September 11, 2001-May 2002: Little-Known City Agency Takes Charge of Ground Zero Cleanup Operation

The New York City agency that oversees the Ground Zero cleanup operation following the 9/11 attacks is the Department of Design and Construction (DDC). [Glanz and Lipton, 2004, pp. 299] This obscure 1,300-man bureaucracy is normally responsible for overseeing municipal construction contracts, such as street repairs and jails. Its two top officials are Kenneth Holden and his lieutenant, Michael Burton. [Langewiesche, 2002, pp. 9] Burton is in lower Manhattan the morning of 9/11, instead of in his office in Queens, for a meeting at City Hall, just a few blocks away from the World Trade Center. [Engineering News-Record, 4/22/2002] That afternoon, he meets Holden and together they begin organizing the cleanup operation. By 5:30 p.m., the group of workers they have assembled gains permission to explore the WTC ruins. Under Burton’s direction, the team of “unbuilders” subsequently undertakes what journalist William Langewiesche describes as “the most aggressive possible schedule of demolition and debris removal.” Yet this appears to go against established procedures. On previous occasions the standard emergency response to natural or man-made disasters in the US, such as the 1995 Oklahoma City bombing, was to rapidly nationalize efforts on the ground, under the direction of FEMA and the Army Corps of Engineers. [Langewiesche, 2002, pp. 66, 90, 94, 146] New York’s official emergency plans, which were written before 9/11, in fact require the Department of Sanitation to remove debris after a building collapse. A mid-level official who was involved in writing the latest plans mentions a week after 9/11 that she doesn’t even know quite what the DDC is. DDC’s only previous experiences of dealing with emergencies are a sinking EMS station in Brooklyn, caused by a water leak, and a structural failure at Yankee Stadium. According to Langewiesche, there is no specific moment when Holden and Burton are placed in charge of the Ground Zero cleanup effort. “Rather, there was a shift of power in their direction that was never quite formalized and, indeed, was unjustified by bureaucratic logic or political considerations.” Reportedly, at some point, Mayor Rudolph Giuliani made a “back-room decision to scrap the organization charts, to finesse the city’s own Office of Emergency Management (OEM), and to allow the DDC to proceed.” [Langewiesche, 2002, pp. 66, 88 and 118; Engineering News-Record, 4/22/2002] The Ground Zero cleanup operation officially ends in May 2002. [CBS News, 5/16/2002; New York Times, 5/29/2002]