this hearing. I intend to work with the Chairman on a bipartisan basis to make sure that we are allocating the resources and the dollars necessary to study what happened on September 11 and to ensure that it never happens again. And I yield back the balance of my time, Mr. Chairman. Thank you.

[The prepared statement of Mr. Israel follows:]

PREPARED STATEMENT OF REPRESENTATIVE STEVE ISRAEL

Thank you Ranking Member Hall, and Mr. Chairman. I represent over 100 families who lost someone in the rubble of the World Trade Center.

In the days after September 11th, they wanted to know why our national intelligence and airport security wasn't strong enough to withstand the attack?

Now, they're asking whether building, fire and safety codes were strong enough to withstand the attack? They want to know whether we learned anything from the collapse of the Federal Building in Oklahoma City? Or, did bureaucracies simply file a report on some shelf, only to be opened in the scrutiny of September 11th? They want to know whether the Empire State Building or the Chrysler Building could have the same conditions that led to the catastrophe at the World Trade Center? Page 35      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Since September 11th, we've responded to the assault on the World Trade Center and the Pentagon in many ways.

Militarily, we've eviscerated al Qaeda and we're pinpointing them even this week. . .we've replaced the Taliban theocracy with a secular interim government that will lead Afghanistan to democracy. . .we've started to revamp our airport security system. We passed a comprehensive bioterrorism act.

On Capitol Hill, we've erected steel barricades and shatter proof glass to protect members of Congress. . .but we're still asking our police, fire, rescue and emergency workers around the country to risk their lives, running into buildings without really, knowing what we need to know about the construction, the integrity, the technical, conditions of those buildings.

We need to know what can be done to make our buildings more structurally sound? What can be done to control intense fires caused by airplanes or bombs? What new precautions should be taken to minimize the weakening of steel even under the most catastrophic conditions?

Mr. Chairman, I went to the wreckage of the World Trade Center with President Bush a few days after the attack. We have an obligation to those lost in that rubble. . .and to everyone who enters a skyscraper in this new age of terrorist warnings. . .to shine some light, to get some answers, and even more vital, to act on what we have learned. Protecting our buildings is just as important a homeland and economic security issue as flying F–16s over New York and Washington. Page 36      PREV PAGE       TOP OF DOC    Segment 1 Of 2

That is why I intend to draft a letter with Representative Weiner asking the Office of Management and Budget to allocate the $40 million needed to complete a comprehensive study.

I thank the Chairman and Ranking Member Hall for holding this important hearing, and I look forward to getting answers to all these issues.

Chairman BOEHLERT. The Chair recognizes Mr. Grucci.

Mr. GRUCCI. Thank you, Mr. Chairman. And let me just start off by saying I associate myself with the remarks being made here today about the need to find out what went wrong, how it went wrong, and how to prevent it from going wrong in the future. You know, the tragedy of September 11 was one that one could never have predicted and never could have fathomed.

The extent to which our Nation was affected may never be completely understood, however, we continue to work together and to try and find the answers we can—and that we can muster. My Congressional district is located just 40 miles from Ground Zero. My constituents were some of the first responders, opening up their emergency rooms and volunteering their rescue services to their brothers, sisters, cousins, friends, and all that were trapped in the rubble. Close to 60 of my constituents were lost that fateful day.

American sat with fear and awe, our eyes captivated by the horrific site of the World Trade Center Towers 1 and 2 crumbling to the city streets. These amazing skyscrapers were brought down by the powerful blast of jet airplanes carrying close to 10,000 gallons of jet fuel. The force of these blasts were enough to bring down a hundred stories of steel and concrete. Page 37      PREV PAGE       TOP OF DOC    Segment 1 Of 2

As the many brave and caring volunteers continue to clean up the horror and debris in lower Manhattan, Federal investigators continue to attempt to piece together as much information as possible. I am heartened that the Science Committee is taking a closer look at the engineering and structural investigations surrounding the collapse of the World Trade Center.

I look forward to the informative testimony from our expert witnesses to better understand the issues surrounding this tragedy. And I thank you, Mr. Chairman, and the Ranking Member for pulling this meeting together. I think today we will hopefully start to hear some of the answers that will bring closure to some people's minds as to what happened, but in order—and give us the ability to prevent these types of things from happening in the future. And I yield back the remainder of my time, Mr. Chairman.

[The prepared statement of Mr. Grucci follows:]

PREPARED STATEMENT OF REPRESENTATIVE FELIX J. GRUCCI, JR.

The tragedy of September 11th was one that no one could predict or even fathom. The extent to which our nation was affected may never be completely understood. However, we continue to work together and find what answers we can muster.

My Congressional district is located just 40 miles from Ground Zero. My constituents were some of the first responders, opening up their emergency rooms and volunteering their rescue services to their brothers, sisters, cousins, friends, and all that were trapped in the rubble. Close to 60 of my constituents lost their lives on that fateful September morning. Page 38      PREV PAGE       TOP OF DOC    Segment 1 Of 2

America sat with fear and awe, our eyes captivated by the horrific sight of World Trade Towers 1 and 2 crumbling to the city streets. These amazing skyscrapers were brought down by the powerful blast of jet airplanes carrying close to 10,000 gallons of jet fuel. Just to put that into perspective, if you converted the energy in the Oklahoma City bomb into jet fuel, it would amount to only 51 gallons of jet fuel. The force of these blasts was enough to being down over 100 stories of steel and concrete.

As the many brave and caring volunteers continue to clean up the horror and debris in Lower Manhattan, federal investigators continue to attempt to piece together as much information as possible.

I am heartened that the Science Committee is taking a closer look at the engineering and structural investigations surrounding the collapse of the World Trade Center. I look forward to the informative testimony from our expert witnesses to better understand the issues surrounding this tragedy.

Chairman BOEHLERT. Thank you very much, Mr. Grucci. And all members of the Committee will have five days in which to revise and extend their remarks. As is the practice of the Committee, we initially reserve five minutes for each side, Republicans and Democrats, for opening statement. And we ask our colleagues on the Committee to defer any opening statements so that we can get right to the witnesses and the task at hand to learn from their testimony, to probe, and to finally develop something that is responsive and responsible. And so all members will have five legislative days in which to revise and extend their remarks.

Page 39      PREV PAGE       TOP OF DOC    Segment 1 Of 2 I would also point out that because of the extensive interest in this hearing, Room 2325 is an overflow room, and that, too, has a full house. And further, I would like to acknowledge the presence in the audience of a special group of people, the Skyscraper Safety Campaign, which is a project of parents and families of firefighters and World Trade Center victims. And they are here as very interested observers. We want you to know that our hearts and our prayers are with you, but you have every right to expect something more than our good intentions and our prayers. We are determined to go forward from this hearing to develop policy that will be responsive to a clearly identified need for our Nation and its future.

And I ask unanimous consent that everybody be allowed to introduce their statements to the record at this juncture. And without objection, so ordered.

[The prepared statement of Representative Constance Morella follows:]

PREPARED STATEMENT OF REPRESENTATIVE CONSTANCE MORELLA

Mr. Chairman, thank you for calling this important hearing. The events of September 11th shocked us all and many are still reeling from the after effects. Much of what was lost can never be made whole, and we will always have more questions than answers. However, it is important to do all we can to understand what happened and to take all reasonable steps to prevent such catastrophes in the future.

The attack on our nation was truly unprecedented, as was our response. We owe a great debt of gratitude to the men and women who risked their lives to respond to the crises, and their heroics will live in our memories for years to come. However, we must not forget to thank the many people who have worked tirelessly since then in the recovery effort and the research into understanding why the towers collapsed. Their work will have important consequences on future actions we take to safeguard the country against a repeat of the disaster. We have a number of these people here today and I want to go on record to thank them for their service to the nation. Page 40      PREV PAGE       TOP OF DOC    Segment 1 Of 2

However, despite their efforts, the investigation has not gone smoothly. As with everything of this size and scope, jurisdictional problems have arisen. The unusual nature of the crises has led to difficulties in accessing important records and prevented the timely sharing of information. It is our duty to investigate the causes of these problems and take steps to create the infrastructure needed to deal with events of this nature.

In addition, it is vital that we plan our future course of action. Initial reports on the collapse suggest more questions than answers and additional research is clearly needed. Fortunately, we have an advanced federal laboratory dedicated to research in building design and safety. The National Institute of Standards and Technology is uniquely positioned to conduct extensive investigations into the structural failures of the World Trade Center and suggest appropriate new standards and potential retrofits. In truth, NIST has already played a large and important role in the current investigation, but there is much more that can be done. I know Dr. Bement is here to discuss NIST's plans for the future and I urge my colleagues to listen carefully to his proposals.

We may never understand completely why the World Trade Center came crashing down on that September morning, but that should not prevent us from trying. Research into this disaster is the only way we have any chance of preventing the next one. I thank the panel for taking the time to come to Washington to share their insights and I look forward to their testimony. Thank you.

[The prepared statement of Representative Nick Smith follows:]

Page 41      PREV PAGE       TOP OF DOC    Segment 1 Of 2 PREPARED STATEMENT OF REPRESENTATIVE NICK SMITH

I would like to thank Chairman Boehlert and Ranking Member Hall for holding this hearing today to examine the collapse of the World Trade Center buildings and the ensuing interagency efforts to respond to the disaster. The Federal Government has considerable experience handling a wide variety of disaster situations. Over the years, we have learned from earthquakes, hurricanes, large building fires, and bombings. All have provided information that has improved our ability to respond to these situations, and we have a sound framework in place for responding to national emergencies. There is no doubt that the efforts of agencies such as FEMA, NSF, and NIST, as well as many organizations outside of the Federal Government, have helped to greatly reduce losses of life and property from these national disasters, even well before the events of September 11th.

For example, the National Science Foundation has funded numerous projects over the years that have quietly helped to save lives in disastrous events. NSF-funded engineering research has brought forth technologies that have improved the ability of buildings to withstand seismic events and large fires. After the October 2001 anthrax attacks, it was NSF funding of sequencing of the anthrax genome that has been of great use in the investigation to find the attackers. At the site of the World Trade Center disaster, NSF-funded robotics expert Robin Murphy used innovative urban rescue robots to intelligently explore tight spaces in search of possible survivors. I think these types of applications that have emerged to help save lives underscore the importance of federally supported fundamental research to our economic and national security. I do not think the value of this basic research can be underestimated.

However, no one could have prepared for, much less predicted, an emergency situation of the magnitude and complexity that occurred on September 11th. The death and destruction caused by the hijacked 767 airliners slamming into the 110-story World Trade Center buildings was previously inconceivable. Immediately after the attacks, a number of government agencies and private organizations appeared on the scene to help in rescue, recovery, and sorting through the chaos. Among them were the FBI, New York Police and Fire Departments, FEMA, NIST, NSF, the National Transportation Safety Board (NTSB), and the Structural Engineers Association of New York (SEAoNY). Page 42      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Recognizing that the World Trade Center cleanup was an unprecedented, multi-faceted effort carried out under the most difficult of circumstances, I believe that the agencies and organizations involved performed very admirably. There are, however, many questions remaining regarding why the towers collapsed and how the ensuing investigation to determine why they collapsed could have been improved. For instance, why was important information such as building design plans was by and large unavailable, and why was research access to steel beams and other debris for the investigation delayed? Answering these questions may allow us to develop a clearer, enhanced protocol for responding to these situations, improve building and fire codes, and build safer buildings in general. All of these adjustments will move us closer to the ultimate goal: minimizing the loss of life and property during the occurrence of future natural disasters and terrorist attacks.

I hope that today's hearing will help to shed light on these unanswered questions. I would like to thank the witnesses for appearing before us today to discuss this issue, and I am looking forward to a productive discussion as we begin to move on in the aftermath of September 11th.

[The prepared statement of Representative J. Randy Forbes follows:]

PREPARED STATEMENT OF REPRESENTATIVE J. RANDY FORBES

Thank you Mr. Chairman, and Ranking Member Hall, for holding this important hearing today. Next Monday will mark the six-month anniversary of the tragic attacks on the World Trade Center Towers and the Pentagon. Since that time, we have come together as a nation and as a Congress. Page 43      PREV PAGE       TOP OF DOC    Segment 1 Of 2

The impact of 9/11 has required all of us in Congress to re-evaluate not only how we view the world, but how we ensure the safety of our citizens as well. I can think of no greater obligation of the Federal Government than to protect its citizens. Since 9/11, Congress has responded by passing legislation to protect our borders, increase our ability to defend and respond to attacks of bio-terrorism, and strengthen our airport security and airline industry. Clearly we are a safer nation than we were six months ago. With that said, one area Congress has yet to examine closely is how the Federal Government investigates and responds to large-scale disasters. What can engineers, builders, and designers learn from the collapse of the World Trade Center Towers that can be used to save lives through improved building construction?

I am concerned that no clear protocol was in place for building investigators who were attempting to understand how the two buildings collapsed. While I understand that Ground Zero is first and foremost a crime scene and rescue area, we must also allow investigators the ability to fully examine evidence that will give us a greater understanding of why the buildings collapsed. I was disappointed to learn that investigators were unable to examine recovered pieces of steel from the Twin Towers before they were recycled. I am also troubled that investigators had difficulty in obtaining blueprints, design drawings, and maintenance records because of liability concerns from the buildings' owners. These records are invaluable in fully understanding how the buildings collapsed.

I hope today's hearing will help us strike a balance between investigating a crime scene and conducting an engineering investigation. While we will never live in a world that will be completely immune from despotic acts of terrorists, we should remain eternally vigil in our efforts to ensure that safety of all Americans. Again, I thank the Chairman for holding this important hearing today and I look forward to hearing from our witnesses. Page 44      PREV PAGE       TOP OF DOC    Segment 1 Of 2

[The prepared statement of Representative Jerry F. Costello follows:]

PREPARED STATEMENT OF REPRESENTATIVE JERRY F. COSTELLO

Good afternoon. The events of September 11th have had a profound effect on America in many ways. In addition to reevaluating our safety and security, we have been left with many procedural and scientific questions. I want to thank the witnesses for appearing before our committee to discuss the data collection procedures in the aftermath of the World Trade Center attacks and the follow-up research needed to better understand the structural causes of the building collapse, building evacuation procedures, and possible changes to building codes.

Immediately following the attacks on the World Trade Center and the Pentagon, the Federal Emergency Management Agency (FEMA) assembled a Building Performance Assessment Team (BPAT) comprised of 23-members. They were charged with determining the structural causes of the World Trade Center collapse, including the collection of steel beams and other structural components. Because of the unprecedented nature of the World Trade Center attacks, nothing had prepared our investigators for a disaster of this magnitude and complexity, involving many buildings and a massive debris pile in a small, confined area. The investigation was also hampered by the one month delay in collecting data from the actual site because of the search and rescue efforts and criminal investigation activities. However, once the BPAT gained access and arrived on-site, the process worked according to procedure resulting in an orderly recovery effort. The FEMA BPAT encountered numerous obstacles during its investigation, including an inability to examine the steel, either removed from the site during the early search and rescue work or shipped to recycling plants, and the denial of access to building design, construction, and maintenance documents. I am particularly interested to know what needs to be changed or improved to allow teams, like BPAT, to do their job. Page 45      PREV PAGE       TOP OF DOC    Segment 1 Of 2

In addition, as you are all well aware, coordination among federal agencies is critical for gauging our preparedness and responding to national disasters. The National Science Foundation (NSF) and the National Institute of Standards and Technology (NIST) also took part in the collection of the World Trade Center site data. NSF gave grants to eight research projects to begin studies of the World Trade Center site to study the social science aspects of the human response, testing new technologies to assess infrastructure damage, and collecting structural engineering data. Although NSF did not coordinate its research with the BPAT, I am interested to know if research done by NSF can be used in the BPAT assessment and if it will factor into the BPAT recommendations. Also, FEMA has initiated discussions with NIST for NIST to take the lead on the follow-on activities recommended by the BPAT. NIST has developed a 4-year follow-on comprehensive research plan and an estimated cost in order to take the lead on research once the FEMA's BPAT issues its report. I want to know the role FEMA's team played in developing this research plan with NIST.

I welcome our witnesses and look forward to their testimony.

[The prepared statement of Representative John B. Larson follows:]

PREPARED STATEMENT OF REPRESENTATIVE JOHN B. LARSON

I want to thank the Chairman for convening this important hearing. Before I ask my questions I want to recognize the presence today of the organizers of the Skyscraper Safety Campaign, an effort of Sally Regenhard, whose firefighter son, was killed at the World Trade Center, and which represents over 3,000 members and is endorsed by the major 911 Victim Family groups. In particular I want to welcome Ms. Monica Gabrielle from my home state of Connecticut, who lost her husband, Richard, as a result of the collapse of 2 World Trade Center. My condolences to you and the other members of the Skyscraper Safety Campaign who are here to ensure that we know all we need to know about the structural collapse, the subsequent investigation, and to make sure that any recommendations are followed through and implemented so that we can avoid preventable deaths. I commend and welcome your and your group's efforts. Page 46      PREV PAGE       TOP OF DOC    Segment 1 Of 2

In the aftermath of the terrible collapse and the subsequent investigations that followed, several factors have become clear:

1. There was no clear authority or effective protocol for how the building performance investigators should conduct and coordinate their investigation with the concurrent search and rescue efforts, as well as any criminal investigation;

2. There was difficulty obtaining documents essential to the investigation, including blueprints, design drawings, and maintenance records;

3. There is uncertainty as a result of the confidential nature of the Building Performance Assessment Team (BPAT) study; and

4. There is uncertainty as to the strategy for completing the investigation and applying the lessons learned.

Obviously, if we are to prepare adequately to meet the tremendous challenges posed by the potential that another tragedy of this magnitude takes place the issues outlined above need to be cleared up. Yet it is troubling to me that we are not close to meeting that goal. So far the facts on the ground from what I can gather based on information in the public record are:

The American Society of Civil Engineers team, whose report is due in April, admits they may have lost data due to the decision to recycle the structural steel. Page 47      PREV PAGE       TOP OF DOC    Segment 1 Of 2

It isn't known whether the National Science Foundation studies can be incorporated into the ASCE recommendations because there was no coordination between them.

ASCE admits that its investigation is not comprehensive, but that their report will include recommendations on what to do about the issues not addressed in their report.

The Building Performance Assessment Team (BPAT) will recommend that a federal agency needs the authority to have on-site personnel to direct data collection efforts.

BPAT had no legal authority to require the plans be given to them. The BPAT will recommend that subpoena authority be given to some federal agency to allow access to all information/data required for a BPAT investigation (neither FEMA nor NIST wants it, however).

Although NIST has the most expertise of any federal agency in building and fire safety, it has no formal role to play in the follow-on disaster analysis. After a BPAT team releases it preliminary report, there is no formal mechanism to ensure its recommendations are actually implemented.

There is no comprehensive central repository for all information that is gleaned from an investigation of this kind.

If this is all true, then it is clear that as a starting point, Congress needs to accomplish two things:

Page 48      PREV PAGE       TOP OF DOC    Segment 1 Of 2 (1) we need to find a way to fund NIST's proposal for a 2-year follow-on comprehensive research plan, which would address building design, structural analysis of the building collapse, emergency response procedures, evacuation procedures and proposed changes to building standards based on research findings; and

(2) we also need to establish mechanisms for following-through on implementation of any recommendations, guidelines or standards that are established as a result of these investigations.

We here in Congress need to make sure we assert our role in making sure this process moves forward and those mechanisms are in place. I am aware of the fact that not all of the answers we need will be available at this hearing and that not all the steps that should be taken to reduce the likelihood that something like this can happen again in the future will be identified at this hearing. This should only be the start to what I believe should be a public and open process which will lead to significant changes in how we provide for the safety of citizens of this country.

[The prepared statement of Representative Bob Etheridge follows:]

PREPARED STATEMENT OF REPRESENTATIVE BOB ETHERIDGE

Thank you, Mr. Chairman. I commend you for holding this important hearing on an event that effects every American and our nation. I would like to offer my condolences to the families of this tragedy.

This is a very difficult subject. The tragedy that the United States experienced on September 11, 2001 was unparalleled with any prior accident or disaster. The collapse of the World Trade Center towers was the largest structural building disaster in human history. A disaster of such epic proportions demands a full comprehensive, detailed investigation. Page 49      PREV PAGE       TOP OF DOC    Segment 1 Of 2

I am struck by the rapidity in which the World Trade Center towers collapsed. Aside from withstanding enormous wind loads, the World Trade Center towers were also constructed to withstand settlement loads. Because the towers were built on six acres of landfill, the foundation of each tower had to extend more than 70 feet below ground level to rest on solid bedrock. Although the towers were in fact designed to withstand being struck by an airplane, they were unable to survive the effects of a direct hit by the two hijacked commercial jetliners and the fires that resulted weakened the infrastructure of the building, collapsing the upper floors and creating too much load for the lower floors to bear. In trying to comprehend how this actual happened, I am compelled to ask if there is any reason to have concern on how other tall buildings are constructed in this Country and the safety of the people occupying them.

While I applaud the FEMA Building Performance Assessment Team and other federal agencies for the service they provided, the investigation clearly shows that a comprehensive plan was not in place for disaster investigations. There is a need to have a comprehensive plan in place to handle large-scale investigations.

Chairman BOEHLERT. We will proceed right to our panel of very distinguished witnesses.

Mr. Robert Shea, Acting Administrator, Federal Insurance and Mitigation Administration; and, Mr. Craig Wingo, Director of Division of Engineering Science and Technology, from the Federal Emergency Management Administration. Dr. W. Gene Corley, American Society of Civil Engineers, Chair of the Building Performance Assessment Team, which we will constantly refer to as BPAT, reviewing the WTC disaster. Professor Glenn Corbett, Assistant Professor of Fire Science at John Jay College, New York City. Dr. Astaneh, Professor, Department of Civil and Environmental Engineering, University of California. And Dr. Arden Bement, Director of National Institute of Standards and Technology. Page 50      PREV PAGE       TOP OF DOC    Segment 1 Of 2

As the Committee clearly can appreciate, we have a panel of very distinguished witnesses, and we look forward to hearing your testimony. We would appreciate, as is customary, that you try to summarize your statement in five minutes or so. We have all had the advantage of your full statement, which will be in the record at this juncture. And I would imagine that my colleagues have joined me in reading this testimony in preparation for this important hearing. The Chair is not going to be arbitrary. This is too important to let a minute or two interfere with making an important point, but we would appreciate your summarizing your testimony. We have six distinguished witnesses and we have a number of very interested Members of Congress who want to have a dialogue with you. And let me thank you for serving as resources for this Committee. Mr. Shea, you are up first.

STATEMENT OF MR. ROBERT F. SHEA, ACTING ADMINISTRATOR, FEDERAL INSURANCE AND MITIGATION ADMINISTRATION, AND, MR. CRAIG WINGO, DIRECTOR OF DIVISION OF ENGINEERING SCIENCE AND TECHNOLOGY, FEDERAL EMERGENCY MANAGEMENT ADMINISTRATION

Mr. SHEA. Thank you, Mr. Chairman, and the members of the Committee. As you indicated, I am the Acting Administrator of the Federal Insurance and Mitigation Administration. I am here today because Joe Allbaugh asked me to be here to address this Committee. With me is Craig Wingo, who is my Senior Executive in charge of my Engineering Sciences and Technology Division. Mr. Wingo is also the executive that I hold responsible for the Building Performance Assessment Team activity. I will be making the statement and Mr. Wingo will not at this point.

Page 51      PREV PAGE       TOP OF DOC    Segment 1 Of 2 I respectfully request that my written testimony be entered into the record and that I be allowed a few minutes to make a few verbal comments. If that meets with the approval of the Chair and the Committee, I will proceed.

FEMA operates under the authority of the Stafford Act to respond to disasters. This is an immensely powerful mechanism. Am I still missing here? Okay.

Chairman BOEHLERT. Pull the microphone closer, if you will so we——

Mr. SHEA. I will do that.

Chairman BOEHLERT. We have a crowded room and we want to make certain——

Mr. SHEA. Is that better, Mr. Chairman?

Chairman BOEHLERT. That is much better. Thank you.

Mr. SHEA. Okay. This is an immensely powerful mechanism you respond to disasters. Embedded in the Act is our charter that provides supplemental support to the efforts and available resources of state and local government. But clearly recognizing their primacy.

Further, as FEMA operates under the aegis of the Federal Response Plan, the way the Federal Government responds to catastrophic events. Huned from over 30 years of experience, this Plan allows FEMA to coordinate the relief and recovery efforts of the combined assets of the entire Federal Government and state and local governments, but particularly, by relying on existing expertise and capability. Page 52      PREV PAGE       TOP OF DOC    Segment 1 Of 2

In a large part, we are doers, but we conduct our business by coordinating. For example, under the Plan, one of the emergency support functions is led by the Corps of Engineers, not by FEMA. Further, in this effort, emergency support function nine became the primary example of our level of effort to provide support. It is called Urban Search and Rescue. Essentially, this is highly trained and equipped local fire forces from across the country. So relying on resources and expertise provides for a very effective response system which is also highly efficient.

In the immediate aftermath of this event, FEMA's singular focus was a search and rescue recovery of victims and, frankly, re-establishing the viability of the New York Fire Department.

Last week, I spent some time with Chief Nick Russo, a 29-year veteran of the Hull, Massachusetts Fire Department. Chief Russo watched the events that day and understood the impact on the New York firefighters. So he gathered six other chiefs from his area and was at Ground Zero within hours. His role was to aid in the restructuring of the incident command and also perform search and rescue. Chief Russo told me that his mission matched exactly that of FEMA.

Further, when it became painfully clear that the operation had shifted to the recovery of the victims, that became the single focus of the federal, state, and local efforts. The efforts to recover victims lasted throughout September and into early October and it still continues. Nonetheless, on September 12, the day afterwards, FEMA and the American Society of Civil Engineers began collaborating on the implementation of a Building Performance Assessment Team. The National Institute of Standards and Technology was a partner in this pursuit. Page 53      PREV PAGE       TOP OF DOC    Segment 1 Of 2

The role of the BPAT is two-fold—to aid in the recovery process through a rapid assessment in order to incorporate mitigation measures into the rebuilding process, but, frankly, limited in scope, to Stafford Act authorities—that is, to the rebuilding process of the affected facilities.

Secondly, though, as we go through that process, to use the products of this effort to influence building practices through changes to building codes. The BPAT, or Building Performance Assessment Team, process does not lend itself to complex, long-term studies and it was never intended to do so.

Because of the limited resources of expertise, FEMA uses the same philosophy as the Federal Response Plan. We look to other authorities and expertise in other Federal agencies for those missions. In this case, the appropriate agency is the National Institute of Standards and Technology. They should conduct the long-term, complex studies that must naturally flow from this initial BPAT effort. In my opinion, appropriate studies of the complex issues presented in this fire and structural collapse, will take years to complete.

Let me also say that I have not seen a draft of the BPAT report. But it is important, in my opinion, as well, to preserve the scientific and technical integrity of this study. Jumping to conclusions will ultimately serve no one well in the end.

At this point, it is my understanding that the conclusions associated with this report have not yet been finalized. Therefore, while I cannot share insights about the causal factors of the collapse of the World Trade Center, from either a fire or structural point of view, I would like to share these observations, which are based on my experience of 25 years. Page 54      PREV PAGE       TOP OF DOC    Segment 1 Of 2

In this country, we build buildings to a minimum standard. They are probably the best in the world, but they are, in fact, to a minimum standard. What we learn from this tragedy is probably beyond the current generation of buildings. But we can influence the next generation of buildings. So I believe it would be prudent to carefully pursue our eventual conclusions.

Second, the World Trade Center was a tragedy. And, frankly, it was an anomaly. No one who viewed it that day, including myself, believed that those towers would fall. Our collective thought process for laymen and engineers and firefighters changed that day forever.

While the results are still being analyzed and years of study may lie ahead, I can still make the following general observations associated with these types of buildings. Firefighters in many communities are involved with a building code enforcement process, but this is frankly not universally the case. So we need to think more broadly, as all of us have had to be challenged after the events of September 11.

Not only should fire and structural engineers be involved, but we also need firefighters inspecting buildings during the construction process. And the reason is very straightforward. When experienced firefighters look at the construction process, they can tell you what the failure mechanisms will be if they ever have to go into that building and fight a fire.

Secondly, we need to thoroughly explore and embrace the idea of redundant fire systems or in-place protection systems for high-occupancy vehicles.

Page 55      PREV PAGE       TOP OF DOC    Segment 1 Of 2 Thirdly, there was a failure of firefighter communication systems during the event, and it continued well into the search and rescue efforts. It was literally observed that as the search and rescue efforts were going on, there were handwritten notes being passed in order to effect communications.

Clearly, the issues that I have just outlined need to be addressed in the longer-term research effort. I thank you, Mr. Chairman, and I appreciate the time.

[The prepared statement of Mr. Shea follows:]

PREPARED STATEMENT OF ROBERT F. SHEA

Mr. Chairman, Members of the Committee, I appreciate the opportunity to appear before you today to discuss FEMA's response to the World Trade Center attacks. My name is Robert Shea, Acting Administrator for the Federal Insurance and Mitigation Administration, and I am here representing Joe Allbaugh, the Director of the Federal Emergency Management Agency.

On September 11, 2001, the United States of America was suddenly and savagely attacked by terrorists precipitating the worst disaster in the history of our nation. The tragic loss of life in the collapse of the World Trade Center towers and the destruction at the Pentagon exposed many vulnerabilities to our population and infrastructure within our borders which could be exploited by terrorists and others seeking to harm our country.

Within hours of the terrorist attacks, President Bush had mobilized the Federal government and declared disasters, making Federal support and assistance immediately available to the City and State of New York as well as to the Commonwealth of Virginia. As you know, FEMA helps the nation prepare for, respond to, and reduce the impact of, man-made, natural, and technological hazards including catastrophic events, such as the Alfred P. Murrah Building bombing, the Northridge Earthquake and preparing for Y2K and the Winter Olympics. September 11th was a wake up call for our nation and the entire world. In the war on terrorism, FEMA has a clear mission: to make certain that the United States of America becomes A Nation Prepared. Page 56      PREV PAGE       TOP OF DOC    Segment 1 Of 2

FEMA's role as an emergency responder was tested but we were able to draw upon decades of experience in hundreds of disasters and the solid relationships that we have forged with States and local governments and other Federal agencies. That experience and those relationships were vital during the first days and weeks following September 11th and enabled FEMA to provide the critical support requested by the City and State of New York to local emergency responders and law enforcement officials. This support included the critical urban search and rescue, debris removal, technical assistance and other emergency measures. The U.S. Fire Administration, an integral part of FEMA, has been providing training to firefighters and emergency responders in initial disaster response and incident command and control—skills that were fully evident at ground zero.

Under the Robert T. Stafford Disaster Relief and Emergency Assistance Act, as amended, FEMA has the lead coordination role for Federal disaster response, which is managed through the Federal Response Plan (FRP), involving the 27 Federal agencies, local agencies, and other groups. This national plan, perfected during the last decade, made it possible to effectively support local law enforcement and supplement the response activities undertaken by the City and State of New York. As for the World Trade Center disaster, the City and State of New York drew upon as many assets as they could, both governmental and private, to rescue and protect their citizens. FEMA has acted in its traditional support role, mindful of the extensive capabilities and the sovereignty of the City and State of New York.

The Federal Response Plan establishes a process and structure for the systematic, coordinated, and effective delivery of supplemental assistance to address the consequences of any major disaster or emergency declared by the President. Within hours of the September 11th attacks, the FEMA Emergency Support Team center was up and running and, implementing the 12 Emergency Support Functions (ESF's) described in the FRP, already coordinating and organizing the Urban Search and Rescue teams, and setting up the Disaster Field Office on-site in New York City. Page 57      PREV PAGE       TOP OF DOC    Segment 1 Of 2

The most vital Emergency Support Function in response to this tragedy was Urban Search and Rescue (US&R). Because the mortality rate among trapped victims rises dramatically after 72 hours, search and rescue must be initiated without delay. US&R rapidly deploys components of the National US&R Response System to provide specialized lifesaving assistance to State and local authorities in the event of a major disaster or emergency. US&R operational activities include locating, extricating, and providing on-site medical treatment to victims trapped in collapsed structures, and engineering evaluation of structures for safety and building integrity.

A key member of the US&R team is the structural engineer, who must make constant judgments about the structural stability of debris and damaged buildings as the team rescues trapped individuals. As the US&R teams searched through the mountains of twisted steel and concrete, these engineers made safety judgments related to the creation of access points. With engineering expertise coming to New York City from across the country and present within city agencies of New York, the initial response activities were able to pull from an extraordinary pool of local engineering support. During the initial response, engineering support included:

1. Ensuring equipment, such as cranes, was safely located on stable bases to support rescue efforts;

2. Quick and continuing evaluation of the safety of surrounding buildings, infrastructure and the site;

3. Monitoring changes at the site through surveying; and Page 58      PREV PAGE       TOP OF DOC    Segment 1 Of 2

4. Remote sensing using satellites, and supporting rescue workers on the site by continually reporting this information at shift briefings, site inspections and visits, and through sophisticated Geographical Information Systems producing up-to-date information and maps.

FEMA's United States Fire Administration also responded to directly assist the New York City Fire Department to re-establish its Incident Command structure, had been tragically lost when the towers collapsed. The forward deployed team assisted in coordinating daily mission planning and logistics for the first three weeks until FDNY was ready to fully resume that role. USFA is also working with the fire department on a training needs analysis to help restore FDNY to its full capacity as it takes on over 400 new firefighters. This, in addition to the US&R, demonstrates FEMA's linkage to the first responders in a catastrophic event.

FEMA's singular goal in the immediate aftermath of the attack was to support local jurisdictions in the rescue of trapped firefighters and workers. As soon as practicable, and without impeding the rescue effort, FEMA began coordinating with State and local governments and private organizations on the next important steps: the short-term and long-term recovery.

FEMA has an established role in recovery: to provide grants to State and local agencies and individuals, as well as coordinating the efforts from other Federal agencies with State, local and charitable organizations in order to help communities and individuals rebuild their lives. Another critical component is the technical assistance that FEMA can bring to bear to not only facilitate a quick recovery but to influence the recovery by giving special consideration to particular aspects of a building or the infrastructure. Although meeting the human needs is paramount, investigating and understanding this enormous and complex disaster can provide benefits for the City of New York's recovery as well as the entire nation. Page 59      PREV PAGE       TOP OF DOC    Segment 1 Of 2

FEMA has long been an advocate of conducting engineering studies to learn lessons from disasters, whether man-made or natural. In response to hurricanes, floods, earthquakes, and other disasters, including man-made disasters, FEMA often deploys Building Performance Assessment Teams (BPATs) to conduct field investigations at disaster sites. The BPAT is typically employed to determine failure mechanisms of buildings in the aftermath of a disaster so strategies can be developed to increase the disaster-resistance of structures. However, since this event was larger and more complex than any we have ever experienced, the objective of this BPAT is to probe the numerous issues related to structural collapse and fire so that we may make preliminary conclusions and recommendations for more intensive investigation and research.

Immediately following the September 11th attacks, FEMA reached out to the engineering and fire communities to coordinate any post-event studies or evaluations of building performance, incident command, communications or other similar efforts. Within 24 hours, FEMA was in contact with the American Society of Civil Engineers, which was already assembling a team of national experts, drawing talent from a variety of engineering, research and scientific groups that had volunteered to help. This team approach, which is frequently utilized for disasters, has been highly effective for ensuring a multidisciplinary approach with equal voices and inputs from the various sectors. For our World Trade Center evaluation, FEMA and ASCE immediately collaborated on the development of the team analogous to our approach during our study of building performance after the Northridge earthquake. The team of experts was assembled based on what appeared to be the likely failure mechanisms for the World Trade Center towers, namely, fire and structural collapse. There are over twenty national and international experts on this team with knowledge in: building and fire testing; computer modeling of structures and fire; design of tall buildings; steel construction; concrete construction; fire safety; fire protection; and codes and standards. As you know, the National Institute of Standards and Technology (NIST) has along-established history of investigating building collapses and fires and a mission of research and testing that results in standards and guidance that makes the United States safer and its industries more competitive. FEMA asked NIST to join the BPAT during its formation in September because of NIST's technical expertise and to ensure a smooth transition between FEMA's short-term study and any long-term investigation and research conducted by NIST. Page 60      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Because of the importance of the rescue effort at the World Trade Center complex, it was clear that information would have to be gathered without interfering with response and rescue activities. Based on this fact, the FEMA–ASCE team first visited the site on October 6, but gathered information from others who had been on-site before this date. This information included plans, photographs, videotapes, eyewitness accounts from rescue workers and reports from the New York City Department of Design and Construction. In addition, the Structural Engineers Association of New York, in support of the City and as a formal member of the BPAT, located and identified specimens of steel for use in future studies. FEMA is coordinating with NIST to make sure that these specimens are properly stored and available for future testing. Also, it is important to note that there are, literally, thousands of plans, specifications and other documents for the World Trade Center. Although it took some weeks to obtain the plans, the owners were fully cooperative with our requests.

Focusing on the areas of fire protection and structural performance, the BPAT team has been gathering evidence and studying designs so that when the report is published, its conclusions and recommendations will help guide future investigative and research efforts connected primarily to understanding the performance of buildings when subjected to extreme conditions.

This study represents an important first step in suggesting how the technical resources of the nation can be brought to bear on protection of lives and property. Because of the importance of this initial report, FEMA and ASCE have compressed in half a schedule that normally takes over a year to complete, which will result in the issuance of a report in early spring. The report will not only make preliminary observations and conclusions about the structural and fire related performance of the World Trade Center towers, but will have six additional chapters that discuss damages and lessons learned from surrounding buildings such as World Trade Center 7, as well as numerous technical appendices. Page 61      PREV PAGE       TOP OF DOC    Segment 1 Of 2

The National Institute of Standards and Technology (NIST) has the authority and technical expertise to conduct investigative studies of the causes of the collapse and other related matters. The USFA and the Federal Insurance and Mitigation Administration of FEMA will work closely with NIST as it undertakes this ambitious agenda.

USFA will also be looking at the lessons that can be learned from this incident by the nation's first responders. USFA has a long history of doing reports on major incidents and their impacts on the fire service, with a special emphasis on incident command, fire protection systems, evacuation planning and response, communications, and overall fire fighting and rescue response.

Finally, FEMA is currently working with NIST to develop a Memorandum of Understanding (MOU), which will help to guide our future collaborations on similar types of studies. For these types of extreme events, whether natural or man-made, the MOU will serve as a road map to establish protocols for future collaboration of our two agencies under our respective authorities.

I would now be pleased to answer any questions that the Committee may have.

BIOGRAPHY FOR ROBERT F. SHEA

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Page 62      PREV PAGE       TOP OF DOC    Segment 1 Of 2 Robert F. Shea was appointed Acting Administrator of the Federal Insurance and Mitigation Administration in August 2001 after an agency-wide reorganization. Previously, Mr. Shea was deputy administrator for mitigation in FEMA. In his acting capacity, Mr. Shea is responsible for overseeing the insurance and risk reduction activities of FEMA, including educating residents and state and local official about the importance of risk reduction activities. Mr. Shea also coordinates efforts to educate the public on the importance of insuring property against flood damage.

Previously, Mr. Shea served as the Division Director for the Program Support Division within FEMA's then-Mitigation Directorate. In that capacity, he provided executive direction to the Hazard Mitigation Planning Program, the Hazard Mitigation Grant Program and the Flood Mitigation Assistance Program.

Mr. Shea has spent 25 years in emergency management in FEMA, serving in various capacities, including chief of the Coordination Office of the former State and Local Program and Support Directorate and chief of the Program Development Division in the former Office of Earthquakes and Natural Hazards.

A native of Atlanta, Ga., Mr. Shea earned Bachelor's and Masters's degrees in English Literature from The Catholic University of America.

Chairman BOEHLERT. Thank you. Mr. Wingo, I assume Mr. Shea speaks for you also. Dr. Corley.

Mr. WINGO. Mr. Chairman, thank you. Page 63      PREV PAGE       TOP OF DOC    Segment 1 Of 2

STATEMENT OF DR. W. GENE CORLEY, P.E., S.E., SENIOR VICE PRESIDENT, CTL ENGINEERING, CHICAGO, ILLINOIS, ON BEHALF OF THE AMERICAN SOCIETY OF CIVIL ENGINEERS, CHAIR OF THE BUILDING PERFORMANCE ASSESSMENT TEAM REVIEWING THE WTC DISASTER

Dr. CORLEY. Good afternoon, Mr. Chairman, and members of the Committee. My name is Gene Corley. I appear before the Committee today on behalf of the American Society of Civil Engineers. In my volunteer capacity—at ASCE, I serve as Chair of the Building Performance Assessment Team, which is studying the collapse of the World Trade Center. I am employed by CTL, an engineering firm in Chicago, Illinois, as Senior Vice President.

The tragic events of September 11 have served as a grim reminder that there is no limit to the destructive forces that man can use to damage or destroy the Nation's infrastructure. We all personally mourn those lost in the attack.

On the afternoon of September 11, the Structural Engineering Institute of the American Society of Civil Engineers began assembling two teams of experts to study the performance of the buildings at the World Trade Center complex and at the Pentagon. The goal of the studies is to increase our knowledge and understanding of how buildings subjected to extreme forces, such as those caused by the crash and resulting fires, perform under these unprecedented circumstances.

Studies of this type were performed by ASCE six times in the year 2000, following other disasters. ASCE provides the internal mechanism to organize and fund these studies. In 1995, ASCE, in partnership with FEMA, organized a team that I headed to examine the Murrah Federal Building in Oklahoma City and the surrounding area after that bombing. The teams assembled by SEI/ASCE and a coalition of professional organizations that joined us, are comprised of academics and other leading experts in the fields of structural analysis and design, fire engineering, blast effects, and building materials. On October 1, the WTC study became a joint effort between ASCE and the Federal Emergency Management Agency, a partnership which continues to this day. Page 64      PREV PAGE       TOP OF DOC    Segment 1 Of 2

The partnership with FEMA has been very beneficial to the overall progress of the WTC team. In addition to providing funds, FEMA has provided logistical assistance, organizational and operational guidance, assistance in obtaining and organizing the needed data, and will provide the research to publish the report.

Team members have examined structural debris from the Fresh Kills Landfill in Staten Island and at two recycling yards in New Jersey. Samples of the structural steel were obtained and have been subjected to laboratory analysis. They are presently being stored at the National Institute of Standards and Technology in Gaithersburg, Maryland, for use in future studies.

In the 10 years in which ASCE has been conducting studies of disasters, we have learned that our teams will always encounter impediments. However, we have also learned that with time and persistence, these difficulties are either overcome or an alternate approach is found to enable a team to satisfactorily complete their study.

Delay in the receipt of plans did, somewhat, hinder the team's ability to confirm our understanding of the buildings. Through the efforts of FEMA and others, the team received the engineering plans for the towers on January 8 of this year and work is proceeding.

There has been concern expressed by others that the work of the team has been hampered because debris was removed from the site and has subsequently been processed for recycling. The team has had full access to scrap yards and to the site and has been able to obtain numerous samples. At this point, there is no indication that having access to each piece of steel from the World Trade Center would have made a significant difference to understanding the performance of the structures. Page 65      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Resources are always an issue with building performance studies, particularly one whose magnitude and scale is unprecedented. The total amount of resources being dedicated to support the team's activities is approximately $1 million, plus an estimated additional million dollars in volunteer time by our team members. This support has allowed the team to do the initial reconnaissance of the site and the building materials, begin the process of hypothesis-setting, and conduct some limited testing. It is our opinion that $40 million or more is needed to fully fund the necessary additional comprehensive study.

As many in the United States and the world examine the future of tall buildings, it is important to look at how well these buildings performed under extreme circumstances. It must be remembered that large commercial aircraft hit the World Trade Center towers, yet, both withstood the initial impact.

Efforts such as those being conducted by the Building Performance Study Teams and studies emanating from this initial study will seek to extend the performance of structures to allow occupants and rescuers time to reach safety.

There are two high-priority needs from the structural engineering community which I would like to draw your attention. The first is the issue of progressive collapse. The second is the issue of fire structure interaction. We believe that each of these needs are crucial to advancing the health, safety, and welfare of the citizens of our Nation. The work will require a substantial partnership between public agencies, such as NIST, and private organizations, such as ASCE, and our coalition partners.

Page 66      PREV PAGE       TOP OF DOC    Segment 1 Of 2 Thank you for the opportunity to express ASCE's views. We offer Congress and all the agencies involved in the recovery efforts ASCE's full resources to manage the Nation's critical infrastructure needs. We are ready to help in any way possible.

[The prepared statement of Dr. Corley follows:]

PREPARED STATEMENT OF DR. W. GENE CORLEY

Senior Vice President, CTL Engineering, Chicago, IL; On behalf of the American Society of Civil Engineers

The tragic events of September 11 have served as a grim reminder that there is no limit to the destructive forces than man can use to damage or destroy our nation's infrastructure. The civil engineering profession, as stewards for our nation's infrastructure, feels obligated to make certain the critical public works our communities and nation depend on are protected. Through the American Society of Civil Engineers (ASCE), the profession has taken a leading role in addressing infrastructure vulnerability and is developing both short- and long-term strategies to mitigate the impact of future disasters on our critical civil infrastructure.

Founded in 1852, ASCE represents more than 125,000 civil engineers worldwide and is the country's oldest national engineering society. ASCE members represent the profession most responsible for the nation's built environment. Our members work in consulting, contracting, industry, government and academia. In addition to developing guideline documents, state-of-the-art reports, and a multitude of different journals, ASCE, an American National Standards Institute (ANSI) approved standards developer, establishes standards of practice such as the document known as ASCE 7 which provides minimum design loads for buildings and other structures. ASCE 7 is used internationally and is referenced in all of our nation's major model building codes. Page 67      PREV PAGE       TOP OF DOC    Segment 1 Of 2

In response to the events of September 11th, ASCE is implementing a multifaceted response plan, significant elements of which are outlined here. Following this abbreviated outline of our initiative is a more detailed discussion of ASCE's efforts related to the World Trade Center.

ASCE's Critical Infrastructure Response Initiative

On October 9, 2001, the ASCE Board of Direction voted to expend money from reserves on a Critical Infrastructure Response Initiative (CIRI). The objective of CIRI is to establish strategies and guidelines for:

1. Assessing U.S. infrastructure vulnerability.

2. Using the results of vulnerability assessments to prioritize infrastructure renovation.

3. Identifying research and development needs for new approaches to protecting critical infrastructure.

4. Developing retrofit designs to mitigate damage from disasters.

5. Developing new approaches to design and construction.

6. Improving disaster preparedness and response.

Page 68      PREV PAGE       TOP OF DOC    Segment 1 Of 2 To accomplish the CIRI objectives, ASCE has undertaken the following activities:

1. Review and evaluate existing and pending legislation regarding infrastructure, and provide appropriate input.

2. Identify existing and pending infrastructure initiatives by other professional and technical associations to identify opportunities for partnering, and to avoid duplication of efforts. For example, EPA has several water supply initiatives underway with AMWA. These initiatives, however, are currently focused on operations and management, and ways will be sought to provide input regarding design and construction issues.

3. Identify existing and pending infrastructure initiatives by federal agencies to identify opportunities for partnering.

4. Create a liaison or partnership with the Office of Homeland Security regarding the assessment of infrastructure vulnerability and the design and construction of mitigation measures.

In each of these areas, ASCE stands ready to assist other organizations, both public and private, to reduce the vulnerability of our nation's infrastructure.

ASCE's Efforts Related to the World Trade Center

Building Performance Study Teams

Page 69      PREV PAGE       TOP OF DOC    Segment 1 Of 2 On the afternoon of September 11, 2001, the Structural Engineering Institute of ASCE (SEI/ASCE) began assembling two teams of experts to study the performance of the buildings at the World Trade Center Complex and the Pentagon. The goal of the studies is to increase our knowledge and understanding of how buildings subject to extreme forces, such as those caused by the crash and resulting fires, perform under these unusual circumstances.

The scope of the WTC study team is quite broad. Although much of the Nation's attention has been riveted to the collapse of the twin 110-story towers, the WTC team is also examining several of the buildings in the surrounding area to determine what lessons might be learned from the performance of those structures as a result of their being impacted by falling debris and ensuing fires. Of particular interest to the engineering community is the performance of WTC 7 and the Banker's Trust Building.

Studies of this type have been performed by ASCE following other disasters under the authority of ASCE's Disaster Response Procedure, which provides the internal mechanism to organize and fund these studies. This was the fifth time in 2001 that the procedure was used to create study teams. Earlier teams, whose members were experts in earthquakes and lifeline engineering, were dispatched to study and document the damage from the earthquakes in El Salvador, India, Seattle, and Peru. In 1995, ASCE, in partnership with FEMA, organized a team to examine the Murrah Federal Office Building in Oklahoma City and surrounding area after the bombing.

Team Members and Partnering Organizations

The teams assembled by SEI/ASCE are comprised of leading experts in the fields of structural analysis and design, fire engineering, blast effects, and building materials. On October 1st, the WTC study became a joint effort between ASCE and the Federal Emergency Management Agency (FEMA), a partnership, which continues to this day. Page 70      PREV PAGE       TOP OF DOC    Segment 1 Of 2

The partnership with FEMA has proven to be extremely beneficial to the overall success and progress of the WTC team. In addition to providing funds, FEMA has provided logistical assistance, organizational and operational guidance, assistance in obtaining and organizing the needed data, and will provide the resources to publish the report. Utilizing the FEMA standard operation procedure for post-disaster engineering studies, managed through a contract with the architecture and engineering firm, Greenhorne & O'Mara, Inc., FEMA helped organize and coordinate the on-site operation of the BPS Team as they performed their initial data-collection efforts in New York City.

The WTC team is headed by W. Gene Corley, Ph.D., P.E., a preeminent expert on building collapse investigations and building codes. A full list of team members and an indication of their areas of expertise is attached. Dr. Corley, whose biography is attached, was the team leader and principal author of the ASCE/FEMA Murrah Federal Office Building Study Report in 1995.

The Pentagon team is headed by Paul Mlakar, Ph.D., P.E., of the U.S. Army Corp of Engineers Waterways Experiment Station in Vicksburg, Mississippi. Dr. Mlakar is a preeminent expert in blast engineering and was also a member of the ASCE/FEMA team, which examined the Murrah Federal Office Building.

In addition to assembling the teams of experts, SEI/ASCE has also organized a coalition of professional organizations to participate and support the work. These partnering organizations include: the Society of Fire Protection Engineers (SFPE), which provided recommendations of team members; the National Fire Protection Association (NFPA), which provided counsel on the fire engineering aspects of the study; and the Structural Engineers Association of New York (SEAoNY), which provided on-going assistance in the examination of the debris. It should be noted that SEAoNY, on its own initiative, was instrumental in providing assistance to the rescue and recovery operations immediately after the attacks. Additional members of the coalition are the American Institute of Steel Construction, Inc. (AISC), the American Concrete Institute (ACI), the Council of American Structural Engineers (CASE), the Council on Tall Buildings and Urban Habitat (CTBUH), the International Code Council (ICC), the Masonry Society (TMS) and the National Council of Structural Engineering Associations (NCSEA). Page 71      PREV PAGE       TOP OF DOC    Segment 1 Of 2

To increase our knowledge and understanding of the performance of the structures, the study is focusing on the response of the buildings, including fire behavior, structural design, fireproofing characteristics, and damage resulting from the aircraft impacts. As a result of this study, the structural and fire protection engineers comprising the team hope to provide an accurate description of the events and a preliminary assessment of the behavior of the affected buildings.

Data Collection

Simultaneous with the efforts to assemble the team and organize the supporting coalition, work began to collect data and information pertinent to the study. A significant part of this data collection phase was holding a meeting of the team in New York City to examine the wreckage and the surrounding buildings impacted by the collapse. On September 29th, the City of New York granted the team access to the World Trade Center site and from October 7th to the 12th, the entire team was on site. The team was provided with unrestricted access to all areas of the site except for areas where their presence might have impeded the on-going rescue and recovery efforts and areas which were determined to be extremely hazardous. To aid the team in this intense 6-day effort, FEMA made its Regional Operation Center (less that 8 blocks form the WTC site) available for use by the team on a 24–7 basis.

During this time period, team members also examined structural debris at the Fresh Kills Landfill on Staten Island and at the two recycling yards in New Jersey. Samples of structural steel were obtained and have since been subjected to laboratory analyses. Under the guidance of selected team members, numerous professional engineers who are members of SEAoNY are continuing this work on the team's behalf and have been visiting recycling yards and landfills regularly since the beginning of November. Additional samples of the structural steel have been obtained and are presently being stored at the National Institute of Standards and Technology in Gaithersburg, Maryland for use in future studies. Page 72      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Unlike other structural collapses, there is an unprecedented volume of photographic and video evidence available for the team to review, including more than 120 hours of network and private video footage. Individual team members have viewed every foot of this videotape and provided information on the available data to the team at large.

Beyond the information and data pertaining to the events on September 11th, there is also a need to establish, as accurately as possible, the physical attributes of the towers and surrounding buildings prior to the impact of the airplanes. Doing this is a monumental task. The construction of the towers was documented by literally thousands of engineering drawings. In addition, there were numerous changes to the towers over their life. This effort is also being conducted for WTC 7, which is of considerable interest to the team. These data, together with the data previously described will be used to construct detailed computer models of the structures.

Impediments Encountered by the Building Performance Study Teams

In the 10 years in which ASCE has been conducting studies of disasters we have learned that our teams will always encounter impediments. It is therefore not surprising that the study team has encountered some difficulties in their data collection activities. However, we have also learned that with time and persistence these difficulties are either overcome or an alternate approach is found to enable the team to satisfactorily complete their study as described below.

When studying damaged structures it is important to understand the physical nature of the original structure as soon as possible. Commonly this is accomplished by obtaining and studying the engineering plans of the structures. Because the team did not have the engineering plans of the affected structures during the site visit in early October, arrangements were made to have several of the principal designers make presentations to the team. These briefings enabled the team to conduct their site visit more efficiently and to better understand the structure of the affected buildings. The delay in the receipt of the plans hindered the team's ability to confirm their understanding of the buildings. Through the efforts of FEMA and others, the team received the engineering plans for the WTC Towers on January 8, 2002, and work is proceeding. Page 73      PREV PAGE       TOP OF DOC    Segment 1 Of 2

As noted previously, there is an enormous volume of video and photographic documentation of the events of September 11th. This type of evidence can often yield significant insights into the failure mechanisms but it is imperative that the highest quality video footage be used. The team did experience some difficulty in obtaining video footage from the various television networks.

Obtaining access to the site of a disaster is always difficult and clearly the search and rescue efforts and any criminal investigation must take first priority. However, in all studies of this nature, gaining access to the site as soon as possible is important in order to observe and document the debris and site conditions. For the future, it may be useful to consider some protocol or process whereby selected individuals from the BPST would be allowed on site in the initial days after a catastrophic event to gather critical data.

There has been some concern expressed by others that the work of the team has been hampered because debris was removed from the site and has subsequently been processed for recycling. This is not the case. The team has had full access to the scrap yards and to the site and has been able to obtain numerous samples. At this point there is no indication that having access to each piece of steel from the World Trade Center would make a significant difference to understanding the performance of the structures.

Resources are always an issue with building performance studies, particularly for one whose magnitude and scale is unprecedented. The total amount of resources being dedicated to support the team's activities is approximately $1 million, which has allowed the team to do the initial reconnaissance of the site and the building materials, begin the process of hypothesis setting, and conduct some limited testing. This raises the question of what amount of money would be sufficient. It is our opinion that $40 million would be a sufficient amount to fully fund a comprehensive study of an event of this magnitude and complexity. Page 74      PREV PAGE       TOP OF DOC    Segment 1 Of 2

A Protocol for Future Building Performance Study Teams

The Building Performance Assessment Team program in place within the Federal Emergency Management Agency (FEMA) has a long and distinguished history of providing excellent information to the engineering profession. The BPAT program has a detailed protocol in place which has been continually refined and improved upon throughout its use.

Similarly, ASCE's Disaster Response Procedure has been successfully used by ASCE to conduct important studies of significant disasters. ASCE's procedure also has been refined and improved upon through its history.

The history of both of these programs however has been predominantly with natural disasters such as hurricanes, earthquakes or floods. While it is certainly our sincere hope that the anti-terrorist efforts of our government will prove successful, it may be useful to review the existing protocols from the perspective of their application to major, unprecedented events such as the terrorist attack on the World Trade Center. This could address some of the impediments that were discussed above.

A Case Study for Improved Building Practices?

As many in the United States and the world examine the future of tall buildings it is important to look at how well these buildings performed under extreme circumstances. It must be remembered that large commercial aircraft hit the World Trade Center Towers, yet both withstood the initial impact. Additionally, as has been widely reported, almost all of the individuals in the buildings below the impact zone were able to get out of the buildings to safety. Efforts such as that being conducted by the Building Performance Study teams and studies emanating from this initial study will seek to extend the performance of structures to allow occupants ample time to reach safety. Page 75      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Because there is no limit to the destructive forces which terrorists can bring to bear against our built infrastructure it is impossible to design a building to withstand such an attack. The multi-faceted approach presently being pursued, that being to prevent the attack initially and pursue rational, scientifically based methods to improve structural performance, is both sound and prudent.

Future Research Needs for Civil Engineering

As has occurred throughout the world, the events of September 11th have created new challenges for the civil and structural engineering communities. Solving the problems presented by these challenges will be neither easy nor quick, and will require the collective efforts from a broad range of engineering and scientific disciplines.

While there will be a number of specific issues and recommendations in the reports being issued by the ASCE/FEMA WTC study team and the ASCE Pentagon study team later this spring, there are several high priority needs from the structural engineering community to which I would like to draw your attention:

Progressive Collapse: The likelihood of a building or structure collapsing progressively is dependent upon two inter-related through separate behaviors: the event or load to which the structure is subjected and the strength or redundancy of the structure. At present, there is no rational technical basis to specify the initiating event or conversely to evaluate the effectiveness of alternative mitigation strategies, either alone or in combination. While virtually all structures contain some degree of redundancy, we must now live, build and function in a world where the performance demands placed on our built infrastructure have been altered, thereby necessitating the development of engineering-based tools to guide our profession in the future. Page 76      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Fire-Structure Interaction: While events such as those of September 11th are rare, and through the efforts of the President and Congress will be even less likely in the future, normal fires in buildings and other structures are not rare events. To continue to improve the performance of structures in a fire environment will require the development of new tools and design methods through the collaboration of the fire engineering and structural engineering communities for application to both new and existing buildings. This work should include tools by which to address fire as a structural design load, understanding the behavior of structural connections under fire conditions, and a coupling between fire dynamics and structural response.

We believe that each of these needs are crucial to advancing the health, safety, and welfare of the citizens of our nation. Each of these priorities are also highly complex and will require a substantial partnership between public agencies and private organizations to accomplish this work.

In the private sector, ASCE has begun this work through the establishment of a multidisciplinary coalition of engineering organizations. This coalition, led by the Structural Engineering Institute of ASCE, includes the Society of Fire Protection Engineers, the National Fire Protection Association, the Structural Engineers Association of New York, and the International Code Council. Taken in combination, this coalition represents over 250,000 architects, engineers and scientists who stand ready to bring their talents and expertise to meeting the needs of our nation.

In the public sector, the National Institute of Standards and Technology's (NIST) Building and Fire Research Laboratory (BFRL), as the only federal laboratory dedicated to both building and fire research, BFRL can play a key role in assessing and addressing the vulnerability of the nation's buildings and physical infrastructure. The public-private response program that has been established with significant NIST leadership encompasses the critical needs identified above. We urge you to provide the support and resources sought by NIST so that together we can continue to provide the reliability and performance which our country expects from our physical infrastructure. Page 77      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Conclusion

Thank you for the opportunity to express ASCE's views. We offer you and all of the agencies involved in the recovery efforts ASCE's full resources to manage the nation's critical infrastructure needs. We are ready to help in any way possible, and I am eager to hear from you regarding ways that ASCE's CIRI can support you as you examine our infrastructure needs in the coming months.

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Chairman BOEHLERT. Thank you very much, Dr. Corley. Dr. Corbett.

STATEMENT OF PROFESSOR GLENN P. CORBETT, ASSISTANT PROFESSOR OF FIRE SCIENCE AT JOHN JAY COLLEGE, NEW YORK CITY Page 78      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Mr. CORBETT. Yes. Good afternoon, Chairman Boehlert, and, members of the House Committee on Science. I want to thank you for inviting me to speak on the topic of the World Trade Center disaster investigation. This is an issue of significant national importance, and I speak for many who understand this importance.

I would like to discuss three issues with you today—an analysis of the current building performance assessment study of the World Trade Center collapse, a proposal for an enhanced national disaster investigation response protocol for future disasters, and a recommendation for a commission on the World Trade Center disaster.

In the wake of the loss of the World Trade Center, many questions began to arise as to the cause of the collapse of the Twin Towers. What were the specific causal factors of the collapse, and what was the exact sequence of events that led to the collapse? These are important questions that impact national security. We are a Nation at risk. There are many high-rise buildings and structures across the country and many more on the way and we need to learn from the events of 9/11 and apply these lessons.

As engineers, architects, builders, as firefighters, and as citizens who occupy high-rises, and as those who are in a position to protect those citizens, there are critical questions regarding this collapse, and they need answering. And we need to extract all of the lessons for the—for future generations who will live and work in high-rise buildings.

The building performance assessment currently being conducted of the collapse is just that—an assessment, not an investigation, in my opinion. While the Building Performance Assessment Team is composed of an elite group of engineers and scientists, the standard procedures used by the BPAT team have proven to be inadequate. Handling the collapse study as an assessment, rather than as an investigation, has allowed valuable evidence in the form of the towers' structural steel to be destroyed. It is the steel that holds the primary key to understanding the chronology of the events resulting in the collapse. Page 79      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Without an official investigative presence, the FEMA Sanction Assessment Team did not have the authority to ensure that all the structural steel was thoroughly examined and the crucial steel from the points of impact were saved for examination. It is my understanding that only a handful of pieces of the steel from the points of impact have been secured to date. In addition, the BPAT team studying the collapse has apparently been hampered in accessing building construction documents. These problems will have an impact on the BPAT report that is due to be released in April. The lack of significant amounts of steel for examination will make it difficult, if not impossible, to make a definitive statement as to the cause and chronology of the collapse.

The collapse of the World Trade Center disaster—the World Trade Center towers was the largest structural collapse in world history. A disaster of such epic proportions demands that we fully resource a comprehensive, detailed investigation. Instead, we are staffing the BPAT with part-time engineers and scientists on a shoestring budget.

The current World Trade Center disaster inquiry has exposed a gaping hole in the way that we investigate disasters. We don't have a comprehensive plan for disaster investigations, except for plane crashes, and we don't apply the necessary resources for a complete and thorough investigation. And we need to have an enhanced disaster investigation response protocol that provides for a systematic, multidisciplinary, and scientifically rigorous approach. We need to bring in the experts in an organized and rapid manner to extract all of the lessons from the disaster. Finally, we need to make sure that the lessons are actually applied.

I would recommend that the task force be impaneled to develop an enhanced disaster investigation protocol. Given FEMA's role in disaster response and their critical disaster mitigation responsibilities, I would recommend that this task force be initiated within their organization. Page 80      PREV PAGE       TOP OF DOC    Segment 1 Of 2

With regard to the World Trade Center disaster, there are several other additional areas that need to be investigated and studied. Specifically, there are five additional focus areas that are of concern—an analysis of the building design itself, the fire fighting operations, the building evacuations, the search and rescue operations, and the relationship between the disaster and our building and fire codes.

In order to gather all the lessons, we must analyze the disaster as a whole. Studying them as individual items eliminates the critical process of information-sharing and understanding the interrelationships between these different focus areas. We need to bring all six of these focus areas together as a collective group under one roof, so to speak. Studying the disaster as a whole will also ensure coordination, avoid duplication, and verify that all areas of concern are being covered. I would recommend that a commission on the World Trade Center disaster be immediately organized to initiate a comprehensive investigation and to coordinate the existing public and private research projects that are already underway.

For example, an ad hoc committee entitled, The World Trade Center Evacuation Study Initiative, has been meeting for several months to study the issues of the building evacuations. Study groups like these need to be brought together. A variety of important lessons will come from the World Trade Center disaster that will apply to our current national building codes.

For example, our current requirements in high-rise structures treat a 15-story building the same as we treat a 100-story building. In fact, from a fire-fighting perspective, a 15-story building is completely different than a 100-story building, as we well know. Page 81      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Another example is that the test that we utilize to establish the fire resistance of beams and columns—steel columns. The test was first developed in the 1920's and, yet, we are still using the same test with the same 1920's fires in the year 2002. We need to address and correct these kinds of deficiencies.

We can learn many lessons from the disaster at the World Trade Center. In fact, we must learn these lessons. The lessons will form better building codes, improved building design methodologies, improved emergency procedures, and enhanced protection against terrorist attacks. We must assure that these lessons are actually applied, increasing the level of safety and security for all of our citizens.

I thank you, Chairman Boehlert, and the honorable members of the Committee on Science for giving me this important opportunity to share my thoughts with you. I would be happy to answer any questions that you may have and we would ask that——

[The prepared statement of Mr. Corbett follows:]

PREPARED STATEMENT OF GLENN P. CORBETT

Good afternoon Chairman Boehlert and Members of the House Committee on Science. I want to thank you for inviting me to speak on the topic of the World Trade Center disaster investigation. This is an issue of national importance, and I speak for many who understand that importance.

Page 82      PREV PAGE       TOP OF DOC    Segment 1 Of 2 I would like to discuss three issues with you today: an analysis of the current building performance assessment study of the World Trade Center collapse, a proposal for a national disaster investigation response protocol for future disasters, and a recommendation for a Commission on the World Trade Center Disaster.

In the wake of the loss of the World Trade Center, many questions began to arise as to the cause of the collapse of the twin towers. We know, of course, that the towers collapsed catastrophically in a very short time. We know that there is no precedent for this event. And we in the fire protection engineering community know that building failures result directly from very specific causal factors and structural behavioral characteristics that, in the case of the WTC, have yet to be determined.

What role did the planes play in destroying the structural integrity of the towers? What was the impact of the jet fuel fires upon the steel trusses and columns? How long did the jet fuel fires burn? What were the specific causal factors of collapse and what was the exact sequence of events that led to the collapse?

These are important questions that impact national security. We are a nation at risk. There are many high-rise structures in the United States—and more on the way—that demand that we learn from the disaster on 9–11 and apply the lessons learned.

As engineers, as architects, as builders, as firefighters, as citizens who occupy high-rises, and as those who are in a position to protect those citizens, there are critical questions regarding this collapse that need answering. We must extract the lessons for future generations who will live and work in high-rise structures. Page 83      PREV PAGE       TOP OF DOC    Segment 1 Of 2

The building performance assessment currently being conducted of the World Trade Center collapse is just that: an assessment, not an investigation. While the Building Performance Assessment Team (BPAT) is composed of an elite group of engineers and scientists, the standard procedures used by the BPAT have proven to be inadequate. Handling the collapse study as an assessment has allowed valuable evidence—the steel building components—to be destroyed. The steel holds the primary key to understanding the chronology of events and causal factors resulting in the collapse.

Without an investigative presence, the FEMA-sanctioned assessment team did not have the authority—nor the organizational wherewithal—to ensure that all of the structural steel was thoroughly examined and the crucial steel from the points of impact saved for examination. Only a handful of pieces of steel from the points of impact have been secured to date. In addition, the BPAT studying the collapse has apparently been hampered in accessing building construction documents.

These hindrances will have an impact on the BPAT report, due to be released in April. The lack of significant amounts of steel for examination will make it difficult, if not impossible, to make a definitive statement as to the specific cause and chronology of the collapse.

The collapse of the World Trade Center towers were the largest structural collapses in world history. A disaster of such epic proportions demands that we fully resource a comprehensive, detailed investigation. Instead, we are staffing the BPAT with part-time engineers and scientists on a shoestring budget. Page 84      PREV PAGE       TOP OF DOC    Segment 1 Of 2

The current World Trade Center disaster inquiry has exposed a gaping hole in the way that we investigate disasters. We don't have a comprehensive plan for disaster investigations (other than plane crashes) and we don't apply the necessary resources for complete and thorough investigations of disasters.

We must have a comprehensive plan in place to handle such large-scale investigations. We need to have a greatly enhanced national disaster investigation response protocol, providing for a systematic approach. We must bring in the experts in a rapid, organized manner to extract all of the lessons from a disaster. Finally, and most importantly, we need to ensure that the lessons are actually applied.

I recommend that a task force be impaneled to develop such a protocol. In my opinion, FEMA would be the best organization to organize the task force, given their role in disaster response and their critical disaster mitigation responsibilities. [Witness would like to submit, for the record, a document entitled Appendix A PROPOSAL FOR AN ENHANCED DISASTER INVESTIGATION PROTOCOL.]

The collapses of the World Trade Center structures are not the only areas of concern. There are five other very important areas of study concerning the World Trade Center disaster need to be explored. In addition to the collapse study, we should be analyzing the building designs themselves, the firefighting procedures, the building evacuations, the search and rescue operations, and the impact on building and fire codes.

These six primary focus areas would form the basis of a complete World Trade Center study. Since these focus areas are multidisciplinary, it is critical that the experts in each of these areas be permitted to come together under one roof, so to speak. This will ensure coordination, avoid duplication, verify that all areas of concern are covered, and ensure that the essential process of information sharing takes place. Page 85      PREV PAGE       TOP OF DOC    Segment 1 Of 2

The World Trade Center disaster must be analyzed as a total event, using an integrated, scientifically rigorous approach. Studying the issues individually minimizes the effect on the whole. There are interrelationships among these areas that must be combined and the lessons applied for future generations.

I recommend that a World Trade Center Disaster Commission be immediately organized to initiate a comprehensive investigation and to coordinate the existing public and private World Trade Center research projects currently underway. For example, an ad hoc committee entitled the    World Trade Center Evacuation Study Initiative (composed of life safety experts from many different organizations) has been meeting for several months to study the issues of the World Trade Center building evacuations. It is important that this group and other World Trade Center research projects come together to allow for a coordinated approach to studying this disaster.

The Commission should be given the appropriate authority and staff to ensure that a viable investigation plan is created and implemented, with the ultimate goal of producing a comprehensive report that details the findings of the investigation, the lessons learned, and, finally, the needs for further research.

Some of the lessons that will emerge in the Commission report will apply directly to our building codes and the way that we build new structures. Of particular importance are the regulations covering fire protection of high-rise buildings. [Witness would like to submit, for the record, a document entitled Appendix B, PROPOSAL FOR A WORLD TRADE CENTER DISASTER COMMISSION.] Page 86      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Our current high-rise code requirements do not address the real world issues encountered when fighting fires in high-rise buildings. For example, our model building codes treat a 15-story building exactly the same as a 100-story building in terms of fire protection—we apply the same level of structural fire resistance, the same fire protection systems, the same everything. We place heavy reliance on automatic sprinkler systems, with little redundancy in terms of structural fire resistance to ensure that the building will stay up long enough to allow for firefighters to reach the fire area, rescue trapped inhabitants, and generally deal with the situation. Automatic sprinklers are the best protection against fire, but we need to have a backup when we are 1,000 feet high in a building on fire. We need a proper balance of passive and active protection in larger high-rise structures.

An example of the crucial need for research is found when we analyze the current test used to establish the fire resistance various structural members used in buildings. This test, commonly known as A.S.T.M. E–119, was developed to provide assurance that the fire protection coating/encasement provided for beams and columns would allow them to be subjected to high temperatures and not collapse. This test, however, dates back to the 1920's and is based upon the temperatures recorded when a set of buildings were burned back then for study purposes. Today, we basically still use the same test with the same fire temperature and exposure conditions developed over 75 years ago. I would argue that the fires of the 1920's are different than those of today, and that this nationally accepted test needs to be thoroughly reexamined in light of what happened on 9–11.

We can learn many lessons from the disaster at the World Trade Center. In fact, we must learn these lessons. The lessons may take the form of better building code regulations, enhanced building design methodologies, improved emergency procedures, and enhanced protection against terrorist attacks. We must assure that these lessons are actually applied, thus improving the level of safety and security for American citizens. Page 87      PREV PAGE       TOP OF DOC    Segment 1 Of 2

I thank you, Congressman Boehlert and honorable Members of the Science Committee, for giving me the opportunity to share my thoughts with you. I would be happy to answer any questions that you may have.

Appendix A

PROPOSAL FOR AN ENHANCED DISASTER INVESTIGATION PROTOCOL

PREPARED BY PROFESSOR GLENN P. CORBETT

JOHN JAY COLLEGE OF CRIMINAL JUSTICE

Need for an Enhanced Protocol:

When a major disaster strikes in the United States, very important questions typically arise: What happened? Why were so many lives lost? How can we prevent this from happening in the future?

These questions need answers. If we are to protect ourselves and future generations, we must learn the lessons of the disaster and apply them.

For past disasters like the Oklahoma City bombing and the Northridge earthquake, a variety of research projects were undertaken. While these research projects produced very useful information, they were conducted independently, without the benefit of a central coordinating body to integrate all of the information. In addition, it has become apparent that some of the very critical lessons never found their way into general design practice—there is a disconnect between the private sector code-writing organizations and the lessons coming out of the research projects. Page 88      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Since disasters are multidisciplinary, they require an integrated and comprehensive approach. The disaster must be investigated as a whole, following standard investigative procedures. A single standardized model can be developed for all disasters, with a specific set of adaptable procedures for each type of disaster.

Development of an Enhanced Disaster Investigation Protocol

Since FEMA has responsibilities for disaster response and disaster mitigation, it is suggested that the development of an enhanced disaster investigation protocol be initiated within FEMA. Other Federal agencies and private sector organizations with disaster responsibilities/interest would obviously need to participate in the development of the protocol. The National Transportation Safety Board's investigation procedures provide a very useful model for which to begin the development of an enhanced disaster investigation protocol.

Organizational Details of a Enhanced Disaster Investigation Protocol

Organizationally, an enhanced disaster investigation protocol:

Utilizes an investigative lessons learned approach to analyzing disasters.

Provides a detailed investigation command structure to establish which agency is in charge and the limits of its investigative authority.

Details the responsibilities of each participating organization. Page 89      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Establishes the specific types of disasters that will be investigated and the necessary resources needed for each type of disaster.

Functional Details of an Enhanced Disaster Investigation Protocol

Functionally, an enhanced disaster investigation protocol:

Incorporates a rapid response capability, allowing for the immediate deployment of a initial set of investigators to plan the investigation, secure evidence, and to begin the documentation process.

Ensures the deployment of self-sufficient, disaster-specific specialist teams to the scene to conduct the detailed investigation work (similar to USAR organization).

Ensure that periodic press releases are issued to inform the public of the investigation and its progress.

Coordination Details of an Enhanced Disaster Investigation Protocol

In order to assure coordination, an enhanced disaster investigation protocol:

Ensures that liaisons are appointed to the local incident commander's command post, search and rescue teams (e.g., USAR), and criminal investigation organizations (e.g., FBI) to ensure coordination with their efforts. Page 90      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Ensures that the appropriate specialist teams are deployed and are working together efficiently.

Ensures that additional outside research efforts are integrated into the investigation.

Ensures that a regimented set of meetings with specialist team leaders and staff are held to review progress and to keep investigation on course.

Final Report Details of an Enhanced Disaster Investigation Protocol

In order to produce a comprehensive report, an enhanced disaster investigation protocol:

Ensures that the specialist team leaders are assembled to provide oral presentations to other team leaders/staff and to provide written draft reports for inclusion in Final Report.

Ensures that the staff support collates the team reports and configures them into a standardized, single author report format.

Ensures that long-term research needs are identified and documented for inclusion in the Final Report.

Applied Lessons Details of an Enhanced Disaster Investigation Protocol

Page 91      PREV PAGE       TOP OF DOC    Segment 1 Of 2 To ensure the application of the lessons learned, an enhanced investigation protocol:

Appoints code-writing organization representatives to investigative specialist teams.

Establishes a formal agreement with the private sector code-writing bodies that ensures every recommendation for a change in the codes will be formally reviewed by the code-writing body. Final disposition of disaster code change proposals (including rationale if code change is rejected) will be formally documented and issued back to the affected disaster investigation organizations.

Appendix B

PROPOSAL FOR A WORLD TRADE CENTER DISASTER COMMISSION

PREPARED BY PROFESSOR GLENN P. CORBETT

JOHN JAY COLLEGE OF CRIMINAL JUSTICE

Need for the Commission:

In the wake of the World Trade Center disaster, it has become readily apparent that many issues involving high-rise building construction, emergency evacuation procedures, firefighting operations, and other important concerns must be analyzed collectively in order to learn from the disaster and apply the lessons to the future. Many Americans live and work in high-rise buildings, so it is essential that we learn as much as possible about this disaster. Page 92      PREV PAGE       TOP OF DOC    Segment 1 Of 2

The establishment of a Commission will allow for the various public and private research efforts currently underway to come together under one roof and share information, a critical issue when studying a disaster as complex as the collapse of the World Trade Center towers. The multidisciplinary aspects of the World Trade Center necessitate that the disaster be investigated in that context, allowing for the identification of interrelationships between the areas of concern.

Commission Objectives:

The Commission will direct an investigation and coordinate a comprehensive review of all aspects of the World Trade Center disaster. The Commission will take a lessons learned type of approach in its review and analysis of the disaster.

The Commission will utilize the expertise of nationally recognized individuals in the fields of architecture, engineering, forensic investigation, construction methods and materials, fire protection and life safety, human behavior, firefighting, search and rescue, terrorism, building/fire code development and emergency management.

The Commission will prepare a set of detailed recommendations for the improvement of building designs, building materials, safety regulations and building codes, as well as emergency response procedures.

The Commission could form the model for a portion of an enhanced disaster investigation protocol. Page 93      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Establishment of the Commission:

Given the role of FEMA in disaster response and hazard mitigation, it is logical to have the Commission operate under the auspices of FEMA. FEMA would play the role of coordinator and provide staff and facility support (including the development of a final report).

The Commission should have a core of eight primary members, including a Chairman, a Vice Chairman, and designated leaders from each of the six focus areas identified below. All eight of the Commissioners would meet on a regular basis to share information, identify needs, and to direct the overall activities of the Commission.

Six Primary Focus Areas of Commission:

Building Design

Building Collapse

Firefighting Procedures

Building Evacuation

Search and Rescue Operations

Building Codes and Regulations Page 94      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Examples of Focus Area Inquiries:

Building Design

Identify general design concepts (lightweight construction, loads, etc.).

List fire protection features in original design and improvements.

Describe fire protection and life safety upgrades after 1993 attack.

Establish means of egress design objectives.

Building Collapse

Create chronology of events leading to collapse.

Examination of physical evidence to identify failure mode(s) leading to collapse.

Examination of physical evidence to assess material behavior.

Model fire behavior (temperature, heat release rate, etc.), including contribution of jet fuel.

Create fire and structural models to illustrate building conditions for duration of incident. Page 95      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Firefighting Procedures

Interview surviving firefighters, review radio transmissions, and analyze reports to create as complete a picture of firefighting response as possible.

Map and analyze incident command structure.

Establish the overall goals of incident command officers, including use of standard high-rise firefighting strategies.

Enumerate tactical problems encountered by fire companies.

Detail radio transmission problems at incident.

Building Evacuation

Analyze building evacuation procedures, including directions given to occupants by building staff.

Interview evacuees to collect their observations and experiences during evacuation.

Model the evacuation including time of egress, points of constriction, crossovers delays, etc.

Page 96      PREV PAGE       TOP OF DOC    Segment 1 Of 2 Highlight the effects of improvements made after 1993 attack.

Search and Rescue Operations

Detail coordinated effort between FDNY and USAR teams.

Establish impact of self-responders on rescue operations.

Analyze performance of tools and technologies used in search efforts (robots, listening devices, cutting equipment, etc.).

Detail efforts of maintaining scene safety.

Building Codes and Regulations

Establish national standards/codes in effect at time of construction.

Identify the deficiencies of ASTM E–119 (a national test standard that establishes structural fire resistance of various fire resistive materials) when compared with the fire conditions experienced during the incident.

Review the high-rise requirements found in current national building codes in context of this incident.

Correlate accepted terrorism design strategies with this incident and develop design criteria for inclusion in building codes. Page 97      PREV PAGE       TOP OF DOC    Segment 1 Of 2

The Final Report of the Commission:

Upon completion of the investigation and research efforts, a final report should be issued. The report will tell the story of the disaster, highlight the lessons learned, identify additional research needs, and provide a set of specific recommendations. General examples of recommendations could include the following:

Identification of building/fire code provisions that need to be added/updated/deleted.

Procedural changes for fire service response to high-rise and terrorist incidents

Changes in evacuation procedures and egress capacity criteria

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Chairman BOEHLERT. Thank you very much, Dr. Corbett. Dr. Astaneh.

STATEMENT OF DR. ABOLHASSAN ASTANEH-ASL, PROFESSOR, DEPARTMENT OF CIVIL AND ENVIRONMENTAL ENGINEERING, UNIVERSITY OF CALIFORNIA, BERKELEY Page 98      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Dr. ASTANEH-ASL. With your permission—Mr. Chairman, with your permission, I would like to use the projection.

Chairman BOEHLERT. Can we have the lights dimmed, please, so we get a better—I thank you.

Dr. ASTANEH-ASL. Chairman Boehlert, members of the Committee, families of victims of the 9/11 terrorist attack, it is a great honor for me to testify here today.

My involvement in the collapse of the World Trade Center is to conduct reconnaissance of the collapsed and damaged World Trade Center buildings and to collect the structural engineering perishable data. The main objectives are to document failure modes, learn as much as possible from the collapse, collect material samples for future testing, and conduct a realistic failure analysis of the towers subjected to impact and ensuing fire in order to understand the causes of the collapse.

Our project was funded by the National Science Foundation as one of the eight Quick Response Research Awards a few days after the World Trade Center collapse. The other seven NSF grants are in the areas of fire engineering, social sciences, and response and recovery. I started my studies almost a week after the collapse and since then I have been able to investigate the structural elements of the World Trade Center and have collected data on failure modes, fire and impact damage, and have identified and saved sections of the structure that appeared to be impacted by the planes or have collapsed under an intense fire. I have also investigated the quality of construction. Page 99      PREV PAGE       TOP OF DOC    Segment 1 Of 2

Here are some samples of my work. I was not able to access Ground Zero, so I have done my investigation at the scrap yard, looking into important failure modes and collecting important items from the recycling plant.

We will, and still are, planning to build a realistic computer-based, structural model of the World Trade Center and towers, subject the model to a realistically simulated impact of the planes, and ensuing fire, and conduct a detailed stress analysis. However, since we have not been able to obtain drawings, even now, and other data, we are unable to proceed with our study.

I would like to show you the results of one such analysis of a generic building and what type of stress analysis we can do on the World Trade Center to understand its collapse.

Here is an example of a steel structure subjected to the impacts of a fully loaded, fueled 747 airplane. This is not artistic rendering or animation of the impact. This is the result of a mathematical analysis of stress.

Here is the plane approaching that building at 450 miles per hour. It impacts the building and damages the columns and enters. Close up here, you can see the damage to the structures while we have eliminated the plane and made it invisible. Here is the damaged area.

Here is the—to the right bottom is the plane and you are seeing the stresses developed in the plane and how a plane breaks. We have made the structure invisible. Notice the wings in this case clipping and dropping, but the plane breaks because the stresses are so high. Page 100      PREV PAGE       TOP OF DOC    Segment 1 Of 2

After plane enters the building, we can analyze the heat effects, in this case, the damaged structures subjected to the heat effects. And you can see the spread of temperature and weakening of steel and the final collapse. This is what we would like to do for the World Trade Center.

The impediments to our studies were not having access to Ground Zero and surrounding damaged buildings, not having enough time to inspect the World Trade Center steel before it was recycled, not having the drawings, videotapes, photographs, and other data on the building to conduct our analysis of the collapse.

On the subject of research needs, there are pressing needs for short-term, as well as long-term research, related to the World Trade Center collapse. In the short term, there is an urgent need for a comprehensive, in-depth, and scientific study of the collapse of the World Trade Center towers. Due to the unprecedented nature of the collapse and its complexity, a broad-based team of experts from academia, government agencies, and the private sector needs to be assembled to conduct such research-oriented investigations within the Federal entities such as NSF or NIST.

In the long term, there is a need for major and sustained funding to conduct basic and applied research on various aspects of terrorist attacks. Such research programs can be directed by the National Science Foundation, among others, which, over the last few decades, has directed so successfully the research and technology development in the area of earthquake hazard mitigation, among many others.

Page 101      PREV PAGE       TOP OF DOC    Segment 1 Of 2 As for the fire research, NIST traditionally has been the leading research and development agency. Also, a significant amount of research has been done in academia. Such research activities supported by the Congress can result in the development of scientific methods and technologies that can be used to assure life safety in the event of future terrorist attacks, and minimize the impact of such attacks on the national security, economy, and quality of our lives.

I would like to take this opportunity and thank Chairman Boehlert and Members of the Committee on Science for inviting me to testify. I will be available to answer any questions that you might have.