New York City Mayor Rudolph Giuliani establishes the city’s Office of Emergency Management (OEM). This is tasked with coordinating the city’s overall response to major incidents, including terrorist attacks. [Gotham Gazette, 9/12/2001; 9/11 Commission, 7/24/2004, pp. 83-284] It will also be involved in responding to routine emergencies on a daily basis. [9/11 Commission, 5/18/2004 
] OEM comprises personnel drawn from various City agencies, including police and fire departments, and emergency medical services. It begins with a staff of just 12, but by 9/11 this will have increased to 72. Its first director is counterterrorism expert Jerome Hauer. [New York Times, 7/27/1999] Richard Sheirer will take over from him in February 2000 and will be OEM director on 9/11. [New York Magazine, 10/15/2001; Jenkins and Edwards-Winslow, 9/2003, pp. 12 ; 9/11 Commission, 5/18/2004 ] OEM is responsible for improving New York’s response to potential major incidents by conducting regular training exercises involving various city agencies, particularly the police and fire departments (see 1996-September 11, 2001). [9/11 Commission, 7/24/2004, pp. 283] According to Steven Kuhr, its deputy director from 1996 to 2000, one of the key focuses of the office is counterterrorism work, “responding to the consequence of a chemical weapons attack, a biological weapons attack, or a high-yield explosive event.” [CNN, 1/16/2002] Furthermore, OEM’s Watch Command is able to constantly monitor all the city’s key communications channels, including all emergency services frequencies, state and national alert systems, and local, national, and international news. It also monitors live video feeds from New York Harbor and the city’s streets. [9/11 Commission, 5/18/2004 ; 9/11 Commission, 7/24/2004, pp. 283, 542] In June 1999, Giuliani will open the OEM’s Command Center on the 23rd floor of World Trade Center Building 7 (see June 8, 1999).
1996-September 11, 2001: New York Office of Emergency Management Practices for Terrorist Attacks, but Not Using Planes as Missiles
New York City’s Office of Emergency Management (OEM) holds regular interagency training exercises in the years preceding 9/11, aiming to carry out a tabletop or field exercise every eight to 12 weeks. Mayor Rudy Giuliani is personally involved in many of these. The exercises are very lifelike. Giuliani will later recall, “We used to take pictures of these trial runs and they were so realistic that people who saw them would ask when the event shown in the photograph had occurred.” Scenarios drilled include a sarin gas attack in Manhattan, anthrax attacks, and truck bombs. One exercise, which takes place in May 2001, is based on terrorists attacking New York with bubonic plague (see May 11, 2001). Another, conducted in conjunction with the New York Port Authority, includes a simulated plane crash. Just one week before 9/11, the OEM is preparing a tabletop exercise with the Metropolitan Transportation Authority, to develop plans for business continuity in New York’s Financial District—where the World Trade Center is located—after a terrorist attack (see (September 4, 2001)). OEM staffers are actually preparing for a bioterrorism exercise on the morning of 9/11 (see (Shortly After 8:46 a.m.) September 11, 2001 and September 12, 2001). Jerome Hauer, OEM director from 1996 to February 2000, will recall, “We looked at every conceivable threat that anyone on the staff could think of, be it natural or intentional, but not the use of aircraft as missiles.” He will tell the 9/11 Commission: “We had aircraft crash drills on a regular basis. The general consensus in the city was that a plane hitting a building… was that it would be a high-rise fire.… There was never a sense, as I said in my testimony, that aircraft were going to be used as missiles.” [Time, 12/22/2001; Giuliani, 2002, pp. 62-63; Jenkins and Edwards-Winslow, 9/2003, pp. 15, 30 ; 9/11 Commission, 5/19/2004; 9/11 Commission, 5/19/2004 ] The OEM was created in 1996 by Giuliani to manage New York’s response to major incidents, including terrorist attacks (see 1996). [9/11 Commission, 7/24/2004, pp. 283-284]
November 8-9, 1997: Exercise Is Held near the World Trade Center Based around a Simulated Chemical Terrorist Attack
New York City’s Office of Emergency Management (OEM) conducts a training exercise called Operation ICE, which is designed to prepare emergency response workers for the possibility of a terrorist attack and includes a simulated chemical attack near the World Trade Center. [City of New York, 11/9/1997; New York Times, 11/9/1997; 9/11 Commission, 5/19/2004] Operation ICE is the largest terrorism response exercise ever conducted by the city. Its aim, according to Mayor Rudy Giuliani, is “to see what would happen if in fact there was a chemical attack and to see how police, fire, EMS [emergency medical services], hospitals, the FBI… would all respond.” [New York Daily News, 11/10/1997; New York Times, 11/10/1997]
Volunteers Go to Hospitals with the Symptoms of Chemical Exposure – Operation ICE incorporates a series of field and tabletop exercises. It consists of three interconnected training events, called MEDEX, FIELDEX, and INFRAEX. MEDEX, apparently the first event to take place, is held on November 8. Forty-one city hospitals are involved in it. The aim is for the emergency workers who participate to learn how to deal with and treat “walk-in, self-referred” patients who arrive at emergency rooms minutes or hours after they have been exposed to a chemical agent. Volunteers, playing the victims, visit the hospitals, complaining about various symptoms. Hospital personnel have to determine the type of chemical exposure that matches the symptoms and decide how to treat the victims. [New York Times, 11/9/1997; Fire Engineering, 3/1998]
Field Exercise Is Held near the WTC – FIELDEX, which is the centerpiece of Operation ICE, takes place a day later, on November 9. This is an elaborate field training exercise involving a simulated chemical attack at a large public gathering. It is directed by Jerome Hauer, head of the OEM, and more than 600 emergency response workers take part. They belong to agencies including the New York Police Department, the New York Fire Department, the FBI, the Office of the Chief Medical Examiner, and the Departments of Defense, Environmental Protection, Health, and Transportation. [City of New York, 11/9/1997; New York Times, 11/10/1997] The exercise is held less than a mile away from the WTC, on Greenwich Street, between Hubert and North Moore Streets. [New York Daily News, 11/10/1997] It takes place “eerily in the shadow of the Twin Towers,” Giuliani will later comment. [Giuliani, 2002, pp. 63]
Islamic Terrorists Release a Lethal Gas in the Simulation – The scenario for the exercise involves a rally held by a controversial political group. This is “a greed-is-good kind of group,” Giuliani will say. A speaker at the rally explains the group’s philosophy, which gets his listeners angry, and two or three of them consequently attack the group. They release VX, a deadly nerve gas, killing 21 people and injuring at least 27. The mock attackers are Islamic terrorists, according to Giuliani. Red Cross volunteers and police cadets pretend to be victims of the attack, while several mannequins represent people who have been killed. FIELDEX lasts for four hours. [New York Daily News, 11/10/1997; New York Times, 11/10/1997; 9/11 Commission, 5/19/2004]
Real Bomb Goes Off before the Exercise Starts – Participating emergency response workers are unaware of the details of the scenario before the exercise begins. “[W]e know to be prepared, that it is going to happen, but haven’t been given any particulars,” one law enforcement official comments. [New York Times, 11/9/1997] Local residents reportedly approve of the exercise, despite the disruption it causes. One woman remarks that she feels it “needs to be done” because, she says, “Living downtown, we are a direct target for this kind of threat, with the World Trade Center and everything.” [New York Daily News, 11/10/1997] Ironically, two hours before the exercise commences, a real but crude bomb explodes in front of an office building a few blocks away from where the exercise is held. No advance warning is given but, fortunately, no one is injured. No one will take responsibility for the bombing. [New York Times, 11/10/1997]
Exercise Is Mostly Funded by the Defense Department – The INFRAEX segment of Operation ICE consists of a workshop that considers how the simulated attack would affect the city’s infrastructure, and how any adverse effects could be minimized and corrected. The date when this part of the exercise is held is unstated. [Fire Engineering, 3/1998] Operation ICE is the culmination of a yearlong disaster preparedness project. [City of New York, 11/9/1997] Most of the funding for it has come from a grant from the Department of Defense. [New York Daily News, 11/10/1997; New York Times, 11/10/1997] The exercise is intended to be a model for cities throughout the US. [Fire Engineering, 3/1998]
September 1999: Anthrax Attack Exercise Is Scheduled to Be Held in New York, but Is Canceled
A major training exercise based around the scenario of a bioterrorist attack involving anthrax is scheduled to take place in New York this month, but is canceled due to an outbreak of West Nile virus in the city. [Koblentz, 9/2001, pp. 36 ; Levitt, 2013, pp. 5, 14-15] The US Department of Defense has, since 1997, been responsible for administering the Domestic Preparedness Program, which provides weapons of mass destruction (WMD) preparedness training for 120 American cities. The program includes an annual federal, state, and local exercise, which is intended to improve the integration and interaction of federal, state, and local assets in response to a threat or incident involving WMDs. This year’s exercise is scheduled to take place this month in New York. [US Congress. Senate, 4/20/1999; William S. Cohen, 2000, pp. 81 ] The large-scale live-action exercise, called “CitySafe,” is set to take place outdoors in a neighborhood in the Bronx and involve a simulated biological terrorist attack. Volunteers are going to act as victims who have been afflicted by airborne anthrax spores. The exercise, which would be federally funded, is going to cost $1 million, according to author Alexandra Levitt. It is set to involve a high level of participation by the US Army. It has even been rumored that President Clinton may attend. The exercise is “two weeks away” on August 28, according to Levitt. This would mean it is scheduled to take place around September 11. However, it is canceled by Jerome Hauer, the director of the mayor’s Office of Emergency Management, due to an outbreak of West Nile virus. [Koblentz, 4/2001, pp. 6-7 ; Levitt, 2013, pp. 5-6, 13, 15] The outbreak, which began in August this year, will result in 62 cases of acute encephalitis in the New York area, with seven people dying. [Psychiatric Times, 8/2003; New York Times, 9/16/2015] CitySafe is postponed indefinitely and apparently never held. [Koblentz, 9/2001, pp. 36 ]
June 22-23, 2001: Bio-Terror Exercise Simulates Smallpox Attack
A dozen leading politicians, scholars, journalists, and security experts meet at Andrews Air Force Base in Maryland for an exercise simulating the consequences of a biological terrorist attack, in this case the release of smallpox by terrorists. The participants include: Senator Sam Nunn (D-GA), who plays the president of the United States; former presidential adviser David Gergen as the national security advisor; Governor Frank Keating (R-OK), who plays himself; James Woolsey playing the CIA director; and Jerome Hauer as the FEMA director. The exercise, named “Dark Winter,” starts with three states suddenly confronted with an outbreak of smallpox. Americans are no longer vaccinated against this virus because it was eradicated decades ago. Thousands quickly fall ill. The medical system is overwhelmed. Masses start to flee from the infected areas, but are stopped at the borders of neighboring states. Faced with chaos, the exercise ends with the president declaring martial law. Reviewing the exercise, participants and observers agree that the nation is vulnerable to biological terrorism and unprepared for an actual attack. [Time, 9/24/2001; US Medicine, 12/2001; Center for Biosecurity, 2002; O’Toole, Mair, and Inglesby, 4/1/2002] In the days following 9/11, Vice President Dick Cheney will watch a video report on the exercise, and, at his urging, the National Security Council will receive a “harrowing” and “gruesome” briefing on September 20, on the possibility of a biological attack. [Mayer, 2008, pp. 3-4] At about the same time as Dark Winter is taking place, the Centers for Disease Control (CDC) returns smallpox to the list of reportable diseases. Smallpox had been removed from the list decades ago after worldwide eradication. The agency says it is increasing its surveillance efforts of infectious pathogens that could be used in a biological terrorist attack. [United Press International, 5/31/2001] After the 9/11 attacks, public health officials will deny that the re-listing of smallpox was the result of any specific intelligence warnings. [UPI, 10/22/2001]
August 23, 2001: Former FBI Al-Qaeda Expert Begins Job as Head of Security at the WTC
John O’Neill begins his new job as head of security at the WTC. O’Neill had been the special agent in charge of the FBI’s National Security Division in New York, and was the bureau’s top expert on al-Qaeda and Osama bin Laden. [New York Magazine, 12/17/2001; New Yorker, 1/14/2002] He’d left his job with the FBI just the day before (see August 22, 2001). His friend Jerome Hauer, who is the former head of New York’s Office of Emergency Management, had found him the job at the World Trade Center. Developer Larry Silverstein, who recently took over the lease of the WTC (see July 24, 2001), had been highly impressed with O’Neill but insisted he start in the post no later than the first week of September, when his firm Silverstein Properties is set to assume control of the buildings. O’Neill had agreed to this. [Weiss, 2003, pp. 336-338, 345-346 and 349-351] After hearing that O’Neill has got this job, Chris Isham, a senior producer at ABC News who is a close friend, says to him, “Well, that will be an easy job. They’re not going to bomb that place again.” O’Neill replies, “Well actually they’ve always wanted to finish that job. I think they’re going to try again.” [PBS Frontline, 5/31/2002] After a few days as the WTC security director, O’Neill will move into his new office on the 34th floor of the South Tower. [Weiss, 2003, pp. 353-354 and 366]
September 10, 2001: New WTC Security Director Warns of Danger of ‘Something Big’
John O’Neill, who is later described by the New Yorker magazine as the FBI’s “most committed tracker of Osama bin Laden and his al-Qaeda network of terrorists,” recently retired from the bureau and started a new job as director of security at the World Trade Center (see August 23, 2001). [New Yorker, 1/14/2002] On this day he meets up with his old friend Raymond Powers, the former New York Police Department chief of operations, to discuss security procedures. Their conversation turns to Osama bin Laden. According to journalist and author Murray Weiss, “just as he had reiterated since 1995 to any official in Washington who would listen, O’Neill said he was sure bin Laden would attack on American soil, and expected him to target the Twin Towers again.” He says to Powers, “It’s going to happen, and it looks like something big is brewing.” [Weiss, 2003, pp. 355 and 359-360] Later on, O’Neill goes out in the evening with his friends Robert Tucker and Jerome Hauer. Again, he starts discussing bin Laden. He tells his friends, “We’re due. And we’re due for something big.” He says, “Some things have happened in Afghanistan. I don’t like the way things are lining up in Afghanistan.” This is probably a reference to the assassination of Afghan leader Ahmed Shah Massoud the previous day (see September 9, 2001). He adds, “I sense a shift, and I think things are going to happen.” Asked when, he replies, “I don’t know, but soon.” [New Yorker, 1/14/2002; PBS, 10/3/2002] O’Neill will be in his office on the 34th floor of the South Tower the following morning when the first attack occurs, and dies when the WTC collapses. [Weiss, 2003, pp. 366; Fox News, 8/31/2004]
September 11, 2001: Former New York Counterterrorism Official Blames Bin Laden, Discounts Use of Explosives in Towers’ Collapse
Within hours of the 9/11 attacks, Jerome Hauer, director of New York City’s Office of Emergency Management (OEM) from 1996 to 2000, appears on CBS News with Dan Rather. Rather asks him if pre-positioned explosives could have been used to bring down the Twin Towers. Hauer discounts the possibility, saying: “[M]y sense is that just the velocity of the plane and the fact that you have a plane filled with fuel hitting that building that burned, that the velocity of the plane certainly had an impact on the structure itself. And then the fact that it burned and you had that intense heat probably weakened the structure as well. And I think it was simply the planes hitting the buildings and causing the collapse.” [CBS News, 9/11/2001] Why Hauer already believes the plane crashes and subsequent fires alone caused the collapses is unclear. In fact, when he testifies before the 9/11 Commission in 2004, he will be asked whether OEM had, before 9/11, conducted “any planning for what would be the response if a commercial or a private plane were to accidentally [hit] either the World Trade Center or some other building in New York City?” He will reply: “We had aircraft crash drills on a regular basis. The general consensus in the city was that a plane hitting a building… was that it would be a high-rise fire” (see 1996-September 11, 2001). Yet he will not say that the building collapsing had been considered a possibility. [9/11 Commission, 5/19/2004] Rather also asks Hauer if the attacks could have been carried out without state sponsorship. Hauer replies: “I’m not sure I agree that this is necessarily state-sponsored. It… certainly has the fingerprints of somebody like bin Laden.” [CBS News, 9/11/2001]
September 12, 2001: WTC Leaseholder Already Wants to Claim Double Insurance for Attacks and Rebuild
Developer Larry Silverstein, who recently took over the lease of the World Trade Center (see July 24, 2001), later tells journalist Steven Brill that he’d been so sickened by the destruction on 9/11, and by the deaths of four of his employees in the WTC, that he did not focus on insurance or financial matters until “perhaps two weeks later.” But according to two people who call him this morning to offer their sympathy, Silverstein soon changes the subject: “He had talked to his lawyers… and he had a clear legal strategy mapped out. They were going to prove, Silverstein told one of the callers, that the way his insurance policies were written the two planes crashing into the two towers had been two different ‘occurrences,’ not part of the same event. That would give him more than $7 billion to rebuild, instead of the $3.55 billion that his insurance policy said was the maximum for one ‘occurrence.’ And rebuild was just what he was going to do, he vowed.” By mid-morning, he calls his architect David Childs, and instructs him to start sketching out a plan for a new building. He tells Childs to plan to build the exact same area of office space as has been destroyed. In fact, Silverstein’s lawyers claim the developer had been on the phone to them on the evening of 9/11, wondering “whether his insurance policies could be read in a way that would construe the attacks as two separate, insurable incidents rather than one.” [Brill, 2003, pp. 18-19 and 39-40; Real Deal, 1/2004] Yet Jerome Hauer, the former director of New York’s Office of Emergency Management, had gone to Silverstein’s office on 9/11, and later claims that Silverstein’s primary concern that day had been his employees, and whether they had gotten out of the WTC. “Larry was absolutely devastated,” he says. [Weiss, 2003, pp. 374] Following a lengthy legal dispute, Silverstein will eventually receive $4.55 billion in insurance payouts for the destruction of the WTC (see May 23, 2007). [New York Post, 5/24/2007]
