IISTPS Report 96-1

 

 

 

 

 

TERRORISM

in

Surface Transportation

 

A Symposium

 

March 1996

 

 

(Reprinted in 2001)

 

 

 

 

 

 

 

 

A publication of the

Norman Y. Mineta

International Institute for

Surface Transportation Policy Studies

IISTPS

Created by Congress in 1991

 

 

Technical Report Documentation Page

 

Copyright 1996 by IISTPS

All RightsReserved

 

Library of Congress No. 96-69383

 

 

 

 

 

 

 

 

 

 

 

To order, please contact us via the following:

 

The Mineta Transportation Institute

San José State University

College of Business

San Jose, CA. 95192-0219

Tel 408/924-7560

Fax 408/924-7565

E-mail: mti@mti.sjsu.edu

 

 

 

 

 

 

 

 

 

 

Preparedin cooperation with the State of California, Business, Transportation andHousing Agency, Department of Transportation and the U.S. Department ofTransportation, Research and Special Programs Administration, UniversityResearch Institutes program.

Thecontents of this report reflect the views of the author who is responsible forthe facts and accuracy of the data presented herein. The contents do notnecessarily reflect the official views or policies of the U.S. Department ofTransportation, the State of California or IISTPS. This report does notconstitute a standard, specification or regulation.

Thisdocument is disseminated under the sponsorship of the Department ofTransportation, University Transportation Centers Program, in the interest ofinformation exchange. The U.S. Government, State of California and IISTPSassumes no liability for the contents or use thereof.

TABLE OF CONTENTS

 

 

Foreward                                                                                                                    i

 

Executive Summary                                                                                                   1

 

Welcome by Charles Gillingham                                                                               3

            Sheriff of Santa Clara County

 

Introduction by Rod Diridon                                                                         3

            Executive Director, IISTPS

 

Comments by Rob Vitale                                                                                          4

            Education Director, IISTPS

 

Presentation Number One: Thomas Savage                                                            7

            Chief Security Officer, New York TransitAuthority

                “Lessons Learned By the New York Transit AuthorityFrom Recent Terrorist Attacks”

 

Presentation Number Two: Patrick Webb                                                                19

            Supervisory Special Agent, Federal Bureau ofInvestigation

                “Responsibility of Local Authorities When the FBIis Called in to Assist”

 

Presentation Number Three: Ernest R. Frazier                                                       29

            Chief of Police, Amtrack

            “Could the Arizona DerailmentHave Been Predicted?”

 

Presentation Number Four: Denis Jackson                                                 49

            Vice President for Technical Operations,American Medical Response West, Inc.

“EmergencyTerrorism Response Systems”.

 

Panel Discussion                                                                                                        59

 

Closing Comments by Moderator Rod Diridon                                                       77

Appendices                                                                                                                 81

            Appendix A: NYC Transit: Report on Interagency

Preparedness Exercise 95-3                                                                             81

 

Appendix B: Lessons Learned byNYC Transit From

Recent Terrorist Attacks                                                                                   91

 

Appendix C: ATF Bomb ThreatChecklist                                                          99

 

Appendix D: H.R. 2949                                                                                    103

 

Table of Acronyms                                                                                                     109

               

 

 

 

FOREWORD

 

 

I am pleased to forward a copyof the proceedings of the Norman Y. Mineta International Institute for SurfaceTransportation Policy Studies (IISTPS) March 1996 Symposium on “Terrorism inSurface Transportation.”  Thissymposium was presented at San José State University on March 15, 1996, as partof the IISTPS charter of continuing education in the area of SurfaceTransportation Policy.

 

The topic for this Symposiumwas selected to help satisfy the increased need for awareness of andpreparedness for possible terrorism attacks on the surface transportationsystems within the United States and the world. A group of experts wasassembled to present a summary of their vast experience and concerns in the areasof terrorism to an invited group of delegates drawn from transportationagencies, law enforcement, other government agencies and the private sector.After the formal presentations, time was made available for increasedunderstanding of the various issues through interactive discussions is includedin these proceedings.

 

Many people helped in the creation of this symposium. Iwould like to thank especially our expert speakers, Tom Savage, Chief SecurityOfficer, New York Transit Authority; Patrick Webb, Supervisory Special Agent,Counter-Terrorism Squad, Federal Bureau of Investigation; Ernest R. Frazier,Chief of Police, Amtrak; and Denis Jackson, Vice President for TechnicalOperations, American Medical Response West, Inc. In addition to our finespeakers, I would like to thank Rod Diridon, Executive Director of IISTPS; RobVitale, Education Director for IISTPS; Dr. Dirk Wassenaar, IISTPS MarketingDirector; Claudia Hull and Patrick A. Rooney, IISTPS Graduate Assistants; andBenedicte Sigwalde, Symposium Assistant, as well as the other IISTPS’ staffmembers, for their professional assistance in the presentation of thissymposium.

 

 

 

 

Finally, I hope that you, the reader, will find theseproceedings to be both stimulating and useful as a guide to further awarenessin the important areas of surface transportation terrorism response andprevention.

                                                                                                MilesB. Welter

                                                                                                SymposiumDirector

 

 

EXECUTIVE SUMMARY

 

The second symposium presentedby the Norman Y. Mineta International Institute for Surface TransportationPolicy Studies (IISTPS) was held March 15, 1996, on the San José StateUniversity campus. This timely discussion was co-sponsored by the Research andSpecial Programs Administration (RSPA) of the United States Department ofTransportation (U.S. DOT) and the California Department of Transportation(Caltrans). The topic, Terrorism in Surface Transportation, was addressed by leading experts in several relatedfields.

 

Chief Security Officer of theNew York Transit Authority, Tom Savage, described lessons learned from recentterrorist attacks. Mr. Savage spoke not only of past occurrences, but also ofthe challenges presently facing most cities.

 

FBI Counter-terrorism SquadSupervisory Special Agent, Patrick J. Webb, addressed the responsibilities ofthe local authorities when the FBI is called in to assist. He cited specificincidents of the collaboration now common between agencies, and he spoke ofideas for furthering the effectiveness of such interdependence of affiliatedagencies.

 

Amtrak Chief of Police, ErnestFrazier, spoke about the Arizona derailment, specifically about whether such anoccurrence can be predicted. He also addressed the significance of proposedSenate Bill 2949 (copy appended). Also speaking tot he assembled group wasDenis Jackson, Vice President for Technical Operations for American MedicalResponse West, the largest ambulance and paramedic provider in the UnitedStates. Mr. Jackson discussed terrorism attacks, similar to the Oklahoma Citybombing and the emergency response systems in place to deal with them.

 

All of the speakers providedinsight into the problems facing our cities today under the threat of terrorismas it applies to transportation. The value of the symposium was enhanced by thepanel discussion moderator, Rod Diridon, Executive Director of IISTPS. Mr.Diridon holds both national and international leadership positions in the fieldof mass transportation.

 

TERRORISM INSURFACE TRANSPORTATION

Second Symposiumof the Norman Y. Mineta International Institute for

SurfaceTransportation Policy Studies

 

The second InternationalInstitute for Surface Transportation Policy Studies (IISTPS) symposium, Terrorismin Surface Transportation, began with awelcome by Rod Diridon, Executive Director of the Institute. Diridon introducedthe Chief Law Enforcement Officer for Santa Clara County, Sheriff Charles“Chuck” Gillingham. Gillingham, a directly elected individual, served for manyyears as Deputy Sheriff and then as the Commander of the Jails. Elected to theoffice, he is presently in charge of the entire Santa Clara County Sheriff’sDepartment.

 

Sheriff Charles Gillingham

 

After relating a humorousstory, Gillingham addressed the necessity of an ongoing and close workingrelationship with other agencies, like the one presently existing with Amtrakpolice. He stressed the importance of all elements of law enforcementcollaborating to curtail the crime rate.

 

After acknowledging Rod Diridonfor his fine work with the Institute, Gillingham invited Diridon to introducethe first guest speaker.

 

Mr. Rod Diridon

 

Diridon spoke briefly about theInstitute. He explained that the Norman Y. Mineta International Institute forSurface Transportation Policy Studies (IISTPS) at San José  State University was established byCongress in the Intermodal Surface Transportation Efficiency Act of 1991(ISTEA). Unique among the nation’s six University Transportation Institutes,IISTPS focuses on international surface transportation policy issues related toresearch, education, and information transfer. IISTPS receives policy oversightfrom an internationally respected Board of Trustees who represent all of themajor surface transportation modes.

 

Diridon noted that this was thesecond symposium presented by IISTPS. The first symposium, held on June 6,1995, was on “Planning for Surface Transportation and Land Use.”  He indicated that the proceedings fromit will be available for purchase shortly. He then invited the audience topurchase a copy of the symposia proceedings.

 

Next, Diridon introduced thesymposium coordinator, Rob Vitale, an Adjunct Professor at San José StateUniversity and IISTPS’ Education Director. Vitale’s expertise is in marketingwithin private industry. Diridon explained that an effort is being made toenlist the participation of individuals from private industry whose businessexpertise will enhance the academic curriculum of the Institute. He thenwelcomed Adjunct Professor Rob Vitale as one who successfully melds thetheoretical/academic approach with practical business experience.

 

Mr. Rob Vitale

 

Vitale spoke briefly about thedevelopment of a Masters of Science Program in Transportation Management. Hesaid it is off to a good start and welcomed inquiries from interested parties.He explained that the symposia series is a part of that education program.Vitale spoke about the dedicated and proficient staff who support the programand introduced Miles Welter, Project Director for this symposium, ProfessorDirk Wassenaar, Marketing Project Director, as well as other staff members.

 

Vitale spoke about theeducation program as being different from what one would expect when thinkingof a Master’s degree. He explained that the program is designed to breaktypical paradigms in the academic world. For example, the video of this symposiumwill be used in classrooms, and hopefully presenters from the symposia serieswill also speak to our students.

 

Vitale also said that classeswill be conducted via televideo all over the world as this program isdeveloped, a concept called distance learning. When 15 or 20 people gather atany facility, whether at the Santa Clara County Transit Agency or Caltrans, ora group in Minnesota or New York or New Jersey, SJSU plans to make available tothem classes for a Master of Science degree in transportation management.Vitale stressed that this program is specialized for transportation management,and SJSU plans to “push the envelope” with this new teaching technique.

 

Vitale stated that the mostdistinctive element of this program is its goal to be contemporary, to satisfyspecific needs that the transportation professionals have communicated areneeded in the future careers of their employees. He explained that the programis non-traditional by design, not accident or oversight, and offered the willingnessto listen to other new concepts. Vitale identified this program as a verydifferent type of master’s program and one hoped to be the model of newmaster’s education of the next century.

Presentation Number One

 

Mr. Rob Vitale

 

Our first speaker, Thomas J. Savage is Chief SecurityOfficer for the New York City Transit Authority. Savage is responsible for theexecutive direction of New York City Transit’s strategic securityfunctions–passenger and employee security and property protection. He has primaryresponsibility for coordinating these issues with the Mayor’s Office ofCriminal Justice and the Transit Bureau of the New York City Police Department.

 

Mr. Thomas J. Savage

 

It is unfortunate that transit professionals are nowmandated to add Terrorism to all industry related meetings and conferences. Itis only March, and this symposium is the second I and many of you have attendedthis year. Terrorism is a topic of grave and growing concern. As day-to-daytransit operating managers, our responsibilities dramatically changed with thefollowing incidents:

·        The World Trade Centerbombing–February 1993;

·        Sarin Gas Attack in theTokyo subway system–March 1995;

·        Paris commuter trainbombing–July 1995;

·        London bus systembombing–February 1996; and

·        Jerusalem bus systembombing–March 1996.

The fact is clear that we must prepare ourselves forthe threat of Terrorism just as we prepare for fire or any other disaster.

 

This presentation will provide an overview of recentexperiences in public transportation in New York. It will help you identifywhat impact such events have had on policies and what changes are beinginstituted as a result of our changing times.

 

System Overview

·        The largest publictransit system in North America–we account for about 40% of all mass transittrips nationwide–and the world’s tenth largest system;

·        The subway and bussystem operates 24 hours every day and carries an average of 4.7 million dailypassengers and 1.5 billion annual passengers;

·        NYC Transit has a staffof approximately 43,000;

·        An annual operatingbudget of $3.6 billion; and,

·        Annual capitalexpenditures of more than $1 billion.

 

Department of Subways

·        The subway serves 3.5million customers on an average weekday and about 1.1 billion passengers ayear. The 25 subway lines are interconnected, offering free transfers betweenlines permitted at more than 50 locations;

·        The world’s largestsubway fleet, with 5,803 cars, is now entirely new or overhauled. Almost allthe cars have air conditioning and–since May 1989–all are graffiti free;

·        The subway fleet travelsabout 300 million revenue miles each year. The longest ride on the system withno change of trains is 31 miles;

·        About 60 percent of thesystem’s 468 subway stations are underground. The others are located alongelevated structures or are built on embankments or in open cuts;

·        Located within stationfacilities are: 3,180 turnstiles, 742 token booths, 60 elevators, and 161escalators; and

·        The organization iscomprised of approximately 25,000 employees distributed between two primarydivisions–Service Delivery and Maintenance.

 

Department of Buses

·        The Department of Busesoperates 201 local and 30 express bus routes providing about 49,000 dailyrevenue trips;

·        The system’s 3,751 busescarry about 1.2 million customers daily and 450 million annually;

·        Each rush hour, morethan 3,000 buses are in operation, picking up customers at more than 14,000 busstops;

·        New York City bus routestotal 1,671 miles. Buses travel about 104 million miles annually. The longestlocal bus route is 16.5 miles and the longest express route is 27.3 miles;

·        Buses are maintained andcleaned in 19 depots. The fleet is 100 percent graffiti-free, air conditioned,either new or overhauled and equipped with wheelchair lifts;

·        To keep buses on themove, we use 36 million gallons of diesel fuel;

·        We are working todevelop a New Technology Bus that will have reduced emissions and improved fueleconomy. Among the prototypes being researched:

·        Battery PoweredBuses–Equipped with electric motors and rechargeable batteries;

·        Electric HybridBuses–Equipped with electric motors and smaller diesel engines; and

·        Compressed Natural Gas(CNG) Buses–Designed to burn cleaner fuel (32 buses are in actual use).

·        As of January 1996, ourfleet’s average age is 8.57 years and is distributed as follows:

·        54% are the GMC RTS-04model;

·        8% are the GMC RTS-06model;

·        27% are the TMC RTS-06model; and

·        11% are the BIA Orion 5model.

·        The organization iscomprised of approximately 12,000 employees and includes 7,500 bus operatorsand 2,700 bus maintenance staff.

 

Lessons Learned

·        On February 26, 1993,New York City experienced terrorism firsthand. The World Trade Center bombingtrapped thousands of people and caused injury and death to six persons. Bus andsubway service was disrupted.

·        The World Trade Centerbombing vividly demonstrated to New York City Transit and the New York PoliceDepartment (NYPD) that the everyday crime/security concerns were no longer theonly threat to the safety of our passengers and employees. Recognizing this,Transit and the NYPD organized an interagency fact finding task force onterrorism–chaired by Deputy Inspector Francis O’Hare of the NYPD’s TransitBureau. To enhance understanding of the dangers and disruptiveness ofTerrorism, task force representatives traveled to England, Italy, France andeventually Japan to study and evaluate procedures on terrorism response.

·        The attached task forcerecommendations (see appendix) are continually being reviewed. After the Saringas attack in Japan, the Transit and NYPD task force reviewed security issuesin an effort to prevent and/or mitigate a similar occurrence. The task forcemade five recommendations, of which three have been implemented. These threeresulted in:

·        Information and guidanceabout gas attacks being given to employees;

·        The establishment ofventilation procedures for subway cars, stations and facilities; and

·        The submission of newgas attack procedures for coordination of effort between Transit and other cityagencies.

·        The two remainingrecommendations are still under review and deal with aspects of station design:

·        The task force suggestedcertain changes in how stations are laid out, including the elimination ofcertain design features such as open or idle spaces behind token booths andconcession stands which might be used for the concealment of explosive or toxicdevices. Our problem with implementing is the sheer size of the system, as Ihave previously mentioned. The cost of correcting every potential designproblem in one station alone would be enormous; to make similar corrections systemwidewould be financially impossible. As stations are being rehabilitated designchanges are being incorporated to enhance security.

·        A second suggestionrecommended the removal of trash receptacles in subway stations. This was donein Tokyo only during the Sarin alert, and they have since been reinstalled. Theremoval of trash receptacles creates problems of trash buildup and track fires.The question of which creates the greatest safety concern for our passengersand employees is challenging, and careful consideration must be given of allpossible results of the recommendation before it can be put into effect.