Assessing The Security Needs of The West

ASSESSING THE SECURITY NEEDS OF THE WEST
HEARING
BEFORE THE
SUBCOMMITTEE ON INTELLIGENCE AND

COUNTERTERRORISM
OF THE
SELECT COMMITTEE ON HOMELAND

SECURITY
HOUSE OF REPRESENTATIVES
ONE HUNDRED EIGHTH CONGRESS
FIRST SESSION
AUGUST 21, 2003
Serial No. 10822
Printed for the use of the Select Committee on Homeland Security
(
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SELECT COMMITTEE ON HOMELAND SECURITY
CHRISTOPHER COX, California, Chairman
JENNIFER DUNN, Washington JIM TURNER, Texas, Ranking Member
C.W. BILL YOUNG, Florida BENNIE G. THOMPSON, Mississippi
DON YOUNG, Alaska LORETTA SANCHEZ, California
F. JAMES SENSENBRENNER, JR., EDWARD J. MARKEY, Massachusetts
Wisconsin NORMAN D. DICKS, Washington
W.J. (BILLY) TAUZIN, Louisiana BARNEY FRANK, Massachusetts
DAVID DREIER, California JANE HARMAN, California
DUNCAN HUNTER, California BENJAMIN L. CARDIN, Maryland
HAROLD ROGERS, Kentucky LOUISE MCINTOSH SLAUGHTER,
SHERWOOD BOEHLERT, New York New York
LAMAR S. SMITH, Texas PETER A. DEFAZIO, Oregon
CURT WELDON, Pennsylvania NITA M. LOWEY, New York
CHRISTOPHER SHAYS, Connecticut ROBERT E. ANDREWS, New Jersey
PORTER J. GOSS, Florida ELEANOR HOLMES NORTON,
DAVE CAMP, Michigan District of Columbia
LINCOLN DIAZ-BALART, Florida ZOE LOFGREN, California
BOB GOODLATTE, Virginia KAREN MCCARTHY, Missouri
ERNEST J. ISTOOK, JR., Oklahoma SHEILA JACKSON-LEE, Texas
PETER T. KING, New York BILL PASCRELL, JR., New Jersey
JOHN LINDER, Georgia DONNA M. CHRISTENSEN,
JOHN B. SHADEGG, Arizona U.S. Virgin Islands
MARK E. SOUDER, Indiana BOB ETHERIDGE, North Carolina
MAC THORNBERRY, Texas CHARLES GONZALEZ, Texas
JIM GIBBONS, Nevada KEN LUCAS, Kentucky
KAY GRANGER, Texas JAMES R. LANGEVIN, Rhode Island
PETE SESSIONS, Texas KENDRICK B. MEEK, Florida
JOHN E. SWEENEY, New York
JOHN GANNON, Chief of Staff
UTTAM DHILLON, Chief Counsel and Deputy Staff Director
DAVID H. SCHANZER, Democrat Staff Director
MICHAEL S. TWINCHEK, Chief Clerk
SUBCOMMITTEE ON INTELLIGENCE AND COUNTERTERRORISM

JIM GIBBONS, Nevada, Chairman
JOHN SWEENEY, New York, Vice Chairman KAREN MCCARTHY, Missouri
JENNIFER DUNN, Washington EDWARD J. MARKEY, Massachusetts
C.W. BILL YOUNG, Florida NORMAN D. DICKS, Washington
HAROLD ROGERS, Kentucky BARNEY FRANK, Massachusetts
CHRISTOPHER SHAYS, Connecticut JANE HARMAN, California
LAMAR SMITH, Texas NITA M. LOWEY, New York
PORTER GOSS, Florida ROBERT E. ANDREWS, New Jersey
PETER KING, New York ELEANOR HOLMES NORTON,
JOHN LINDER, Georgia District of Columbia
JOHN SHADEGG, Arizona JAMES R. LANGEVIN, Rhode Island
MAC THORNBERRY, Texas KENDRICK B. MEEK, Florida
CHRISTOPHER COX, California, ex officio JIM TURNER, TEXAS, ex officio
(II)
CONTENTS
STATEMENTS
The Honorable Jim Gibbons, Chairman, Subcommittee on Intelligence and
Counterterrorism, and a Representative in Congress From the State of
Nevada .................................................................................................................. 1
The Honorable Shelley Berkley, a Representative in Congress From the State
of Nevada .............................................................................................................. 7
The Honorable John B. Shadegg, a Representative in Congress From the
State of Arizona .................................................................................................... 1
The Honorable Jon C. Porter, a Representative in Congress From the State
of Nevada .............................................................................................................. 12
WITNESSES
Mr. Jerry Bussell, Special Advisor to Governor, Nevada Homeland Security
Office
Oral Statement ..................................................................................................... 22
Prepared Statement ............................................................................................. 24
Dr. Dale Carrison, Emergency Department Medical Director, University Med-
ical Center, Trauma Center,
Oral Statement ..................................................................................................... 47
Mr. Bill Conger, Deputy Chief, Las Vegas Metropolitan Police Department
Oral Statement ..................................................................................................... 51
Mr. Frank F. Navarrete, Director, Arizona Office of Homeland Security to
the House Select Committee on Homeland Security ......................................... 2
Mr. William H. Parrish, Assistant Secretary for Information Analysis, Infor-
mation Analysis and Infrastructure Protection Directorate
Oral Statement ..................................................................................................... 14
Mr. David Shepherd, Head of Security, Venetian Resort
Oral Statement ..................................................................................................... 36
Mr. Larry L. Todd, Director, Security, Safety and Law Enforcement, Bureau
of Reclamation, U.S. Department of the Interior
Oral Statement ..................................................................................................... 18
Mr. Randy Walker, Aviation Director, Clark County Department of Aviation
Oral Statement ..................................................................................................... 41
(III)
ASSESSING THE SECURITY NEEDS OF THE
WEST
THURSDAY, AUGUST 21, 2003
U.S. HOUSE OF REPRESENTATIVES,

SUBCOMMITTEE ON INTELLIGENCE AND COUNTERTERRORISM,
SELECT COMMITTEE ON HOMELAND SECURITY,
Washington, D.C.
The subcommittee met, pursuant to call, at 10:40 a.m., Clark
County Commission Offices, 500 South Grand Central Parkway,
Las Vegas, Nevada. Hon. James Gibbons [chairman of the sub-
committee] presiding.
Present: Representatives Gibbons and Shadegg.
Also present: Representatives Berkley and Porter.
Mr. GIBBONS. Good morning, everybody. Im Congressman Jim
Gibbons, the Second Congressional District of Nevada, the chair-
man of the Subcommittee on Intelligence and Counterterrorism for
the Committee on Homeland Security.
To my right is Representative John Shadegg from Arizona. Were
welcoming him. Hes the chairman of the Subcommittee on Emer-
gency Preparedness and Response for Homeland Security.
Wed like to welcome all of you here today. Today is a hearing
on intelligence and homeland security needs of the West. As a re-
sult, we directed ourselves to have it in Las Vegas as a perfect
place to have this hearing.
Before I begin my opening remarks, I would like to invite our
two other Congressmen, if they are in the room, to join at the dais.
And it should be noted that these two Congressmen from Nevada,
Jon Porter from the Third District and Shelley Berkley from the
First District here in Las Vegas will be invited to join us on the
dais, making any opening statements they want, and but they will
not be able to ask questions simply because theyre not members
of the committee.
Id like to ask unanimous consent from the committee for that.
Without objection, when they arrive, they will be invited to sit at
the dais.
Right now Id like to turn the mike over to my colleague from Ar-
izona for any motions that he may have at the beginning.
Mr. SHADEGG. Mr. Chairman, the only request I would make
would be an unanimous consent request that the statement of Mr.
Frank Navarrete, the Arizona director of Homeland Security be in-
cluded in the record.
As you know, Mr. Navarrete was supposed to be here today to
testify before us. Unfortunately, because of an ongoing situation in
Arizona with the gasoline shortage, it was impacted just yesterday
(1)
2
by some developments affecting the gas pipeline coming to Arizona

from California.
Mr. Navarrete is not able to be here, so I would request that his
testimony, his statement, be included in the record.
Mr. GIBBONS. Without objection, so ordered.
[The statement of Mr. Navarrete follows:]
PREPARED STATEMENT OF MR. FRANK F. NAVARRETE, DIRECTOR, ARI-
ZONA OFFICE OF HOMELAND SECURITY TO THE HOUSE SELECT COM-
MITTEE ON HOMELAND SECURITY,
I am Frank Navarrete, Director of Arizonas Office of Homeland Security and Direc-
tor of the Arizona Division of Emergency Management.
I would like to begin by thanking Congressman John Shadegg for the invitation to
present testimony here today, and to thank Congressman Jim Gibbons as well for
this opportunity.
Homeland Security is a high priority for the Governor of Arizona, Janet Napolitano,
and that has naturally benefited homeland security efforts in the state. Arizona was
one of the first states to develop a homeland security strategy. I traveled to Wash-
ington, D.C. this spring to personally deliver copies of the Securing Arizona plan
to our congressional delegation. My office provides montly updates to keep our fed-
eral delegation appraised of activities and progress in homeland security in Arizona.
Governor Napolitano created the Office of Homeland Security to embrace homeland
security needs and provide direction and control. Additionally, she created the
Homeland Security Coordinating Council to provide broad representation for input
in homeland security long-range planning. Regionalization and partnerships are rec-
ognized as integral elements to ensuring protection and safety for citizens in every
reach of the state. A couple of months ago, we became the first state in the nation
to put a statewide fire service mutual aid plan in place. In short, the importance
the Governor places on homeland security provides high profile for strategy develop-
ment and problem-resolution. Due to a significant deficit in the states budget how-
ever, funding for homeland security is tight.
So we have the will and ability to assess needs and vulnerabilities in our state, and
are therefore able to develop a strategy. As the federal government develops its
long-term strategy, Arizona will work to align the state strategy to embrace the
principals and guidance provided in the federal strategy.
Strategic planning, vulnerability and equipment assessments show us where our
shortfalls are, however we are currently in a position where the gap between needs
and funding is wide.
Some of our homeland security needs have been satisfied through funding streams
from federal government agencies including DOJ, ODP, and CDC. For that, we
would like to express our sincere appreciation.
As you know, updated vulnerability assessments are currently being conducted for
the ODPs 2004 Homeland Security Grant Program. In Arizona, we have utilized a
Domestic Preparedness Terrorism Task Force, co-chaired by myself, as Director of
the Division of Emergency Management, and by the Director of the Department of
Public Safety. Stakeholders such as local government, first responders, tribal rep-
resentatives and private stakeholders, sit on that task force. They make rec-
ommendations on spending strategy to an Executive Council. The Council works
with the Office of Homeland Security to determine how the grant money will be al-
located. The money is allocated to the counties, whose local emergency planning
committees determine local distribution. I would like to note here that, in con-
ducting these assessments we recognize and are taking steps to identify various po-
tential threats or vulnerabilities that lie across our border in Mexico and include
them in the assessments.
In Arizona, we face many of the same challenges as other states:
1 We have vulnerabilities, like areas of higher population
2 We have a need for additional funding:
Prevention of a terrorism event is the number one homeland security pri-
ority of Governor Napolitano and in the Securing Arizond strategyplan
WMD equipment for first responders
The medical community is in need of additional equipment and training
to deal with potential bioterrorism threats. Additionally, efforts are under-
way to develop a tracking and reporting mechanism for disease surveillance
3
Interoperability problems are widespread and include the additional chal-
lenge of a lack of radio coverage in many parts of the state
The Arizona Department of Health Services chairs a bi-national bioter-
rorism committee which closely dovetails the Arizona Office of Homeland
Security
3 Information-sharing between different levels of government and among dif-
ferent agencies has improved since September 11th, however emergency man-
agers, first responders and state agencies with homeland security-related mis-
sions continue to share concerns about the availability of current intelligence
information.
We appreciate and utilize information provided by the Department of
Homeland Security. We continually combine federal intelligence and threat
information with our own state and local input, analyze the information,
identify pockets of vulnerability, and set forth prudent awareness and secu-
rity steps for those threatened areas.
T2We have unique challenges in Arizona as well:
1 We are a border state. We share 370 miles of border with Mexico. This in-
cludes 8 Ports of Entry.
A great deal of the border is located in rural areas and has a high inci-
dence of illegal immigrant traffic.
Local governments, like counties and tribal communities expend .
time and personnel resources coping with problems associated with the
illegal immigration traffic, such as hospitalization and deaths, crime
and additional law enforcement costs, and littering and property dam-
age.
Bi-national visit programsthere is a great demand to meet the visitation
needs of workers who travel back and forth across the border, tourists, and
also provide a timely flow of commercial traffic, especially during harvest
season, when produce must be transported quickly from one place to an-
other. This is a federal policy issue with significant local impact. I appre-
ciate the concept of improved security and in improved visit programs.
Interoperability and communication problems are vitally in need of equip-
ment so that we are able to communicate with our federal partners and
Mexican colleagues across the border in Mexico. In November, the Arizona
Division of Emergency Management will conduct a bi-national WMD exer-
cise in Nogales, which will employ the critical response elements of plan-
ning, response, interoperability, and radio communications.
4 Tourism brings 29.5 million people to the state each year (Arizonas popu-
lation from 2000 census is 5.2 million). Arizona ranks 18 among the 50 states
for domestic tourism:
The Grand Canyon, with over 5 million visitors annually
Glen Canyon Daml/Lake Powell
Conferences and conventions that place large numbers of people
generally into the downtown area of Phoenix
High profile events:
Phoenix is one of a handful of cities nationwide that entertains
the Big Four in the world of sportsfootball, baseball, basketball
and hockey
Other premier sporting events, including the NASCAR and Indy
Car racing circuits and the World Series
5 Agriculture in the state, and agricultural products that flow through Arizona
from other states and from Mexico. Of concern is the spread of disease or bioter-
rorism attack.
6 Areas of low population with vulnerable infrastructure like the Mexican bor-
der, dams, utilities, bridges and underground power, telephone and fuel lines
that are located in rural desert or mountainous terrain.
Clearly, our current experience with the rupture of a major gasoline line
in the Tucson area illustrates the disruptions that can result from a ter-
rorist attack on such an easily accessible target. The current event is in its
third week, and has resulted in gasoline shortages in Maricopa County and
gasoline price increases that have spread across our borders into other
states.
We note with interest and concern the electrical grid events that re-
sulted in massive blackouts on the East Coast. Having dealt with a similar
problem with our Western United States electrical grid in the late 90s, we
appreciate the importance of the hardening of critical infrastructure.
7 Hoover Dam and more dams downstream
4
8 Palo Verde Nuclear Power Plant, the largest in the country and second larg-
est in the world, and located 50 miles from downtown Phoenix
To meet some of the challenges we face, we have identified model programs. As
an example, we are working with our partners in the 4 corners areaNew Mexico,
Utah and Colorado, to resolve radio interoperability problems. We are working on
technical solutions along the border to aid in the slowing of the illegal immigration
flow and overall security improvements. And we have entered in to discussions with
other border states, including Texas, New Mexico, and California for inter-state
interoperability solutions.
In summary, we are actively pursuing enhancements to our homeland security pro-
gram in Arizona. We developed a statewide strategy plan to provide guidance and
intend to build on the process by developing a multi-year homeland security plan;
the Governor created the Office of Homeland Security to lead homeland security ef-
forts and seated a coordinating council; and state, local, federal and tribal partners
and members of private industry are working closely together. I share Governor
Napolitanos philosophy that our objective is to create an environment where home-
land security is imbedded into our day-to-day business of governance.
We are working hard to do our part, appreciate your federal support, and hope that,
together, we will make our homeland more secure and provide for the heath and
safety of the citizens of Arizona.
I thank you for allowing me to participate in this hearing.
Mr. GIBBONS. As we might advise the people in the audience
here today, this is a committee hearing. It is being recorded, and
it is not what you might otherwise be familiar with as a townhall
meeting. This is a committee hearing that is part of the congres-
sional process. We take recorded testimony. And as a result, it is
included in the congressional record.
At this point in time, Ill begin with our opening remarks. And
I would begin by saying that homeland security issues still remain
a top priority and a major focus for America today.
The events of September 11th, of course, raise new public policy
issues affecting every level of government service and private busi-
ness.
The United States depends on citizens to be vigilant. It depends
on State and local government and private businesses to assess
critical infrastructure vulnerabilities and work with Federal orga-
nizations in support of national and collaborative partnerships.
It depends on businesses to take the necessary steps to protect
their facilities and their patrons, and it depends on thousands of
trained personnel to work with communities across the country to
security our water and power supplies and their distributions sys-
tems to secure our transportation systems and to ensure prepared-
ness of expert medical care when needed.
Facing this first real crisis, its first real crisis, since it began op-
erations earlier this year, and the Department of Homeland Secu-
rity viewed the massive power outage in the northeast United
States this past week as a test of their ability to respond to a crisis.
While there were no casualties, no terrorists, and we are thank-
ful for that, and no chemical or biological weapons, the Department
of Homeland Security was able to assist in the response.
After receiving word of the outage last Thursday, within hours,
the Department assembled crisis action teams in preparation to co-
ordinate the Federal response and the Departments communica-
tion network and was assessing its ability to serve as an informa-
tion clearinghouse, tracking the blackouts impact for local authori-
ties.
5
The State and local authorities shouldered most of the load in re-
sponding to the outage, but the Department of Homeland Security
emergency response teams stood ready to deploy.
Again last week, the contingent of Southern Nevadans attended
a Federal Emergency Management Agency exercise in Maryland to
test Las Vegas long-term hazardous emergency operations plan.
The City of Las Vegas received praise for its response during the
mock disaster and passed the course at the Emergency Manage-
ment Institute.
Multi-levels exercises such as this are key to discovering an
emergency response plans shortcomings and ingrain the impor-
tance of mutual support.
This week Nevada is currently taking part in a Department of
Homeland Security and Department of Defense co-sponsored bio-
terrorism exercise. This joint Federal, State, and local exercise de-
termined promise is testing our readiness and our ability to re-
spond to a local terrorist attack.
The exercise is being conducted by the newly created U.S. North-
ern Command in conjunction with the State of Nevadas Governors
Office and the Federal Emergency Management Agency, the Ne-
vada National Guard, and a number of local first responder organi-
zations.
The exercise is taking place at Logandale, Nevada, and involves
upwards of 5,000 local, State, and Federal participants and exem-
plifies the cooperative nature of operations in protecting our home-
land.
The primary purpose of this hearing today, entitled Addressing
the Security Needs of the West, is to focus on the issues that cut
across government and industry sectors and ensure a cohesive ap-
proach to achieving continuity in delivering critical infrastructure
and information sharing services in the Western United States and
then in making sure that is in place and effective.
It is my pleasure to introduce two members of the distinguished
panel, when we get to those, the first panel, which will be Colonel,
retired, with the United States Marine Corps, William Parrish, As-
sistant Secretary for information analysis for Department of Home-
land Security; Mr. Larry Todd, Director of Security, Safety, Law
Enforcement, Bureau of Reclamation; and Colonel, retired from the
Nevada Army National Guard, Jerry Bussell, who is the special ad-
visor to the Governor of the State of Nevada for homeland security.
The second panel we will have today is Mr. David Shepherd,
head of security for the Venetian Resort; Mr. Randy Walker, Avia-
tion Director for Clark County Department of Aviation; Dr. Dale
Carrison, Emergency Department Director, University of Nevada
Las Vegas Medical Center; and Deputy Chief Bill Conger, Las
Vegas Metropolitan Police Department.
I want to thank all of you for coming, and I will turn the mike
over now to my colleague from Arizona, the chairman, as I said, of
the Emergency Preparedness and Response Subcommittee, Mr.
John Shadegg.
Mr. SHADEGG. Thank you, Mr. Chairman.
And it is a privilege for me to be here. I want to express my ap-
preciation for your holding this important hearing. It is, of course,
as a congressman from Arizona, important to me that we, in fact,
6
assess the security needs of the West. And I think this hearing will
produce some important information on that topic.
As I already mentioned, Frank Navarrete, the State of Arizona,
Director of Homeland Security, unfortunately, had to cancel his ap-
pearance today, but his statement is in the record. I wish he could
be here; however, there are issues that require his attention imme-
diately in Arizona.
These issues, I think, are very, very important to all of us in the
West. Oftentimes when we see these crises, and when I interact
with my colleagues in the U.S. Congress, they think of the home-
land security threat as being something unique to the East Coast
or perhaps to the East and West Coasts, and they forget the inter-
mountain west. And so Im very appreciative of your holding the
hearing today.
Col. Parrish, I want to thank you for coming to the West and get-
ting a chance to view our unique security issues and give us your
testimony and perhaps firsthand some of the challenges we face.
I appreciate all the witness that are here today, particularly the
Bureau of Reclamation. I will tell you that in extensive conversa-
tions with Chairman Chris Cox of the Homeland Security Com-
mittee, Select Homeland Security Committee in the House, we
have looked at the issue of whether or not homeland security funds
are being properly allocated under the current formula.
And sometimes you hear colleagues say, Well, it shouldnt be
done on a population basis. It shouldnt be on done on the current
formula basis. It ought to be done on a different formula.
Id like to chime into those discussions and point out that while
perhaps the greatest need for the resources may be in our huge
population centers like New York or Los Angeles or other major cit-
ies, I have some deep concerns about the Bureau of Reclamation
facilities and the fact that they are indeed, I think, fairly vulner-
able and were they to become the targets of a terrorist attack, the
devastation could be vast and far more than I think the country ap-
preciates. So Im looking forward to your testimony.
Clearly, Mr. Chairman, the success of our anti-terrorist efforts
depend a lot on intelligence and your efforts in the intelligence
arena.
They also depend upon open lines of communication. One of the
most common complaints I get when I am out here in the West
talking with local law enforcement officials or other first respond-
ers is the issue of information flow.
And it is critically important that information flow from the De-
partment of Homeland Security, the FBI, the CIA, TTEC, all the
Federal offices involved to the State and local personnel so that
they have an operational knowledge of what is going on, and that
the information flow in the opposite direction. And I know since
that this is kind of the first time in our Nations history when we
are confronting the sharing of highly classified national security in-
formation with State and local first responders, were struggling
through that process. But I want to stress how important it is.
And so I hope that at least the one thing that comes out of this
hearing is improving the lines of communication and a develop-
ment of relationships.
7
The Chairman has already mentioned that I chair the Sub-

committee on Emergency Preparedness and Response for the
Homeland Security Select Committee in the House. I want to make
it clear that my focus, while making sure that we have the re-
sources to engage in response once an attack occurs, my primary
focus on that subject is on preparedness.
I believe the American people expect us to be forward looking, to
look out into the world to see where the attack is coming from and
stop it before it occurs.
It is all well and good that we be in good position to take care
of the attack once it has occurred, but I want to point out that at
least from my perspective, terrorist attacks are different than hur-
ricanes, perhaps different than floods and other types of emer-
gencies that our Nation can face.
I know of nothing we can do to stop a hurricane. I know of noth-
ing we can do to stop a flood. And, yet, I know of things we can
do to stop terrorist attacks, and I think the American people expect
that out of us, and I know that Chairman Cox feels that way as
well.
One point I want to make. I have been involved throughout my
congressional career in focusing on the Colorado River, the dams
on the Colorado River, and my interest in preserving them. There
are those who would like to take down for, example, Glen Canyon
Dam. I spent some time opposing those efforts.
But I would point out we have just had this energy crisis on the
East Coast, which has cost us electricity. I have just returned from
Iraq where the absence of reliable electricity is disrupting that soci-
ety rather severely.
Glen Canyon Dam has a capacity of 1.2, 1.3 kilowatts; Hoover
Dam right here just miles from us a little over one million kilo-
watts. Those are the second and third largest dams that the Bu-
reau of Reclamation has a responsibility for. Davis Dam and
Parker Dam have 251,00 kilowatts and 120,000 kilowatts each.
Those are critical work resources to this Nation. Indeed, during the
California energy crisis of 2001, it was power from those dams that
enabled us not to have any more severe consequences than we did.
The last issue I just want to mention in my opening statement
is a perennial issue for those of us in the Southwest, and that is
the porous nature of our Arizona-Mexico border.
And I hope, Mr. Parrish, at some point youll get down there and
be able to see it. It is wide open. You can fly over it. There are vast
stretches where there is not even three-strand barbed wire fence.
I think that is a clear security issue for this Nation.
So I look forward, Mr. Chairman, to the testimony and again
thank you for holding this important hearing.
Mr. GIBBONS. Thank you very much, Mr. Shadegg.
Mr. GIBBONS. Well turn now to our two colleagues who are
guests on this committee for any remarks that they may have.
Ill turn to my left to Ms. Berkley from the First District for her
remarks.
Ms. BERKLEY. Thank you very much, Mr. Chairman.
Id like to thank Ranking Members Jim Turner and Ms. McCar-
thy for inviting me to this hearing on assessing the security needs
of the West. The security needs of our Nation must be addressed
8
in a bipartisan basis, and thats why I am particularly delighted

that Congressman Gibbons has invited me to speak with you today.
I believe this is an important and timely hearing, and I welcome
my colleagues on the committee to my home town and my congres-
sional district to discuss vital concerns about protecting western
communities such as Las Vegas from the continuing threat of ter-
rorism.
Additionally, I would like to recognize my fellow panel members.
I have had the distinct pleasure of knowing them and working with
them for quite a while on this and other issues. And I know that
their leadership IS needed to manage and ensure the protection of
Southern Nevada.
September 11th woke our Nation to the fact that we have en-
emies ready and willing to take dramatic and unconventional ac-
tion against the United States. As we meet here today, it is very
likely that terrorists are meeting somewhere in the world planning
another attack on our Nation.
In the fall of 2001, that attack was against New York City and
Washington, D.C. The next attack could very well be against a
community in the West.
Federal, State, and local emergency officials across the West rec-
ognize this and are working to prevent and prepare for such an oc-
currence.
Our Nations first responders are on the front line of homeland
security. Local preparedness must be a top priority. Our first re-
sponders must be involved in every step of the process and be af-
forded the flexibility to meet community-specific needs.
A major concern in Southern Nevada is the availability and dis-
tribution of funding resources for homeland security. Local officials
and first responders know best what their community needs are.
States and localities should not find themselves in the position
of having to implement numerous Federal mandates without the
funding resources needed to support these mandates.
However, Congress and the Executive Branch continue to place
expensive requirements on State and local agencies to meet Fed-
eral homeland security goals without providing the necessary fund-
ing. Among these burdens are: Transit security measures, border
protection, safeguarding air cargo, port security, the protection of
chemical facilities, and perhaps most importantly, funding of our
first responders.
This is of particular concern at a time when the states are facing
their greatest financial crisis since World War II. It will continue
to be my priority in Congress to ensure that states and local com-
munities are provided greater resources to address their security
needs. Homeland security must be given more than lip service in
Washington, D.C. It must be a fully funded national priority.
An issue specific to Las Vegas and other tourism-based areas is
how tourists and visitors will be accounted for in the homeland se-
curity funding formulas. Local officials and emergency response
personnel must devise security plans to protect not only the 1.5
million residents, but also 36 million visitors who travel to South-
ern Nevada annually.
After September 11th, I held a roundtable discussion with South-
ern Nevadas first responders to assess their needs. After this
9
meeting, I sent a letter to the President and to Secretary Ridge

urging them to devise a funding formula that would address the
needs of tourist communities.
I was very pleased that on July 30th of this year, a provision pro-
posed by Senator Reid and Senator Ensign was approved by the
Senate Appropriations Committee with jurisdiction over homeland
security funding. This important resolution changes the homeland
security funding formula to take tourism into account. I was
pleased that the Senate recognized the impact tourism has on the
ability of many communities to adequately prepare for and prevent
terrorism.
As this important provision moves to conference, I hope that the
two bodies can agree that the impact tourism has on many commu-
nities greatly affects their ability to prepare for and respond to
threats.
However, we need to do more to help these communities. Fac-
toring tourism into the funding formulas is important, but we must
ensure that actual funds get to the responders protecting these
communities.
On a busy weekend there may be upwards of an additional
300,000 people in Las Vegas. The population of the community in-
creases substantially and the responsibility of local emergency re-
sponders increases along with it. Las Vegas officials must be able
to address the security needs of their residents as well as the
added burden of thousands of visitors. Therefore, the resources
available to these emergency responders must take into account
these added responsibilities.
Another homeland security issue that affects Nevada and the
West is protection of Hoover Dam. Hoover Dam provides water to
Arizona, California, and Nevada and supplies power to the Western
states.
A breach at the Dam would be a catastrophic event that would
affect millions of Americans. As the Federal Government assesses
the needs of the West, officials must evaluate the possible risks re-
lated to the Dam and ensure that resources and information are
available should there be such an occurrence.
Yucca Mountain and the proposed shipment and storage of nu-
clear waste to our State Poses one of the Wests most serious secu-
rity threats. I have introduced legislation requiring a comprehen-
sive analysis of the Yucca projects safety and vulnerability to ter-
rorist attacks and the development of a Federal emergency plan,
including one specifically for airborne attacks, to defend the site.
Under my legislation, the analysis and defense plan would cover
the site, transportation routes and shipping casks, waste storage
containers, and personnel working for the project, among other
items.
Instead of making the United States safer, the proposed Yucca
Mountain project and the shipment of 77,000 tons of nuclear waste
across our roads and railways provides terrorists a target that
could cause massive economic and civilian casualties.
Before we start transporting nuclear waste across the country
and before we spend another dime on this project, we better know
what were going on to address the possibility of terrorism and how
were going to do it.
10
Since September 11th, we have continued to hear and read of the

efforts of al-Qaeda and Osama bin Laden to develop a radioactive
dirty bomb or other means of nuclear attack on the United
States.
It is naive to believe that thousands of shipments of nuclear
waste and the storage of spent fuel in a single, massive facility
without adequate safeguards would not be a target of opportunity
to these mass murderers.
I am concerned about the waste at every stage of its transfer.
Waste would be vulnerable to attack during packaging, shipment,
temporary storage, repackaging, and finally in a single national re-
pository. It must be realized that the nuclear waste will be stored
above-ground for a significant period of time before it is actually
placed in the repository.
There will be hundreds of shipments of waste across our country
each year. A single truck bomb, or private plane used as a weapon,
could release radioactive waste that could endanger lives, pollute
the environment, and cost millions in economic damages.
Just last week it was revealed that the Department of Energy se-
cretly shipped nuclear waste from New York to Idaho without in-
forming officials and first responders in the communities along the
route. The Yucca Mountain project poses far too great a risk to ac-
cept blind assurances from the Department of Energy and the nu-
clear industry that every precaution is being taken to prevent a
terrorist attack and to prepare communities that would be affected.
The Federal Government has a duty to assess the risk of this
misguided plan, not just to protect Nevada and our neighbors in
the West, but for the well-being of our Nation.
Again, I want to thank you, Mr. Chairman, for holding this im-
portant hearing. I am looking forward to the testimonies of my fel-
low panel members and further discussion on homeland security
needs of the West.
[The information follows:]
PREPARED STATEMENT OF MR. WILLIAM H. PARRISH, ASSISTANT SEC-
RETARY FOR INFORMATION ANALYSIS, INFORMATION ANALYSIS AND
INFRASTRUCTURE PROTECTION DIRECTORATE
Good morning Mr. Chairman and distinguished members. I am delighted to appear
before you today here in Las Vegas, Nevada to discuss The Department of Home-
land Securitys role in securing the West.
I am currently the Acting Assistant Secretary for Information Analysis in the Infor-
mation Analysis and Infrastructure Protection Directorate (IAIP). Prior to assuming
this position on July 3rd of this year, I was the Senior DHS representative to the
Terrorist Threat Integration Center (TTIC). In this capacity I served in a senior
leadership position as the Associate Director for Homeland Security. My tenure in
US Customs as the Executive Director of Anti-terrorism provided the opportunity
to gain an appreciation for the criticality of information sharing and the necessity
for recognition and understanding of individual agencies capabilities in the fight
against terrorism.
The Department of Homeland security is focused on a clear mission: to prevent ter-
rorist attacks, reduce our vulnerability to an attack, and minimize loss of life and
speed recovery should one occur. Further, the Departments mission includes reduc-
ing the opportunity for terrorists to exploit failures of critical infrastructure caused
by natural disasters or other unplanned emergency circumstances (e.g.,
vulnerabilities arising from failures in water supply, dams, bridges, or power grids).
In this mission, the Department of Homeland Security is not alone. We are actively
working with our Federal partners, State and Local governments and the private
sector. Our strategy for protecting the country is a national strategy for a reason,
11
as Secretary Ridge has stated on numerous occasions, When our hometowns are
secure, our homeland will be secure. That is not merely rhetoric, but a fundamental
principle of the nations hOl1}e.1and security effort. Everyone is a partner in the
effort. As you all know, 85 percent of our nations critical infrastructure is owned
or operated by private enterprise. This includes systems such as telecommuni-
cations, banking and finance, energy and transportation. The private sector also is
a key source of new ideas and innovative technologies that will provide tools in the
fight against terrorism.
We must be aggressive in connecting and staying connected with our partners to
provide an extraordinary and unprecedented exchange of information. This informa-
tion must be actionable by local law enforcement and first responders, but must also
empower the average citizen to do his part in assisting with securing our homeland.
We can never guarantee that we are free from the possibility of terrorist attacks,
but we can say this: Today, the American people are more secure and better pre-
pared than ever before.
I say that because we are more aware of the threat of terrorism, and more vigilant
about confronting it. We share more information with the people who need it, in-
cluding our state and local partners and the private sector. And they share with us.
Ensuring homeland security requires a nation-wide cooperative effort.
Weve moved rapidly to map and protect our critical infrastructure, such as power
plants and financial systems; seal our borders from terrorists and suspicious cargo;
and prevent and prepare for attacks involving weapons of mass destruction.
The terrorist networks we seek to eliminate, in large measure, plot and train over-
seas. They recruit new members in democratic countries. They launder their money
through international banks. They communicate through the same networks used
for global commerce, and travel the same busy ports. Thats why were providing
added layers of security that push our borders outward, making our seaports, air-
ports and borders the last line of defense, not the first. Taken together, these meas-
ures help us achieve the mission of homeland security.
The Department of Homeland Securitys Information Analysis and Infrastructure
Protection directorate plays an important part in the mission of homeland security
by: (1) providing the full range of intelligence support to senior DHS leadership; (2)
Mapping, with Infrastructure Protection (IP), terrorist threats to the homeland
against our assessed vulnerabilities in order to drive our efforts to protect against
terrorist attacks; (3) conducting independent analyses and assessments of terrorist
threats, including competitive analysis, tailored analysis, and red teaming; (4) in-
tegrating the work of all DHS components as well as managing the collection and
processing of information into usable and actionable information from DHS intel-
ligence components; and disseminating time sensitive alerts and advisories to fed-
eral, state, local governments and private sector infrastructure owners and opera-
tors.
IAIP has robust, comprehensive, and independent access to information relevant to
homeland securityraw and processedcollected domestically and abroad. Access-
ing the information and intelligence from this mosaic of programs and systems of
federal, state and local agencies supports our mission to analyze data and take ac-
tion to protect against terrorist attacks directed at the U.S. homeland. Our Informa-
tion Analysis (IA) office has the ability to conduct its own analysis and to leverage
the information of the FBI, the CIA, TTIC and the remainder of the Intelligence
Community and federal government, plus state and local law enforcement and pri-
vate sector entities, to protect the homeland.
Central to the success of the DHS mission is the close working relationship between
IA and IP to ensure that threat information is correlated with critical infrastruc-
ture vulnerabilities and protective programs. This threat and vulnerability informa-
tion can then be used to recommend preventive and protective measures.
In addition to the unique IAIP partnership; the Homeland Security Operations
Center (HSOC) serves as a focal point for the Nations efforts to protect our home-
land. The HSOC is a 24 x 7 x 365 days a year center comprising members from
more than 13 federal agencies from the Intelligence Community, Law Enforcement
Agencies, emergency preparedness organizations and other entities focused on infra-
structure protection. Given the information provided from the parent organizations
of these entities, and the all-source data provided by other DHS partners, informa-
tion and intelligence relating to threats to the homeland are analyzed from multiple
arenas. This all-source data-fusion performed at IAIP allows products to be tailored
to address a specific threat that assist DHS constituents in prioritizing resource al-
locations in the enhancement of their security posture that supports their efforts in
countering potential terrorist acts.
12
IAIP is the central information center ofDHS efforts to coordinate the protection of
U.S. homeland security. As such, IA supports DHS law enforcement components
through timely and integrated analytical support. For example:
In coordinating with Customs and Border Protection, which process more
than 1.1 million passengers arriving daily at our Nations airports and sea-
ports, and inspects more than 57,006 trucks and containers, 580 vessels,
2,459 aircraft, 323,622 vehicles, and arrest over 2,500 illegal alien border
crossers and smugglers daily. IA has immediate access to valuable informa-
tion regarding potential terrorist activities that further enhances our ability
to develop threat plot lines - connecting the dots.
In coordinating with immigration and Custom Enforcement, which inves-
tigates cases involving alien smuggling, terrorist financial dealings and
other crimes associated with terrorist operations, IA analyses and assess-
ments ensure the ability to identify potential trends of terrorist related ac-
tivity.
In coordinating with the Transportation Security Administration, which
screens approximately 1. 5 million passengers every day before they board
commercial aircraft, IA assists in determining individuals to be entered on
Watch lists.
IA ensures that homeland security products derived from the fusing of disparate
types of information are shared with Federal, State, and Local governments, as well
as the private sector. Additionally, IA coordinates with the Federal Bureau of Inves-
tigation in publishing combined DHSFBI Intelligence Bulletins.
IAIP is building a strong team of professionals and assigning dedicated and knowl-
edgeable individuals in key liaison positions within our partnering agencies. This
will further enhance the timely access to critical information that when placed in
the hands of the dedicated and competent members of DHS serving at our borders,
airports, seaports across America, will increase our ability to detect, prevent and
deny terrorists the opportunity to plot a strike against our Homeland. With the con-
tinued support of Congress, I am confident that IAIP and our partners in the war
against terrorism can succeed in meeting the challenges presented before us.
The Department of Homeland Security is the second largest department in our Gov-
ernment. In our first six months we have made progress in numerous areas, but
we are just at the beginning of this comprehensive effort to protect our Nation from
terrorism. While much has been accomplished, there is much more work to be done.
We must stay focused and engaged in this effort so that we can meet the challenges
of this critical time in our Nations history.
Mr. Chairman, this concludes my prepared statement. I would be happy to answer
any questions you may have at this time.
Mr. GIBBONS. Thank you very much. Well turn now to the new-
est member of the Nevada delegation, who we are all pleased and
proud to work with, Mr. Jon Porter from the Third Congressional
District.
Mr. Porter, welcome to the committee. You have five minutes to
make your opening statement.
Mr. PORTER. Thank you very much, Congressman Gibbons, for
your leadership and to my colleague from Arizona, Mr. Shadegg.
We appreciate your help and assistance. And of course to the panel
and all those first responders in the audience todayfire, police,
highway patrol, Federal agencies, we appreciate your input. And
trust me, we want to hear what you have to say.
The events of September 11th, of course, changed forever the
way that this country considers its safety. Threats we did not think
were serious or that we failed to recognize have become far too real
to ignore any longer.
Thanks to the leadership of the President and farsighted mem-
bers, such as the panel here today, we now have a Homeland Secu-
rity Department to coordinate responses to the immense challenges
of guarding against terrorist attacks and this committee to oversee
that department and point out where more effort is needed.
13
Las Vegas and all the other communities here, including the
County of Clark, have a special challenge since that day of Sep-
tember 11th. We depend upon the free flow of tourists into our
community, yet we cannot afford any threats to our air transport
system. We depend on critical infrastructure for our very existence,
but cannot afford to be over dependent on any single response plan
or resource for meeting threats to that infrastructure.
Southern Nevada turns a friendly smile to the world, but cannot
forget that there are men and women who would take advantage
of us and threaten our community and our families.
Since my election to Congress, I have worked with Mr. Gibbons
and, of course, my colleagues here on the panel, Director Randy
Walker, who is here today, Rosemary, and to many others, Jerry
Bussell, friend for years, to help improve our ability to protect our-
selves and to prepare Nevada in case of a disaster.
The Nevada delegation is working to ensure that our massive
population is taken into account when funds are distributed to cit-
ies by population.
Having chatted with Metro, and I think Stan Olsen is here
today, Stan, were hearing your words. Where at one time we can
have a population of 250,000 to 300,000 or more at a given time,
in reality, this is an emergency that can impact millions of people.
We must have adequate funding to ensure that our first respond-
ers continue to be able to ensure the safety of all residents and the
visitors of our county, aid to communities must be proportional to
the population and the threat.
We must also work towards ensuring the safety of our power grid
and energy generators. The recent blackouts in the Northeast
show, once again, how important the Hoover Dam and the trans-
mission lines are to Southern Nevada and to the whole West Coast,
from agriculture, irrigation, to power. We have to ensure that Hoo-
ver Dam and other critical infrastructures are physically safe and
also that our infrastructure is safe from the electronic attack that
could take place or interfere with water, power throughout the
community.
Having met with many local government leaders, city managers,
a grave concern for our communities is the technology. Imagine for
a moment an individual sitting in a hotel room or in a tent or in
a home somewhere around the world with a laptop computer that
could break into our technology and literally bring our communities
to a halt.
Working with Mrs. Berkley, we were able to make sure that
McCarran Airport is reimbursed for funds its put up for security
improvement. And we want to do more. We were able to convince
Transportation Security Administration to revoke some of the dra-
conian cuts that is proposed for McCarran. Randy and Rosemary,
we appreciate everything youre doing.
As I mentioned, we are working with Metropolitan Police Depart-
ment. Another major concern for Nevada and the rest of county is
uniform communication system. I can remember being at ground
zero in 1988 shortly after the explosion in Henderson, the PepCon
line, communication was a challenge. Of course, our heros in the
fire and rescue and police did a yeomans job. But I remember that
day in 1988, we were talking about having a uniform communica-
14
tion system so our different levels of emergency personnel could re-

spond accordingly. We have yet to meet that challenge.
In the coming months, well be working together to make sure
that more resources are available for our communities and to en-
sure that Southern Nevada is prepared for the challenges our Na-
tion may face.
I want to thank, of course, all the witnesses and appreciate ev-
eryone for being here today, and Im looking forward to working to-
gether as we accomplish this main goal.
Thank you all very much.
Mr. GIBBONS. Thank you very much, Mr. Porter.
Mr. GIBBONS. Before we begin with our first panel, theres a few
housekeeping items that need to take place.
First, I need to advise the panelists here that we try to restrict
our opening remarks to five minutes or thereabout. No one is going
to stop you if you go over, but we would like to proceed timely so
that both panels will have an opportunity to be heard and for the
panel here to ask question of each of the members there.
So with that stated, let me say that each of your written state-
ments in full will be submitted in its entirety for the records. So
if you want to summarize your remarks, that is fine as well.
Also, to the audience, for those people here, the record is going
to remain open for a period of 14 days so that any comment or com-
ments that you want to submit for the record will be allowed. You
can send those to us at the committee in Washington, D.C. They
will be entered into the record.
That being said, let me also now turn to our first panel. Welcome
each of you. This is a very distinguished moment for all of us here,
and I am sure that it is for you, to appear before a United States
Congress committee and have an opportunity to have your voices
heard.
Mr. GIBBONS. I will begin with Mr.Colonel Parrish and his re-
marks.
Mr. Parrish, welcome. Were happy to have you, and the floor is
yours.
STATEMENT OF MR. WILLIAM H. PARRISH

Mr. PARRISH. Thank you very much, sir. And good morning,
Chairman, and Congressman Shadegg and Congresswoman Berk-
ley, and Congressman Porter. I am delighted to be here and hon-
ored before you this morning.
Before I begin, I would like to express on behalf of the Depart-
ment, sir, we appreciate, Congressman Gibbons, your tireless and
dedicated efforts in this fight against terrorism, your recognition of
how important the efforts of the Department is in securing a safe
nature. We appreciate that.
This hearing is also very important to the Department of Home-
land Security because it affords me the opportunity to get out of
Washington and get out in America, and, unfortunately, I just dont
have enough time to spend in this great city for a few more days,
or I think literally I could walk the streets and the lobbies of the
hotels and probably talk to at least one person in every section of
this great country and hear firsthand about their views on how the
scorecard is for the Department of Homeland Security.
15
But I think its safe to say that the people I have talked to, I
think, without question, that the leadership of Congress and the
Administration, our President, in developing without and creating
the Department of Homeland Security was certainly the right step
to take for this Nation.
I am the acting assistant secretary for Information Analysis of
the Information Analysis Infrastructure Protection Directorate. I
assumed that position on the 3rd of July.
Prior to that, I was assigned as the Senior Department of Home-
land Security representative to the newly created Terrorist Threat
Integration Center, where I served in a key leadership position
known as the Associate Director for Homeland Security.
Prior to that, I stood up for the Office of Anti-terrorism with the
U.S. Customs Service right after 911. During my tenure at Cus-
toms is really when I became aware of the fact of that the impor-
tance and the critical pieces in this war against terrorism had to
be information sharing amongst agencies.
And I will submit that I like to see that the glass is half full.
And Im not sure if it was cultural issues or a lack of willingness
to share information as much as a full understanding and apprecia-
tion for what another agency could do with that information if they
had it.
I continue to strive for that same type of approach now that I
am at the inner-agency level, if you will, and not operating just
within the confines of a single organization. And Ill refer to that
a little bit later on.
Within the Department of Homeland Security, we have the oper-
ational organization, as Ive mentioned, such as Customs, and now
the integration with Customs and Border Protection. We have
agencies that have access to a wealth of information that assist in
connecting the dots, if you will, of terrorist activities or potential
terrorist activities in this country.
When you look at the borders, and as Congressman Shadegg in-
dicated, the southwest border there and the vastness of it, cer-
tainly, I know it is a priority within the Custom-Border Protection
with the Secretary of how we address that situation.
But when on a daily basis, we have over 1 million passengers
coming across our borders, either through the air or across the
land, or by sea entering our countryover 57,000 trucks coming
across our borders and containers, with 580 vessels arriving at our
seaports on a daily basis, 2,500 aircraft coming into the United
States and over 323,000 vehicles entering our country, stop and
think for a moment, though. The Customs inspectors and the bor-
der patrol agents have the ability as they access potential informa-
tion because of their unlimited search authorities at those borders,
the ability to acquire information that could be a key piece, a miss-
ing dot, if you will, in a major FBI case trying to formulate and
see if we have a potential terrorist plot.
We have the same with our Immigration and Customs Enforce-
ment Bureau, again, where theyre working and investigating cases
on alien smuggling operations, financial operations, and other
crimes that may be associated with terrorist operations.
The Transportation Security Administration postured at the air-
ports processing 1.5 million passengers daily, again, another set of
16
eyes and ears, if you will, out there looking at whats moving
through our country.
But to further enhance this process of correlating the information
from other agencies, we have within the information analysis and
the infrastructure protection directive, the homeland security oper-
ations center, which we man 24 hours per day, seven days a week,
365 days a year. And in reference, Chairman Gibbons, to last
weeks blackout was a major active player in the immediate proc-
essing of information to be able to advise key leadership of the
country what was happening with the northeast corridor during
that blackout period.
Additionally, within that center, we have approximately 15 dif-
ferent Federal agencies represented. In my experience, any time
you bring different agencies sitting down in a room together next
to each, a tremendous amount is learned about the capabilities and
what each agency brings to the fight.
Im proud to say each morning between 9:00 and 9:30, the direc-
tor of the operations center huddles all those agencies, and each
one reports on the major activities of their agencies what theyre
getting from the operations center, another step in the information
sharing process, which is so critical.
As these reports are received into the operations center, they
may be coming, again, from our supportive agencies. They may be
coming from State and local authorities, and even the private sec-
tor, suspicious activity reports.
These reports are then processed with the information analysis
director, the people under my staff. We analyze this information.
We coordinate it with other agencies in order to identify if there
is any possible correlation with terrorists nexus to these reports
that are coming in.
For example, a report of suspicious person videotaping the en-
trance to a nuclear power facility at one location and perhaps two
days later at another site in another State, a similar vehicle is also
observed.
How is this correlated to see if, in fact, we have now a
presurveillance operation in place?
This is the type of information that we look to bring into the op-
erations center at our department so we can conduct this in-depth
assessment, independent assessment and an analysis of what were
dealing with.
Im confident that the process and procedures that we are con-
tinuing to build upon, though, that I have described here, are in
full compliance with the legislature that had been passed by you,
by the Congress, in the Homeland Security Act of 2002.
Specifically, though, regarding, on the success, the most recent
successes of the FBI and CIA, who should very well be commended
on those great Americans, what they are doing, we have succeeded
in arresting some very key members of al-Qaeda over the past 12
months. I think you have been hearing about some of the reporting
and the information that we are learning.
What we are seeing is that the organization al-Qaeda singles out
targets whose destruction may have symbolic resonance, strike a
blow to U.S. power and prestigious impacts, causing mass casual-
ties and generate economic shockwaves throughout the country,
17
and, of course, us being the center of the world, if you will, a global
economic impact.
Further, the concept of multiple and simultaneous attacks are
part of this modus operanti, as we observed here in the U.S. on
September 11th and other attacks overseas. And although we have
learned of their focus on these type of targets, specific intelligence
is not always present. Its a very daunting and very challenging
process of trying to acquire that type of specific intelligence.
However, its important to ensure that our State and local part-
ners as well as the private sector entities are aware of the terrorist
focus on such high value targets. Many such examples are present
here in the West.
As you know from previous reporting, in our major metropolitan
areas, such as Washington, New York, Los Angeles, and Chicago,
we have numerous facilities that offer this type of high value tar-
gets. We have learned from detaining debriefings that al-Qaeda is
interested in a range of facilities from transportation, infrastruc-
ture nodes to apartment buildings and tall buildings.
Some domestic targets may include symbolic structures, particu-
larly the White House, the Capitol, and other Federal buildings
here in the West. Symbolic icons might include tall buildings and
other high profile landmarks. Headquarters for major corporations
and financial centers would achieve their intent of disruptions of
our economy.
The energy sector including the U.S. nuclear facilities, petro-
leum, tank farms, and refinery facilities are also target lists for al-
Qaeda.
The railway, the mass transit systems, and things such as
bridges and tunnels also have been reported as potential for al-
Qaeda. The dams and water systems have also been addressed in
some of the debriefings. Public venues, we can no longer conduct
a large scale public event without having a detailed, well rehearsed
security plan in advance.
And, finally, aviation remains a target since September 11th op-
eration of al-Qaedas greatest success and one that their master-
minds consider worth repeating.
Late last month, the Department issued a threat advisory warn-
ing of a potential hijacking end of summer plot in the U.S. and
abroad.
I would like to say here, going back to the last year, when Con-
gressman Shadegg had asked me to do an independent assessment,
I will tell you I was a holdout in the intelligence community on
that report. Secretary Ridge has an undaunting, challenging task
of making that announcement to the American people.
As we understand the limited resources of the states and private
sectors to expend their resources to enhance security, securities, it
is my responsibility to ensure that I am picking up every rock,
every piece of raw material and analyzing it to the greatest extent
possible so that I can look the Secretary in the eye and say, I
agree that this is a credible threat that needs to go out.
I delayed the process probably for 24 hours because I had to be
convinced, and I will tell you I was convinced in the end based on
the intelligence report that I reviewed.
18
But I just want to share that with the panel that we in the De-
partment of Homeland Security are very sensitive to the State,
local, and private sector on how they need to prepare for it. I think
the focus of our Homeland Security advisory bulletins and informa-
tion bulletins when we put those out, we try to put something out
that says, Here is a threat, but yet here are protective measures
that you may consider to employ as we address this threat.
We want to do more to help our partners. And when I say our
partners, I mean the State and local Americans that are out there
that are doing such a tremendous job. They are a wealth of infor-
mation for us as well in being able to provide information that can
help us connect the dots.
Id like to just close here, then, and just to say that our robust
and comprehensive independent assessment, we are continuing to
refine that. Its not a push-pull system yet. We are still pulling for
information.
As I said before to the committee, Parrish has not been told no
yet when hes asked for a piece of key intelligence, and the day
that Parrish is told no, you will be the first to know, sir.
We are just at the beginning, though. We have a long ways to
go in this processing. Hearings such as yours today provides each
of us, though, an opportunity to learn and look back at where we
have come as a Nation since that dark day in our history on Sep-
tember 11th.
We need to recognize that thanks to you and to your staffs and
our Federal agencies, including all law enforcement and intel-
ligence agencies, the dedicated State and local authorities in the
private sector, and the American people in general have risen to
the challenge of the new enemy threat, the new enemy threatening
our security.
The coordinated efforts of all of us, sharing, in a key part sharing
the challenges and responsibilities together, we have made a dif-
ference, and our Nation has not suffered another attack. We must
not become tired or grow weary. The dedication and commitment
must continue, and above all, continuous prayers for the safety and
security of this great Nation.
Thank you, sir, for this hearing and the opportunity. I look for-
ward to your questions.
Mr. GIBBONS. Thank you very much, Secretary Parrish. And I do
apologize. I should have said Secretary Parrish when I introduced
you earlier. That was my mistake.
Your testimony and statement is very enlightening, very helpful
to the community, and I am sure the public was listening to it as
well.
Right now well turn now to Mr. Larry Todd. Welcome, and the
floor is yours, Mr. Todd.
STATEMENT OF MR. LARRY TODD, DIRECTOR, SECURITY,

SAFETY AND LAW ENFORCEMENT, BUREAU OF RECLAMA-
TION, U.S. DEPARTMENT OF THE INTERIOR
Mr. TODD. Thank you. Mr. Chairman, members of the committee,
it is a pleasure to be here today to provide this report on what the
Bureau of Reclamation is doing to address the security needs of its
water and power facilities in the Western United States.
19
My name is Larry Todd. I am the Director of Security, Safety,

and Law Enforcement for the Bureau of Reclamation.
Reclamation is responsible for over 350 major dams and res-
ervoirs and 58 power plants in the West. In carrying out this re-
sponsibility, the security and safety of the public, and our employ-
ees and the facilities is our highest priority.
Reclamation has had a long-standing and effective safety pro-
gram for public and employee safety, as well as dam safety. How-
ever, our efforts in establishing a separate security program only
began in 1995. At the time, we hired a security officer, complete
security reviewed, established work levels, and began hardening
our facilities. Reclamation thus had various security measures and
response plans in place prior to September 11th. Those measures
were instrumental in our ability to respond quickly and effectively
to the events of that tragic day.
Since 911, Reclamation has significantly improved its security
efforts by implementing long-term security programs. Key elements
of the program include establishing a security, safety, and law en-
forcement office; conducting vulnerability risk assessments at all
major dams and facilities; contracting for a top-down security pro-
grams review by outside experts; implementing Reclamations new
law enforcement authority and implementing various informational
and personnel security measures and polices.
Currently, we have designated 280 facilities that are being as-
sessed by the end of 2005. This past year we have assessed and im-
plemented security measures on 55 of those most critical facilities,
and 12 Reclamation Visitor Centers.
On these facilities, we have implemented well over 50 percent of
the accepted recommendations. We have developed personnel secu-
rity, designating for background checks when necessary for both
employees and contractors who access facilities.
We have instituted an information policy to more closely control
sensitive information about facilities. And we have staffed the secu-
rity and law enforcement functions with in-house expertise as well
as experts recruited from other agencies. We have also created se-
cure office space to effectively deal with classified and control docu-
ments and have established a secure communications systems.
We are progressing very well in established a secure security
program with Reclamation. For example, with Hoover Dam, we
have made several security-related enhancements since 911. First,
we have enhanced our relationship on security matters with the
Federal, State, and local law enforcement agencies, including Clark
County, Las Vegas Metro Police and the National Park Service. We
also maintain a close working relationship with the Arizona De-
partment of Public Safety, Division of Criminal Intelligence, and its
Nevada counterpart in sharing relevant intelligence information.
Second, we have increased the number of law enforcement offi-
cers and security guards on site. We then enhanced checkpoints on
both the Nevada and Arizona side and added lighting and elec-
tronic monitoring surveillance devices at selected sites.
Third, we have limited traffic across the Dam to passenger vehi-
cles, vans that are easily inspected, and short-haul trucks with per-
mits. All vehicles are subject to random checks. The long-haul
20
trucks are being re-routed around the Dam through US 95 and

Interstate 40.
Fourth, we have added physical security upgrades and modified
visitor tours.
In conclusion, I believe that Reclamation has made considerable
progress to date in ensuring our dams and other facilities are much
more secure today than they were on September 11th.
However, we recognize that a great deal of work still needs to be
done as more risk assessments are completed and new
vulnerabilities and threats are discovered. Reclamation remains
fully committed to the safety and security of the public, our em-
ployees, and our water and power facilities which provide these
vital resources to so much of the West.
Mr. Chairman, that concludes my prepared remarks, and I am
ready to address any questions the committee may have.
Mr. GIBBONS. Thank you very much, Mr. Todd. We appreciate
your statement and your comments here as well. They have been
very helpful to us.
[The statement of Mr. Todd follows:]
PREPARED STATEMENT OF MR. LARRY L. TODD
My name is Larry L. Todd. I am Director of Security, Safety and Law Enforcement
for the Bureau of Reclamation. Mr. Chairman, it is a pleasure to be here today to
provide this report on what the Bureau of Reclamation is doing to address the secu-
rity needs of its water and power facilities in the Western United States. Reclama-
tion is responsible for over 350 major dams (including 58 power plants) and res-
ervoirs in the West, and the security and safety of the public, our employees, and
our facilities is our highest priority.
Reclamation has a long-standing and effective safety program for public and em-
ployee safety, as well as in dam safety. However, our efforts in establishing a sepa-
rate security program only began in 1995. At that time, we first established the po-
sition of Security Officer, performed initial vulnerability assessments at five of our
dams, and formalized the emergency action plans exercise program. In subsequent
years, we continued to perform more in-house vulnerability assessments at key fa-
cilities, developed a data base on resulting recommendations for improving security,
and implemented site security improvements. These improvements consisted of
measures such as ensuring access doors and gates were locked, improving lighting
of key areas, and increasing employee security awareness. We also developed con-
tinuity of operations plans for all our major offices and developed threat response
measures for 4 different alert levels. Reclamation worked closely with other Federal
water and power resource agencies through the Interagency Forum on Infrastruc-
ture Protection in developing risk assessment tools and sharing technologies, and
also participated in the FBI Joint Terrorism Task Force to share intelligence infor-
mation. The coming of the new millennium and the concern over Y2K issues raised
our awareness of electronic security. These events resulted in Reclamation con-
tracting with the United States Department of Energys Sandia National Labora-
tories for an IT Security assessment.
Reclamation had various security measures and response plans in place prior to
September 11, 2001 (911). Those measures were instrumental in our ability to re-
spond quickly and effectively to the events of that tragic day. On 911, we imme-
diately implemented high alert levels and threat response measures commensurate
with those levels. This program included closing all visitor centers and halting all
tours, posting Department of the Interior and State law enforcement officers at
major dams on a 24/7 basis, increasing security patrols at all our facilities, and
shutting down our web site to review it for sensitive information and to protect po-
tentially sensitive information during the review process. Reclamations response ac-
tivities were closely coordinated within the Department of the Interior, which pro-
vided law enforcement assistance. This was necessary since, at that time, Reclama-
tion did not yet have its own law enforcement authority. We began working with
the new White House Office of Homeland Security and other Federal infrastructure
agencies to share information on potential threats and on response measures being
21
taken. There were no interruptions in any of our water or power deliveries as a re-
sult of the events of 911.
In the months following 911, Reclamation developed and provided guidance to our
regional and area offices on critical considerations such as: addressing chemical, bio-
logical, and radiological attacks; ensuring that necessary emergency management
actions are taken; protecting and safeguarding information and records; and pro-
viding for tourism security, particularly as it relates to international visitors.
Reclamations four-level threat-response measures were revised to match the five-
color- level alert system established by the Office of Homeland Security. Under
these measures, there are specific security steps to be taken at each facility, depend-
ing on the type of facility it is, for each of the national threat levels. There are also
exact procedures in place for ensuring that, in transitioning from one alert level to
the next, certain tasks are met, such as: timely communicating the transition; en-
suring that all necessary measures are implemented in a timely manner; and trans-
mitting situation reports to keep management informed of changing conditions.
These procedures have been tested and successfully applied on several transitions
to date.
In addition to these short-term responses, Reclamation recognized the need to de-
velop a comprehensive long-term security response plan. Key elements of the long
term response plan that were developed include: establishing a Security, Safety and
Law Enforcement Office; conducting vulnerability and risk assessments at all dams
and major facilities; contracting for a top-down security program review by outside
experts; implementing Reclamations new law enforcement authority in Public Law
10769, and implementing various informational and personnel security measures
and policies.
In 2002, Reclamation Commissioner John W. Keys, III established the Office of Se-
curity, Safety and Law Enforcement, and appointed me as the Director reporting di-
rectly to the Commissioner. The Office is located in Denver, Colorado and it includes
the previously existing occupational safety and health, dam safety, emergency man-
agement, and security functions, as well as Reclamations new law enforcement
function. We have staffed the security and law enforcement functions with in-house
expertise and with experts recruited from other agencies. We also created secure of-
fice space to effectively deal with classified and controlled documents, and have es-
tablished secure communication systems.
To facilitate the potential re-opening of the 12 major visitor centers at Reclamation
facilities, we contracted with Sandia National Laboratories to conduct security risk
assessments at our visitor centers. Following implementation of the recommended
security improvementswhich included posting armed guards at visitor centers and
on tours, screening visitors, and limiting tour routesvisitor centers were re-opened
to the public and tours were re-initiated.
Under Reclamations Safety of Dams program, we have 252 high and significant
hazard dams, which are facilities where failure could cause loss of life or significant
economic damage. Reclamation committed to conducting vulnerability and risk as-
sessments at all those facilities, as well as at 28 other critical facilities, such as
power plants, pumping plants, and canals. Using carefully defined key factors to
rate each facility, we prioritized all 280 facilities to be assessed. In 2002, Reclama-
tion contracted with security experts at the Defense Threat Reduction Agency, Law-
rence Livermore National Laboratories, and five other private security firms, to
have our 55 most critical facilities assessed for risk, vulnerability and security.
Those assessments were completed in 2002. The recommendations resulting from
those assessments were analyzed by Reclamations security experts with assistance
from experts from the Corps of Engineers and Sandia National Laboratories. These
recommendations were then presented to management for development of a final de-
cision document for implementing the accepted recommendations to enhance secu-
rity procedures and fortify the facilities. Approximately 54% of the nearly 1,400 rec-
ommendations resulting from the first 55 risk assessment reports have been imple-
mented to date, and many others are in the process of being implemented. Risk as-
sessments are being initiated in fiscal year 2003 at an additional 101 facilities; the
remaining facilities will be assessed in fiscal year 2004.
For example, at Hoover Dam we have made several security related enhancements
since 911. First, we have enhanced our relationship on security matters with the
Federal, State, and local law enforcement agencies, including Clark County, Las
Vegas Metro Police and the National Park Service. We also maintain a close work-
ing relationship with the Arizona Department of Public Safety, Division of Criminal
Intelligence and its Nevada counterpart in sharing relevant intelligence information.
Second, we have increased the numbers of Law Enforcement Officers and Security
22
Guards on site, enhanced checkpoints on both the Nevada and Arizona side with
lighting and barrier gates, and added lighting and electronic monitoring and surveil-
lance devices at select sites. Third, we have limited traffic across the Dam to pas-
senger vehicles, vans that are easily inspected, and short-haul trucks with permits.
All vehicles are subject to random checks. Long-haul trucks are being re-routed via
US 95 and Interstate 40. Fourth, we have added physical security upgrades and
modified the visitor tour.
A top-down review of Reclamations security program was conducted by Sandia Na-
tional Laboratories in 2002 and included members of the Interagency Forum for In-
frastructure Protection. The purpose of the review was two-fold: (1) to evaluate the
current organization, policies, and processes of Reclamations security program by
reviewing numerous security documents and interviewing all levels of Reclamation
and Interior personnel, and (2) to make recommendations for a mature, sustainable
security program. The final report was presented to Reclamations senior manage-
ment in June 2003 and they are currently considering the reviews findings and rec-
ommendations.
Until the enactment of Public Law 10769 on November 12, 2001, Reclamation had
no law enforcement authority. Public Law 10769 provided Reclamation with the
authority to enforce Federal laws on Reclamation projects and lands and to contract
for law enforcement services with other Federal, state, Tribal, or local law enforce-
ment agencies. Following enactment, Reclamation published regulations on public
conduct on Reclamation lands and at Reclamation facilities, and on the use of non
Interior law enforcement officers to enforce Federal laws on Reclamation lands. (It
should be noted, however, that at Hoover Dam, Reclamation has long had authority
under different statutes and regulations to maintain an armed police force.)
Since 911, in the area of personnel security, we have put in place a policy requiring
background checks of our employees and contractors. This includes identifying addi-
tional positions needing security clearances. We have also implemented a policy on
restricting and protecting security-sensitive information and have installed perim-
eter security around our information technology systems.
In fiscal year 2002, Reclamation received $30.2 million in supplemental appropria-
tions for our security and counter-terrorism efforts. That funding was used pri-
marily for guards and surveillance, studies and risk assessments, law enforcement
and interim security equipment. In fiscal year 2003, our $28.4 million appropriation
for site security/anti-terrorism was increased by $25 million through a supplemental
appropriation, for a total of $53.4 million. Those funds are being used for guards
and surveillance, including those needed to maintain our continuing heightened
state of alert at all our facilities; for additional risk assessments at key facilities;
for further implementation of our law enforcement program; for law enforcement
and security equipment; and for hardening our facilities through the implementa-
tion of recommendations in the completed vulnerability risk assessments.
In conclusion, I believe Reclamation has made considerable progress to date in en-
suring our dams and other facilities are more secure today than they were on Sep-
tember 11, 2001. However, we recognize that a great deal of work still needs to be
done as more risk assessments are completed, more recommendations are accepted
for implementation, and new vulnerabilities and new threats are discovered. Rec-
lamation remains fully committed to the safety and security of the public, our em-
ployees, and our water and power facilities which provide these vital resources to
much of the West.
Mr. Chairman, that concludes my prepared remarks and I stand ready to address
any questions the Committee may have.
Mr. GIBBONS. We turn now to my good friend, Mr. Bussell, Colo-
nel, retired, now the head of this States Department of Homeland
Security for Nevada.
Jerry, welcome.
STATEMENT OF COLONEL JERRY BUSSELL, SPECIAL ADVISOR

TO THE GOVERNOR, NEVADA HOMELAND SECURITY OFFICE
Colonel BUSSELL. Thank you very much, Mr. Chairman, distin-
guished members of the committee, as you can see in my written
statement, I plan to address five areasfunding, communication
23
interoperability, critical infrastructure, homeland advisory system,

and Nevadas need for a civil support team.
Id like to deviate from that just a little bit. Congressman Berk-
leys statement so cleared walked right down my funding list, I
think it would be repetitive that I go over those things again. I
would just like to jump over and talk about communication inter-
operability.
But before I go there, theres a couple of things that I would add
in the areas of vulnerability in the funding. Las Vegas has 18 of
the 20 largest hotels in the United States, and they are located on
our 2.1 mile Las Vegas Strip. Understanding that the Las Vegas
Strip is not actually in Las Vegas, it is in the unincorporated great-
er Clark County, that 11 of those largest hotels are right next to
McCarran Airport, which is the seventh busiest airport.
At any one time, 24/7, 365, the Las Vegas Strip has more people
than Fort Lauderdale, Florida, or Salt Lake City, Utah. If that is
not a vulnerability, Mr. Chairman, I dont know what is.
Moving on, in the areas of communication interoperability,
should an incident occur, its important that first responders have
the ability to talk with each other. I think that is a pretty com-
monly accepted statement, one of the fireman would be able to talk
with the policeman and both to be able to talk to the first medical
responder. In a perfect world, wouldnt it be nice if every policeman
and fireman and medical responder could talk to each other any-
where and everywhere.
However, at this time we do not live in a perfect world. We live
in a world that is at war. But we do need to build a system where
a first responders leadership or the first responder leader could
talk. The incident commander could have a full chain of commu-
nication abilities, not just for voice, communications for the com-
puter, and maybe even the future, the video. An instant com-
mander would need the ability to talk not only to the firemen, the
policemen, or the emergency medical responders, but, for example,
he may need to talk or she may need to talk to Department of
Transportation, the water company, the power company, schools, or
those other first responders that we dont normally think of, some
people like our civil support team, Hazmat teams, the National
Guard, maybe the directors of the different securities or the secu-
rity directors of our different hotels, not to include the number of
Federal agencies, whether it be the FBI, ATF, DEA, ICE, and on
and on and on.
Nevada is probably no more unique in the areas of communica-
tion interoperability than many other states. Since there is no per-
fect system available, we are looking at a number of options, but
theres a clear problem. With Nevadas current shortfall, it is going
to be almost impossible to completely fund even a partial system
without help.
That completes my initial formal remarks, Mr. Chairman. I look
forward to your questions.
Mr. GIBBONS. Thank you very much, Mr. Bussell.
[The statement of Colonel Bussell follows:]
24
PREPARED STATEMENT OF MR. JERRY BUSSELL
Mr. Chairman, it is a pleasure for me to have this opportunity to testify. You have
been provided a copy of my written testimony for the record.
In my written testimony, I will address five areas: funding, communications Inter-
operability, critical infrastructure, homeland security advisory system, and Nevadas
need for a Civil Support Team.
Due to time constraints this morning, I will only formally discuss funding.
FUNDING
As you are aware, I have been critical of the Department of Homeland Securitys
funding formula for some time. As I understand it, current Homeland Security for-
mulas are based on three criteria: the 2000 Census, critical infrastructure and vul-
nerability assessments. Before I proceed, I must state, I was personally disappointed
that Las Vegas was not Included In the fiscal year 1903 Supplemental Budget
Grant given directly to 30 cities.
We can all agree, Las Vegas is a unique city in itself, but the Las Vegas Valley is
even more unique. The majority of people think the Las Vegas Strip is in Las Vegas.
Most of it is actually In the unincorporated area of Clark County. The greater Las
Vegas Valley includes the cities of Las Vegas, North Las Vegas, Boulder City, Hen-
derson and unincorporated Clark County, where most of the Las Vegas Strip and
the cities of Jean and Primm, Nevada are located.
If you merely look at the population of Las Vegas as shown in the 2000 Census,
one receives an Incorrect picture. The 1.7 million population of the Las Vegas Valley
is significantly greater than the 400,000 population of the City of Las Vegas. The
figures used by the Department of Homeland Security must not have included the
1.7 million Las Vegas Valley residents.
To receive a clear picture of our needs, one must look at the 1.7 million Las Vegas
Valley residents; then include the 40 million plus tourists.
In the vulnerability area, Las Vegas has 18 of the 20 largest hotels in the United
States, located on a 2.1 mile strip. It includes the first 11 largest hotels. Right next
to the Las Vegas strip is McCarran International Airport, which is the 7th busiest
airport in the United States.
To put it another way. Our tourist population on the Las Vegas Strip, on any given
night, exceeds the population of Ft. Lauderdale, Florida or Salt Lake City, Utah.
Now I want to talk about critical infrastructure. Without going into significant de-
tail, there are a number of critical infrastructure and key assets located In the Las
Vegas Valley. Most prominent is Hoover Dam. Hoover Dam not only supplies water
for most of the southwestern United States, It is a major source of electric power.
Why these unique factors were not considered in the Department of Homeland Secu-
ritys funding equations seems strange.
It is my understanding there is a Senate Bill, that has passed Committee, address-
ing some of these funding inequities. I am asking for your support in changing the
Department of Homeland Securitys funding formula.
Funding to protect the citizens of this great country should not be based on their
street addressbut on where they are should an incident occur.
COMMUNICATIONS INTEROPERABILITY
Should an incident occur, it is important that first responders have the ability to
talk with each other. One would want the firemen to be able to talk with a police-
man, and both to be able to talk to a first medical responder. In a perfect world,
It would be desirable for every policeman, fireman and emergency medical re-
sponder to be able to talk with each other. However, at this time, we do not live
in a perfect world. To build the system where every first responder could talk with
each other Is probably not practical and may be cost prohibitive.
Nonetheless, we must have a system where first responder leadership can commu-
nicate with one another. Where an Incident Commander has a full range of commu-
nications ability-not Just voice (radio) communications - but computer and maybe
In the future, video. An Incident Commander needs to be able to communicate with
a number of organizations. For example, the Nevada Department of Transportation,
the water company, the power company, schools, and other special response units
like the National Guard, Civil Support Teams, HAZMAT teams, or the directors of
security at our major hotels. I have not Included federal agencies like the FBI, ATE
DEA, ICE, and on and on.
With Nevadas unique needs and no perfect system readily available, we are looking
at a number of communication options. With the states current funding shortfalls,
25
it is going to be almost impossible to fund even a partial system without federal
help.
CRITICAL INFRASTRUCTURE PROTECTION
With the recent multiple power outages in the Northeastern United States, critical
infrastructure is on the forefront. Everyone knows that water, power, banking/fi-
nance, and transportation are vitally important to the United States.
Critical infrastructure, to me, is reliability and availabllity-based. To assure reli-
ability and availability, we must protect our critical infrastructure. To protect the
critical Infrastructure, a meaningful vulnerability assessment is necessarya vul-
nerability assessment based on a national standard.
Yet there is no national plan clearly defining roles and responsibilities of critical In-
frastructure protection in either the public or private sectors. There are no objec-
tives, milestones, or time frames leading to achievable performance measures.
Over 80% of our nations critical infrastructure is in the private sector, however,
they are operating in a vacuum. There is no immediate method of notification of
threat or any way to give our critical infrastructure specific, actionable Information
on a timely basis.
We ask our private entities to perform vulnerability analysis and correction using
their own resources. There must be some way to help private and semi-private enti-
ties with public funding. It could be in the form of specialty tools, training, training
aids, standardized vulnerability assessments or tax incentives.
CIVIL SUPPORT TEAMS
Nevada does not have a Civil Support Team. Nevadas Adjutant General, Major
General Giles Vanderhoof, lists the need for a Civil Support Team as his number
one unit priority. I certainly agree with the Adjutant General based on my recent
observations during DP03 where a clear need for such a team was evident.
Mr. Chairman, I know you have personally been working on this project for sev-
eral years, but I cannot emphasize any stronger how important this critical asset
is for Nevada.
HOMELAND SECURITY ADVISORY SYSTEM
The Homeland Security Advisory System is vague, difficult to explain, and lacks
public confidence. The color-code system initiated by the Department of Homeland
Security in March of 2002 has not worked well. It does not define what states, cities,
businesses or Individuals should do at a particular color code level. It clearly does
not explain what should happen when the color code changeseither up or down.
I would like to recommend several methods to improve the color code system, In-
cluding Issuing specific warnings to targeted regions or facilities. I would further
recommend that certain protective measures for specific states and cities be chan-
neled regionally If they do not affect the entire country.
Changes to the Homeland Security Advisory and Color Code System should be Initi-
ated Immediately.
Public confidence is at stake.
Thank you for allowing me the opportunity to testify today.
Mr. GIBBONS. Well turn now to questions from the committee.
And let me begin by thanking each of you once again for taking
time out of your busy day to come here before the committee and
provide us your testimony.
My question would first go to Mr. Parrish. Just on a generality,
Mr. Parrish, and knowing the fact that I was one of the architects
of the language which created the Homeland Security, the Depart-
ment of Homeland Security, what is your assessment after one and
a half years of the Departments capabilities? Where are we?
We have got a massive new organization, second largest depart-
ment in the United States Federal Government. We merged more
than 100 separate agencies together in a colossal effort to address
the issue of homeland security and issues that are pertinent to
that.
26
What is your assessment of the functionality? How is it doing

after one and a half years? Is this a toddler that is up and walking?
Is it ready to run? Is able to talk? Where are we in that?
Mr. PARRISH. Sir, its a very timely question. Yesterday morning
I was at the John F. Kennedy School of Government at Harvard
speaking to the nationalinternational security managers course,
which, as you know, has a significant audience of tremendous lead-
ership from around the Federal Government as well as inter-
national equal.
The point that I made in there to a similar question was com-
paring us to the Department of Defense, were the second largest
if you look at the Department of Defense since 1947, actually when
we demonstrate our successes in the war in Iraq in 1991, we kind
of got it right, from 1947 to 1991.
The Department of the Homeland Security is coming on up its
six months anniversary. Its pulling together those agencies and
bringing each one to the table to be able to make sure that we are
having the interoperability, as Jerry indicated, remains a process
that well continue to work on very closely and very diligently.
I think what we are finding is the success is that now the Fed-
eral Government and interagency because of our change in liaison
programs, as I said earlier in opening remarks, having people from
those agencies present is really assisting in that.
I think when we look back at some of the initiatives that our or-
ganization brought to us within the department, it continued to
build on those. I look at the Customs programs and what they are
doing on the borders to enhance the security screening there, the
outreach of the container security initiative overseas. If you look at
that, the department is engaging heavily with those organizations
to make sure that we have this defensive depth and later strategy,
if you will, of trying to bring together the best practices, the best
capabilities of all the agencies to be able to detect and prevent a
terrorist activity, detect as far out as possible to prevent any type
of activities here in the United States.
I think the area that we need to move faster on, and I have made
notes to myself on this, is hearing from State and local and the pri-
vate sector because the wealth of information out there is what we
need to hear from them and also that we need to make sure that
we are getting to them.
I think the Homeland Security advisory bulletins and informa-
tion bulletins that we have been putting out, weve been getting
good feedback from that.
An example of that, I think, is showing now that other agencies
recognize the importance of the department and what we are trying
to do and serve the American people in the private sector. Because
immediately after the attacks of Al Kot on May 11th, at that time,
I was the associate director in the Terrorist Threat Integration
Center. When I got to work that morning at six oclock and began
looking at the very sensitive national security type intelligence in-
formation that was coming out from those reports, I immediately
contacted then the assistant secretary Paul Redmond back at the
Department at Homeland Security who was the information anal-
ysis secretary, assistant secretary.
27
And I said, Paul, I said, Start working on protective measures

because we have seen some new tactics and techniques employed
by al-Qaeda in this attack. I will work the terror line with the CIA
and get this information downgraded so that we get it out in the
hands of State, local, and private sector. So talking to hotels and
industries and chemical facilities and those things.
And to the credit of the interagency process, by the end of the
day, we had out on the street a document which we have gotten
remarks that it not only quickly described what happened in Al
Kot, a breakdown of the three compounds and the tactics and tech-
niques employed by al-Qaeda, but we had protective measures that
would help the states and locals be able to prioritize what they
were looking at and trying to support the expenditures of limited
resources.
So I think that is an example of how the Federal Government
recognized the mission of the department in conveying this type of
information. So I think we are moving the ball forward. We have
got a long ways to go, but I think right now we are making great
strides in making that happen.
Mr. GIBBONS. Mr. Secretary, many people in the audience here
time and time again hear about our security warning status and
the levels of security, whether it is yellow today, orange tomorrow,
or red, and wonder how we get to each one of those.
Whether or not, we are vertically integrating the intelligence, as
you have already talked about, down to our law enforcement first
responders that allow for the average citizen out here to feel safe,
that someone knows about the information, that someone knows
about the criticality of this intelligence, that is on our local first re-
sponders list that can assess that because the average public
would never be able to say, Well, what does the orange threat
mean to me? Im going from my home out to Lake Mead, for exam-
ple, am I at risk? They will never know that.
How is that vertical integration going and what are your re-
sponses to those people who will probably come later to say that
they dont feel they are getting enough information?
I guess my final part of that long detailed question is how is the
reverse of that information flowing? Are you getting critical infor-
mation from first responders who are by far and away our best in-
telligence source? When a policeman stops an individual that is on
a suspect list, does that information go up vertically quick enough?
How is the two-way flow of that information going.
Mr. PARRISH. Sir, if I could start, kind of work backwards a little
bit, but on that last question, the flow of information coming in,
you remember Operation Liberty Shield, as this Nation began to
commence hostilities in Iraq, I was presented the great opportunity
on Friday afternoon, the 28th of February, the day before the de-
partment stood up to develop Operation Liberty Shield and bring
it to the White House by four oclock Monday afternoon. It was a
very long weekend, as you might imagine, but to the credit of the
government, we had 25 Federal agencies working diligently
throughout that weekend to develop the protective measures that
we employed in Liberty Shield to include the active support there
of the Bureau of Reclamation and the Department of Interior, and
each agency had their protective measures.
28
Once we initiated and commenced Liberty Shield, the operations

center received a report one night from a local police department
up around the oil facilities outside of Philadelphia. As you go up
the Delaware River, you see some oil facilities. They picked up two
individuals that apparently had been surveilling those oil facilities.
At the same time the Coast Guard came in with their report. We
had a foreign flag oil tanker in the Delaware River getting ready
to bring its oil. We ran the manifest on the crew. The captain of
the vessel was an Iraqi. The senior first engineer was an Iraqi, and
15 Pakistani crew members.
Was there a correlation here to what was going on? In the end,
no, but we didnt take any chances. We removed the captain of the
vessel. We brought on a Coast Guard crew to drive the vessel up
to offload that, and the another two individuals were turned over
to the JTTF in Philadelphia for further questioning.
Its that type of information flow that was coming into the oper-
ations center and exchange of information. So the eyes and ears
that are out there in the streets of America are front line defenders
are critical to get that information in.
The process of going to change the national threat level is a tre-
mendous effort, as you might imagine, because Secretary Ridge
takes great, great concern over this.
I have had the privilege and the opportunity to be with him in
the last three times that we have made that decision. What we are
trying to do right now in the homeland security advisory system is
to go back and take a look at that.
Is it practical to say that the entire country orange, when yet the
intelligence we are looking at may only be focusing on a threat to
the chemical facility or it may only be focusing in an area around
the northeast?
But we have to be very careful, though, that we dont convey
that, and then the rest of the country says, Well, drop my pack.
Its notI dont have to worry about it.
So we are trying to look really close at how we can go back and
take a look at the homeland security advisory system in that re-
gard.
I think we have to do better in working with our State and local
authorities in being able to help them understand that. As many
may think, there is this great fountain of top-secret SCI, sensitive
intelligence sitting there in Washington, and its not getting hand-
ed down.
I wish there was because I would be fighting everyday to make
sure it was getting downgraded.
But, you know, to our successes now and the people that we have
picked up, thats the good news. Now we may be not quite getting
as much of the information we had gleaned before. But I think its
important to recognize getting the system explained to the State
and locals.
An initiative that I have underthe program known as risk-net,
which is a regional information sharing system. We have a pilot
program were kicking off this month, and right now we are going
to target just nuclear power facilities. But in risk-net now, well
have the nuclear facilities be able to report to us any suspicious ac-
tivities, and were initiating this in six states.
29
I want to build on this as quickly as possible so that we can use

risk-net for this dialogue that will go back and forth between our
operations center, getting information out to the State and local.
Risk-net covers, I want to say, its about 65 State and local authori-
ties around the country. I want to be able to have a website there
so we can put up the daily homeland security intelligence summary
which will be at law enforcement sensitive or official-use only level.
And the second piece that I want to do, and you have heard talk
about Parrishs concept of the hybrid analyst. In this war we have,
we need to create an individual who is looking at the operational
environment as well as the intelligence, who understands the De-
partment of Homeland Securitys operational environment. This fu-
sion will be built around some of our subordinate agency people
that are coming in, agents, inspectors, and that type, well have
some analysts, and we will create this hybrid.
We also now are working with emergency defense preparedness.
Were reviewing a program of instruction that were going out to
State and locals on intelligence analyst training. I want to be able
to prioritize where we are going to send that, and I want to be able
to regionalize it so that we have, for example, a course that may
come out here to Nevada, and we bring in analysts from the west-
ern region. So when they graduate from this course, and Im not
sure exactly whether its going to be one week or two weeks, they
will then have a counterpart over in California or down in Arizona
and say, Have you seen this? We just pulled this guy over, and
we found in part of his documents here a hotel receipt from Ari-
zona. Do you know anything about this? And this type of informa-
tion sharing.
The next step to that is I want to bring these analysts into our
fusion cell in Washington where they would spend two weeks. They
would see then the type of information that we are getting in there,
and I think it would be a better appreciation of exactly how this
is all processed.
So I think that we are moving forward in getting that informa-
tion out as quickly as possible. That is my number one priority in
working with the sensitive intelligence that comes out and getting
it downgraded into the hands of the State and the locals as quickly
as possible. We have to get it down to those operators in the field
because they will be the ones that either going to prevent, detect
or deny terrorists from conducting an operation here in the United
States.
Mr. GIBBONS. Secretary Parrish, I have a number of other ques-
tions for you, but I know that the other members of this panel, Mr.
Shadegg, would like to also engage you in some questions, and I
dont want to take up the whole time. So Ill ask Mr. Shadegg for
questions.
Mr. SHADEGG. Thank you, Mr. Chairman.
Gentlemen, I have questions for each of you, so Im going to ask
you to be as brief as you can in your responses.
Mr. Parrish, I want to thank you for your testimony before the
committee previously and for your testimony here today. I find in
very informative and helpful. I think I expressed the last time you
testified the admiration I have for the incredible challenge we have
given the department, to try to stand up a department of this size
30
and scope and to try to get all these diverse and disparate agencies
working together in a common effort, I think, is a daunting task.
As you pointed out, you are barely six months into it, and, yet, I
think the statement you make in your testimony that the Nation
is, in fact, safer now was accurate. And I think it can be safer still.
But I have great admiration for the task that Secretary Ridge is
doing with trying to pull all this together, especially, I spent some
time in law enforcement myself, the years I was in the Attorney
Generals office dealing the disparate interests of all the law en-
forcement agencies in Arizona and trying to get them to pull to-
gether rather than be at war with each other was a significant
challenge. I cant imagine trying to do it nationwide.
I want to ask you a few specific questions directly from your ear-
lier testimony. There is a statement in your testimony that says,
Our Information Analysis Office, which is what had, has the
ability to conduct its own analysis of the security information you
get. Im very pleased to hear that. As you know, the statute re-
quires you to be able to do that.
Can you give me here today an idea of how many people are en-
gaged in that task at this time and whether there is yet room to
grow in that area?
Mr. PARRISH. Yes, sir. We are still somewheres right around
about the 55 people. Again, thats analysts as well as the liaison
from the other agencies. We are looking to grow. As you know, we
are moving into a larger facility. The time line on that may be slip-
ping a little bit, but we are pushing very quickly to do that because
once we do, well be able to bring in the other individuals.
When you look across the Department of Homeland Security and
at the other intelligence organizations that exist, there are a num-
ber of analysts in there. It could be in excess of 800 across the
other departments. We are going now to look at that and making
sure we dont have duplication of effort. In fact, maybe some of
those analysts may need to be migrated into the Information Anal-
ysis Office, which will increase our capabilities.
Mr. SHADEGG. I guess the second question, and the only other
one I have for you this morning, and that is in your prepared state-
ment says, We share more information with people who need it in-
cluding our State and local partners. Could you briefly summarize
for the committee precisely how you share that information with
State and local officials?
And Ill warn you in advance, Im going to ask Mr. Bussell how
he sees that working.
Mr. PARRISH. Right now what were pushing out is the informa-
tion bulletins and the advisory bulletins. We coordinate with the
FBI when they put out their weekly intel summaries, that goes out
every Wednesday, and also when they put out an advisory through
the NLETS system.
The success, I think, on the advisory bulletins and information
has been being able to engage members of the intelligence commu-
nity and getting a tear line. A tear line, as you know, is getting
a sensitive or highly classified piece of intelligence tear line that
will make it unclassified or at the secret level.
Sometimes I have been only able to get it to the secret level. But
we do have now within our states the Homeland Security advisors
31
having that classification and being able to get that piece of intel-
ligence.
And then, of course, on the official-use only, we do that. Suicide
bomber vests, again, Marines over took that one facility in Bagdad.
Photographs I saw of the suicide leather vests, and these types of
things, I went to DIA immediately. That afternoon we had photo-
graphs made, and we put out an advisory so that every State and
local would be to see exactly if they pulled somebody over and
opened the trunk and found these, they would know exactly what
theyre looking at.
I want to be able to do better than that. I want electronically
I want a web page so that they can each day pull up.
The other piece of that is the best practices. Lets learn how some
of the great American State and locals are out there effecting their
jobs, conducting their jobs, and paste that on this web page. This
is how it was done in Arizona, this was how it was done in Nevada,
and let other states learn from that.
Mr. SHADEGG. Mr. Bussell, its your chance to say whats working
and what could be improved.
Colonel BUSSELL. Mr. Chairman and Congressman Shadegg,
thank you very much.
Let me start out by saying that this individual homeland security
advisor organization, Homeland Security directors are different in
every State. Saying that, Im a homeland security advisor with one
person. However, I have the same responsibilities maybe a larger
State would have a number of people.
The intelligence information that is coming down is in its very
embryotic stages. There is no question about that. Mr. Secretary,
its clearly on the right steps. I can say with absolute confidence
if we needed to know something, some actionable, absolutely cer-
tain intelligence, there would be no question in my mind that I
have would it immediately, and I could go straight to the Governor.
However, we do need to take some real looks at how we are han-
dling this. As an example, if you send something down and it just
comes through normal routine procedures, I may or may not be
able to get that. Where I get most of my intelligence is from the
folks in the back of this room every single day. They have a spot
report that comes up from Clark County, comes up from the JTTF
down here, from Washoe County, and it goes in.
Ill be very candid with the group, the committee. I look there
first now. Now, leading to that if something is really happening, we
can talk. And I have been very critical of the current system. The
Homeland Security advisory system, I have been vocal, very vocal.
And as Mr. Secretary said, we are changing it. I have been vocal
about the intelligence system. I hope that answers your question,
sir.
Mr. SHADEGG. Yes, it does. It helps give us some information on
how its flowing at this earlier stage.
Mr. Todd, let me conclude the questioning with you. I read your
written statement and was impressed at the steps that the Bureau
of Reclamation has taken to try to upgrade its security and its
analysis of its exposure in the time since 911.
But I did not read in there anything that suggested to me that
you have done an analysis of kind of a worst case scenario. As a
32
Westerner and native of Arizona, it randomly goes through my

mind exactly what would happen if you successfully blew up Hoo-
ver Dam? Exactly what would happen if you successfully brought
down Glen Canyon Dam?
And I guess my question of you is in addition to assessing how
vulnerable your facilities are, have you yet contemplated to per-
form an analysis of kind of a What if scenario if, in fact, your se-
curity measures fail, and one of those facilities was breached?
Mr. TODD. The answer is yes, we have, Congressman. Theres
two ways that we have looked at this.
The first way is that we have a very high expert safety dam pro-
gram where we understand what the extent of these dams will do,
and that consequence analysis goes right into our vulnerability
analysis that we have completed for each of these dams.
And so with the consequences on the one hand, the threats that
we know about on the other, and then the potential in the middle,
we look at that with the analysis of the assessment. From that, we
make decisions about how far to go with instituting and imple-
menting the security measures.
For instance, on Glen Canyon and on Hoover, we had Defense
Threat Reduction Agency do the assessment. We looked at that in-
formation and then looked at our dam safety consequences infor-
mation and made sure those were talking to each other before we
made the decision.
Mr. SHADEGG. And all of that information has been made avail-
able to the private contractors who have also looked at your secu-
rity measures?
Mr. TODD. Im.
Mr. SHADEGG. There was some reference to private contractors
that have looked at it, and, also, I think, the National Laboratories
at Sandia?
Mr. TODD. The Sandia has done a couple of different things. The
private contractors we had looked at a number of sites. The De-
fense Threat Reduction Agency looked at national critical struc-
tures. We had 50 other sites that prior contractors looked at. All
of those went through a security advisory team meeting to really
look at the consequences and how we would put in our security
measures. On that panel sat a Sandia member. As well as Sandia
also looked at top-down review for our overall umbrella security
program. So there were two top-down focuses that were provided
us.
Mr. SHADEGG. Mr. Chairman, Im well over the five minutes. I
appreciate your indulgence.
Mr. GIBBONS. Well, I think simply because theres just the two
of us here that we can engage in extended question and answer
without offending anybody else.
Mr. SHADEGG. Unfortunately, I have obligations, and so Im going
to have to conclude at this point. So Ill leave it to you.
Mr. GIBBONS. Mr. Shadegg, thank you.
Mr. SHADEGG. So you can ask questions.
Mr. GIBBONS. Thank you for your presence and thanks for your
time here.
Let me continue with this. And I want to go back to Mr. Bussell
and ask him a question about the State of Nevada. We have heard
33
criticisms sometimes in the media that the Federal Government is

not giving any Homeland Security dollars to the State of Nevada.
What is your comment with regard to being on the receiving end
of those dollars if you are not getting any and how many dollars
or how much money has been sent to the State of Nevada in the
course of time for homeland security problems?
Colonel BUSSELL. Thank you, Mr. Chairman. That is a very in-
teresting question, and sometimes one wonders where does the
money come from. So the money Ill be talking about this morning
it is in two breaks. Its at the fiscal year 2003 phase I.
Mr. GIBBONS. Thats fiscal year 1903 for these people who dont
know what fiscal year 2003 means.
Colonel BUSSELL. Yes, sir. It was $6.77 million that arrived in
Nevada April of 2003. And for record, I will be putting these notes
later on, Mr. Chairman. That was $6.7 million followed in July by
$17.9 million for a total for 27, almostIm sorry25, almost $25
million. Nevada received that and in the process of passing it on
down and basically the 80/20, with 80 down to the first responders.
Mr. Frank Circusa, the director of the Department of Emergency
Management is the administrative agent and actually handles the
operational part of disbursing the money through a homeland secu-
rity committee that is in the process of being changed. It will be
based on recent State legislature Assembly Bill 441. Were in the
process of forming a homeland security commission, and certainly
that will be a top priority.
But back to your question, sir. We have received that money. It
is here, and were in the process of getting it out to the first re-
sponders.
Mr. GIBBONS. So just this year alone, youve gotten nearly $25
million into the State of Nevada for the homeland security efforts.
How is that money apportioned between cities, counties, and
states? You said it was 80/20, but 80 percent going to first respond-
ers.
Colonel BUSSELL. Yes, sir. 80 percent going out through an inter-
esting system. We use the LEPC system in the State of Nevada.
It was in place way before I came on the station. LEPC is an local
emergency planning committee. The group gets together, and then
there are 17 LEPCs because theres 17 counties in the State of Ne-
vada. They get together and decide what their priorities are. The
LEPC arranges their horizontal priorities into a vertical priority.
They come to the Homeland Security Committee subcommittee,
present their priorities by LEPC, by county. That is then taken
into a vertical and presented to the Homeland Security Committee
for final review, and its passed out in that process.
Mr. GIBBONS. Mr. Todd, let me you ask when you talk about 24/
7 security at a lot of our dams and other infrastructures that youre
responsible for, you indicated in your testimony that both Depart-
ment ofBureau of Reclamation and State security, how is that
breakdown cost arrived at?
Mr. TODD. Well, many of our dams, we have our own security
guards contracted for, and, specifically, at Hoover we have a police
department. We also contract for armed guards.
We have also contracted with the local sheriff department, and
sometimes local PDs, and certainly we contracted with the Na-
34
tional Park Service for rangers to watch our dams. After 911, we
certainly did that for quite a while.
Mr. GIBBONS. To summarize, if you have a responsibility and you
have contracted it out to either the State, the county, or locality
metropolitan police, you pay them to do the security on your facili-
ties?
Mr. TODD. Thats correct if we have a contract, thats correct.
Mr. GIBBONS. And includes the State if it were the National
Guard?
Mr. TODD. We dont go with the National Guard. Theres ome au-
thorities that prohibit Federal funding of the National Guard in
that kind of situation. But we do certainly with the State patrols,
and we have that on a number of sites.
Mr. GIBBONS. Okay. There is a number of other questions. Mr.
Parrish, Secretary Parrish, there are those of us in Nevada who are
very, very concerned with the Yucca Mountain. There is no doubt
about it. To those of us here, its not something that we look for-
ward at all.
And my question would be with our concernsand I, for one, as
a scientist, have concerns just about the structures that there are
for the security of the material incitsu, let alone any kind of an act
that might jeopardize that.
My greater concern is that of the transportation of the material
from nuclear power plants across this country to Yucca Mountain.
I know of no studies that have been done to look at either the
structuralinfrastructure risks that are there.
How do you assure communities, states across this country that
that material coming through there is not going to be the subject
of a terrorist attack with devastating consequences?
Mr. PARRISH. Sir, the Department of Energy, and I really cant
speak for them, but I think they have a program, as you know, in
the movement of special assets, but I think maybe a blueprint for
what we need to build upon in this process as we look as the move-
ment of these type of hazardous materials and waste that are
moved across the United States. Energy will have the lead in this
area, but, again, working very closely with the Department of
Homeland Security, Transportation Security Administration, the
Nuclear Regulatory Commission as well as the Department of
Transportation.
Our infrastructure protection director is heavily involved with
these other agencies in assessing this. I think you raised a good
point about the study that has been looked at, and I will go back
and try to see if we have either something in progress or, if not,
an area that we probably should move to.
But each of agencies in varying degrees have a certain responsi-
bility. And, again, as Department of Homeland Security is now up
and running, we would certainly have a major role in making sure
that event of the coordination is being done with most of these
agencies when we start talking about moving any significant
amounts of hazardous materials, such as nuclear waste across the
country.
So I have the specifics, and perhaps when Im back in Wash-
ington, I can sit down with you and we can get a little bit more
detail. But at this point in time, based on my phone calls and talk-
35
ing to our infrastructure protection director, they are engaged with

the Department of Energy at this time. Under Secretary Laguti
and I, in fact, we meet with the National Regulatory commission,
I believe it is, next week, and one of these will be the topic of dis-
cussion.
Mr. GIBBONS. Let me say that your department will be well into
which all of this intelligence information is poured. You will have
the responsibility to ferret it out, digest, and analyze potential risk
and threats that would be made to that. I see that as an over-
whelming problem because of the vulnerability. We have already
talked about porousness of our borders, the porousness of infra-
structures, rail systems, highway systems, bridges, rivers for this
material isI mean its incalculable how large that problem could
be for you. Im very concerned about it. I look forward to talking
to you further to get your information.
Mr. Todd, let me ask you one final question as well with regards
to water supplies, HooverLake Mead provides an enormous quan-
tity of water, a reservoir, but its always a reservoir from which
communities are served water, especially the Las Vegas community
and Clark County, and community downstream from Lake Mead.
What steps have you taken or the Bureau of Reclamation taken
to assure that these critical water sources are safe for our commu-
nities with regard to some type of chemical or biological agent that
might be used to contaminate those waters?
Mr. TODD. Well, early on, we put out some memos and guidance
to field staff on being watchful and understanding what the chem-
ical biological kind of attacks may be. We have more to do in that
area, but certainly we have the guidance there for the field people
to really be aware of what may happen.
Mr. GIBBONS. Are you coordinating those investigations with
other agencies to share that information, say, for example, with
Homeland Security who might know of information that could re-
late to that?
Mr. TODD. Yes, we are. We have a lot of coordination with Home-
land Security at the Washington level and then also our local of-
fices are coordinating with the local first responders and so forth.
We have a program where we do environmentalnot environ-
mentalemergency preparedness work. We do table top function
exercises and so forth. Those exercises many times include that
kind of work where we may have a truck affecting the carrying of
the chemical that is affecting the reservoir, and so how would we
deal with that on an emergency basis.
So those exercises are ongoing continually, and we work right
along with first responders on those kinds of things.
Mr. GIBBONS. Knowing the size of Las Vegas, I cannot imagine
being able to just turn the tap off if there were a problem with the
water supply out here at Lake Mead. And its something Im sure
that the community here is very concerned about, and I would look
forward to spending time with you to discuss the issue further to
make sure that we have reached a satisfactory answer to the ques-
tion about the security of that water system for Las Vegas.
Mr. TODD. Id be happy to.
Mr. GIBBONS. Gentlemen, we have to go to the second panel here.
We have taken a great deal of your time, and the committee is
36
grateful for your presence and your testimony. We would like to ex-
cuse the panel with thanks from me personally and from the com-
mittee.
We will take a 5-minute break, and when we come back, we will
call up our second panel for the committee.
Gentlemen, thank you very much. Well take a 5-minute break.
[Brief recess.]
Mr. GIBBONS. The Subcommittee on Intelligence and
Counterterrorism will come back to order.
At this point in time, we would like to call our second panel, and
that will include Mr. David Shepherd, head of security at the Vene-
tian Resort; Mr. Randy Walker, aviation director of Clark County
Department of Aviation; Dr. Dale Carrisonam I pronouncing your
name correctly, Doctor?
Dr. CARRISON. Yes.
Mr. GIBBONS. Emergency Department Medical Director, UMC
Trauma Center; and Deputy Chief Bill Conger, Las Vegas Metro-
politan Police Department.
Gentlemen, we want to welcome you here. Just as you heard
from the previous witnesses, we try to limit our opening remarks
to 5 minutes, but we will include your complete and full and writ-
ten testimony for the record.
And simply because Im the only person here doesnt mean that
it isnt important what you say because all of these hearings are
recorded. We have a process whereby the record will reflect what
you say and it will be reviewed after this subcommittee returns to
Washington, D.C.
With that in mind, Ill just proceed from left to right, my left, my
right, or your left, or your right to your left, whichever, but Ill
start with Mr. Shepherd, head of security for the Venetian Resort,
for your opening remarks.
Mr. GIBBONS. Mr. Shepherd, welcome. Were happy to have you
before the committee.
STATEMENT OF MR. DAVID SHEPHERD, HEAD OF SECURITY,

VENTIAN RESORT
Mr. SHEPHERD. Good morning.
Mr. GIBBONS. And you have to push the red button so that you
can be heard.
Mr. SHEPHERD. Good morning. I would like to thank Congress-
man Jim Gibbons for the opportunity to speak before this pres-
tigious panel assembled today. It is truly an honor and pleasure to
be here.
I am a blend of both the private and public sectors. I retired from
the FBI after 24 years of service in 1999 and began my career in
the private sector immediately thereafter. As a supervisory special
agent with the FBI, I participated in counterterrorism matters with
SWAT, Team Leader, and as the Coordinator for this program.
For nearly 16 years, I dealt with terrorism matters at the Ne-
vada Test Site, Tonopah Missile Range and Hoover Dam. I trained
with Delta Force, Army Rangers, Special Forces and Navy Seals,
and, of course, the security forces from each of these special sites.
I further participated in intelligence gathering, with the Office of
37
Threat Assessment, U.S. Department of Energy and participated in

numerous nuclear exercises through the United States.
In the private sector, I am the Executive Director of Security for
the Venetian Resort Hotel Casino in Las Vegas. The Venetian is
the third largest hotel in the world with over 7 million square feet
of space, 4,049 suites, and has an average daily visitor rate of
80,000 guests per day, which is four times the average American
city.
I have attempted to extract from both sectors the best of each
world in the protection of the property. The tourist/entertainment/
gaming industry presents its own challenges, because if I create an
airport style of visible protection and security precautions, the
guests will go across the street to another property. If the city re-
ceives too many threats, the guests will stay at home.
Security in the customer service industry is a delicate balance
and froth with challenges at every turn. Most people sitting here
today have no idea what it takes to operate a security department
in todays marketplace. I would like to shed some light on our chal-
lenges and outline some of the great lengths security must envision
to ensure the safety of our guests and property.
As the security director, I must be concerned with civil liability
issues, criminal activities, and terrorism, plus the threat of SARS
or other diseases that our world travelers might bring to the prop-
erty.
During the height of the worldwide SARS scare, the Venetian
hosted the JCK Jewelry Show, a show where over 35,000 conven-
tioneers participated, over 1,500 exhibit booths displaying jewelry
products throughout the property. Included in the booths, 1,500
booths, were 110 booths from China and 40 booths from Canada.
The Venetian maintained contact with the CDC and Clark Coun-
ty Health District concerning possible courses of action to take in
the event that one of our conventioneers displayed signs of SARS.
Fortunately, no cases were reported, but we planned for the worst,
just as we are required to do for each key security issue.
The security directors of today face greater challenges than ever
before, and we must be forward-thinking each and every day, be-
cause our greatest concern is the safety of our guests, first and
foremost.
Todays directors cannot rely on successes of the past or the tools
and equipment of the past or the training used in the past. Tech-
nical advances coupled with a trained, alert staff can speak vol-
umes, when the lives of thousands rest in their hands.
If you havent prepared or anticipated each threat, the fear of
failure and disaster are the end results. The repercussions of a
failed security defense can have lingering effects for years to come.
We do plan and must plan for every contingency to ensure the safe-
ty of our guests and team members.
The security directors of today must anticipate the source of each
threat or situation and then establish policies and procedures to
meet the threat head on under the principles of Total Prevention
and/or Damage Limitation. In Total Prevention, the department
must stop every conceivable plan of attack. Not one attack or plan
can be successful. Each attempt must be crushed without the
slightest bit of damage or loss of life.
38
In Damage Limitation, the department must limit the loss of

life and the spread of further damage. Each minute that we fail to
act could have deadly effects on those caught in harms way.
Many of the thousands of survivors in the World Trade Center
and the Pentagon owe their lives to the foresight and training of
those dedicated security and safety professionals who anticipated
the threat. The casino security directors in Las Vegas have planned
and are working together to anticipate each threat.
In Vietnam, we did what is called, looking at both sides of the
wire. We look at the property from the angle of protection and
from the angle of penetration. What holes do they see in our de-
fenses? How would they approach the property? Can we turn a
weak point into a strength?
A good friend of mine once said, Being forewarned is being
forearmed. If we know what they can do and have done, then we
can plan accordingly.
A security plan begins with research. Each day I review intel-
ligence reports from around the world, but not just from one
source. Several sources, documents and agencies are contacted be-
fore I start my day. I want to know what happened in the world
yesterday and today. I want to know what the latest trick or tactic
they tried. I want to listen to minutest shred of data or perceived
concept, then say, What if they tried the same thing here?
Under the same concept, at the Nevada Test Site, we did what
is called, What ifs. What if the enemy did this or did that? Are
we prepared to defeat, defend, and neutralize the aggressors? That
is how we plan. Not for just one key event, but multi-events,
threats and attacks.
As an example of our foresight, the Venetian has analyzed the
threats and implemented 84 changes to the property to ensure the
safety of our guests and team members, just during the first year
following September 11th. That number has now toppled over 100
improvements or modifications to our security measures.
Recently in Indonesia, a taxi, dropping off a guest in the porte
chere of a hotel, exploded, killing 13 people and wounding over 100.
We modified our procedures in accepting taxis on property. We in-
novate, adapt and overcome any threat that is presented to us.
In SWAT we stated, We are only as strong as our weakest link.
How do you ensure the preventive measures and concepts are firm-
ly entrenched into your property on every level? Training. Training
for what? Training for everything.
In security we dont need to know the political motivation or the
reason why the person is doing such a horrific act. We need to
know the physical actions and their tactics. In football, no team
goes straight to the Super Bowl without first practicing, creating
defensive and offensive plays, and scouting out the other team. In
security we must do the same. We establish plans, obtain intel-
ligence, implement the preventive measures and train.
After September 11th, I received more calls than Allied Van
Lines has movers. Every suspicious person or situation was re-
ported. People broke the mold. They didnt say, Thats not my job,
or I dont want to get involved. They became part of the security
department. The size of my department isnt the number of officers
39
I have on my staff, but it should be everyone that walks in that

property.
We cannot afford to become complacent as the al-Qaeda training
manual has indicated. We continuously train our front line staff to
be vigilant and recognize suspicious persons or situations.
Ask your staff this one question, Do you feel safe? If they dont
feel safe, then the directive of each security director and corporate
officer is to reverse this sense of insecurity without question.
In conclusion, Mel Gibson played Benjamin Martin in the movie,
The Patriot. He said, This war will not be fought, not on the
frontier, not on some distant battlefield, but amongst us, among
our homes. Our children will learn of it with their own eyes.
Isnt that what happened on September 11th?
In the field of casino security, the casino chiefs association has
brought together security chiefs to develop training programs,
opened lines of communication between multiple agencies and
raised the level of security in Las Vegas. We cannot afford to be-
come complacent as the al-Qaeda training manual has indicated
just because nothing has happened in the United States since Sep-
tember 11th and the terrorist acts have occurred in foreign lands.
We are working together daily to ensure the safety of our guests
and employees, but not on just one property. All casinos are part
of the protection equation. They will never take away our freedom
or our way of life.
Thank you.
[The statement of Mr. Shepherd follows:]
PREPARED STATEMENT OF MR. DAVID SHEPHERD
Good morning. I would like,thank Congressman Jim Gibbons for the opportunity to
speak before this prestigious panel assembled today. It is truly an honor and privi-
lege to be here today.
I am a blend of both the private and public sectors. I retired from the FBI after
twenty-four years of serve in 1999 and began my career in the private sector imme-
diately thereafter. As a supervisory special agent with the Federal Bureau of Inves-
tigation I participated in counter terrorism matters as the SWAT Team Leader and
as the Coordinator for this program. For nearly sixteen years I dealt with terrorism
matters at the Nevada Test Site, Tonopah Missile Range and Hoover Dam. I train-
ing with Delta Force, Army Range, Special Forces and Navy Seals, and of course
the security forces from each of these special sites. I further participated in intel-
ligence gathering, with the Office of Threat Assessment, US Department of Energy
and participated in numerous nuclear exercises throughout the United States.
In the private sector, I am the Executive Director of Security for the Venetian Re-
sort Hotel Casino, Las Vegas, Nevada. The Venetian is the third largest hotel in
the world with over 7 million square feet of space, 4049 suites, and has an average
daily visitor rate of 80,000 guests per day, which is four times the average American
city.
I have attempted to extract from both sectors the best of each world in the protec-
tion of the property. The tourist/entertainment/gaming industry presents its own
challenges, because if I create an airport style of visible protection and security pre-
cautions, the guests will go across the street to another property. If the city receives
too many threats, the guests will stay at home. Security in the customer service in-
dustry is a delicate balance and froth with challenges at every turn. Most people
sitting here today have no idea what it takes to operate a security department in
todays marketplace. I would like to shed some light on our challenges and outline
some of the great lengths security must envision to ensure the safety of our guests
and property.
As the security director I must be concerned with civil liability issues, criminal ac-
tivities and terrorism, plus the threat of SARS or other diseases that our world trav-
elers might bring to the property. During the height of the worldwide SARS scare,
the Venetian hosed the JCK Jewelry Show. A show in which over 35,000 conven-
40
tioneers participated. Over 1500 exhibit booths displayed jewelry products through-
out the property. Included in the exhibit booth total were 110 booths from China
and 40 booths from Canada. The Venetian maintained contact with the Center for
Disease Control and the Clark County Health District concerning the possible
courses of action to take in the event that one of our conventioneers displayed signs
of the SARS virus. Fortunately, no cases were reported, but we planned for the
worst, just as we are required to do for each key security issue.
The security directors of today face greater challenges than ever before and we must
be forward thinking each and every day, because our greatest concern is the safety
of our guests, first and foremost. Todays directors cannot rely on the successes of
the past or the tools and equipment of the past or the training used in the past.
Technical advances coupled with a trained alert staff can speak volumes, when the
lives of thousands rest in their hands. If you havent prepared or anticipated each
threat, the fear of failure and disaster are the end results. The repercussions of a
failed security defense can have lingering effects for years to come. We do plan and
must plan for every contingency to ensure the safety of our guests and team mem-
bers.
The security directors of today must anticipate the source of each threat or situation
and then establish policies and procedures to meet the threat head on under the
principles of Total Prevention and/or Damage Limitation. In Total Prevention
the department must stop every conceivable plan of attack. Not one attack or plan
can be successful. Each attempt must be crushed without the slightest bit of damage
or loss of life. In Damage Limitation the department must limit the loss of life
and the spread of further damage. Each minute that we fail to act could have deadly
effects on those caught in harms way. Many of the thousands of survivors in both
the World Trade Center and the Pentagon owe their lives to the foresight and train-
ing of those dedicated security and safety professionals who anticipated the threat.
The casino security directors in Las Vegas have planned and are working together
to anticipate each threat.
In Vietnam we did what is called, looking at both sides of the wire. We look at
the property from the angle of protection and from the angles of penetration. What
holes do they see in our defenses How would they approach the property? Can we
turn a weak point into a strength? A good friend of mine once said, Being fore-
warned is being forearmed. If we know what they can do and have done, then we
can plan accordingly. A security plan begins with research. Each day I will review
intelligence reports from around the world, but not just from one source. Several
sources, documents and agencies are contacted before I start my day. I want to
know what happened in the world yesterday and today. I want to know what the
latest trick or tactic they tried. I want to listen to the minutest shred of data or
perceived concept, then say, What if they tried the same thing here. Under the
same concept, at the Nevada Test Site we did what is called, What iPs. What if
the enemy did this or did that. Are we prepared to defeat, defend and neutralize
the aggressors? That is how we plan. Not for just one key event, but multi-events,
threats and attacks.
As an example of our foresight, the Venetian has analyzed the threats and imple-
mented eighty-four changes to the property to ensure the safety of our guests and
team members, just during the first year following September 11th. That number
has now toppled over one-hundred improvements or modifications to our security
measures. Recently in Indonesia a taxi dropping off a guest in the porte cochere of
a hotel, exploded killing 13 people and wounding over 100. We modified our proce-
dures in accepting taxis on property. We will innovate, adapt and overcome any
threat that is presented to us.
In SWAT we stated, You are only as strong as your weakest link. How do you en-
sure the preventive measures and concepts are firmly entrenched into your prop-
erty, on every level? Training. Training for what? Training for everything. In secu-
rity we dont need to know the political motivation or the reason why the person
is doing such a horrific act, we need to know the physical actions and their tactics.
In football no team goes straight to the Super Bowl without first practicing, creating
defensive and offensive plays, and scouting out the other team. In security we must
do the same. We establish plans, obtain intelligence, implement the preventive
measures and train.
After September 11th I received more calls than Allied Van Lines has movers. Every
suspicious person or situation was reported. People broke the mold. They didnt say,
Thats not my job or I dont want to get involved. They became part of the secu-
rity department. The size of my department isnt the number of officers I have on
my staff, but it should be everyone that enters the property. We cannot afford to
41
become complacent as the Al Qaeda training manual has indicated. We continuously
train our front line staff to be vigilant and recognize suspicious persons or situa-
tions. Ask your staff this one question, Do you feel safe? If they dont feel safe,
then the directive of each security director and corporate officer is to reverse this
sense of insecurity without question.
In conclusion, Mel Gibson played Benjamin Martin in the movie, The Patriot, he
stated, This war will not be fought, not on the frontier, not on some distant battle-
field, but amongst us. Among our homes. Our children will learn of it with their
own eyes. Isnt that what happened on September 11th? In field of casino security
the casino chiefs association has brought together the security chiefs to develop
training programs, opened lines of communication between multiple agencies and
raised the level of security in Las V egas. We cannot afford to become complacent
as the Al Qaeda training manual has indicated just because nothing has happened
on United States soil since September 11th and the terrorist acts have occurred in
foreign lands. We are working together daily to ensure the safety of our guests and
employees, but not on just one property. All casino properties are part of the protec-
tion equation. They will never take away our freedom or our way of life.
Mr. GIBBONS. Thank you very much, Mr. Shepherd. Your testi-
mony was excellent as we anticipated. And it reminded me of some-
thing that I wanted to do at the beginning of this second panel, if
I may take a moment of just personal privilege.
I want to recognize and thank all the members out here in the
audience who belong to our first responders, whether theyre fire,
police, Metro, Highway Patrol, you did a wonderful job just 48
hours ago responding to the floods that were here in Las Vegas.
The footage that we watched on the television were just heroic of
your efforts.
So on behalf of, not just Congress, but myself and I think a lot
of Nevadans, we all want to say thank you to you personally for
the efforts that youve done.
This is part of our Homeland Security. You are a big part of it,
and we want you to know that we appreciate your efforts.
Mr. GIBBONS. With that being said, let me now turn to Mr.
Randy Walker for your opening statements. Mr. Walker, welcome,
and the floor is yours.
STATEMENT OF MR. RANDY WALKER, DIRECTOR, CLARK

COUNTY DEPARTMENT OF AVIATION
Mr. WALKER. Thank you, Mr. Chairman. On behalf of Clark
County and the Clark County Department of Aviation, I thank you
for this invitation to address the security needs of Las Vegas
McCarran International Airport.
On September 11th, 2001, almost two years ago, the aviation in-
dustry suffered a devastating blow, as we all know. As airplanes
were forced down onto airfields around the Nation and all air trav-
el was suspended for days, the problems facing our industry
changed in an instant.
You may recall that prior to 911, we were faced with unprece-
dented passenger traffic, which created significant strains on the
Nations aviation infrastructure. Before 911, our focus was on
more runways, airspace efficiency enhancements and a passengers
bill of rights.
Almost overnight, our concerns shifted to the survival of the Na-
tions airlines and the major security enhancements necessary to
assure the traveling public it was safe to fly again. We applaud
Congress for responding in record time by enacting Federal legisla-
42
tion which imposed sweeping security obligations and requirements

on all airports and airlines.
A new Federal agency, the Transportation Security Administra-
tion (or TSA), was created, and a new Federal security screening
workforce began to assume the security related responsibilities pre-
viously borne by the airlines.
The Aviation and Transportation Security Act required the TSA
to install Explosive Detection Systems (EDS) at 429 commercial
airports to screen all checked baggage by December 31, 2002. In
addition, TSA and its industry partners were given deadlines for
enhanced screening of passengers, checked luggage, and cargo ship-
ments.
In retrospect, we all knew it would be difficult, if not impossible,
for TSA to meet this deadline at 100 percent of the Nations com-
mercial airports. According to the Department of Transportation
Inspector General, as of July 6, 2002, a little over a year ago, six
months before the screening deadline, there were only 215 EDS
machines and 273 Explosive Trace Detection machines in use at 59
airports.
Consequently, TSA would have had to purchase and install 1,000
EDS machines and 5,600 EDT machines at airports in just five
months, approximately one machine every 37 minutes between
July and December 31st to fulfill the 100 percent explosive detec-
tion mandate.
Even if manufacturers could produce that many machines, TSA
would have been required to hire and train enough baggage screen-
ers to operate the EDS and ETD machines. TSA would have need-
ed to recruit, hire, and train approximately 21,600 screeners to op-
erate these machines.
Again, according to the DOT Inspector General, by July of last
year, the TSA had hired and trained only 215 baggage screeners.
Consequently, the agency was given the impossible task to recruit,
hire and properly train approximately 21,400 screeners over five
months, approximately one screener every four minutes.
With encouragement from the airports, including McCarran
International Airport, Congress responded by providing the TSA
needed flexibility to meet the statutory deadlines imposed, particu-
larly at unique airports like McCarran.
These requirements have posed a significant burden on airports
everywhere; however, I dare say, with the exception of New York
and Washington, D.C., no one has felt the adverse impact more
than we have Las Vegas and at McCarran.
From a high of 3.4 million passengers in the month of August
2001, passenger traffic at McCarran fell 37 percent almost over-
night. Our hotel occupancy plummeted during the fall of 2002 as
cancellations reflected the somber and apprehensive mood of the
Nation. This, combined with the fear of flying, kept many of our
tourists away from Las Vegas. Thousands of hotel workers lost
jobs. At McCarran, most of the planned capacity expansion projects
were shelved and our focus shifted immediately to meeting the en-
hanced security requirements imposed by the Federal law.
Interesting enough, air traffic to Las Vegas was really the first
to begin to recover in the Nation. By Christmas of 2001, we began
to see a return of some of the lost passenger volume. While our
43
numbers during 2002 failed to match our record highs of the pre-
vious year, they grew gradually from the post 911 traffic levels,
while traffic at most other airports continued to decline or at best
remained flat.
However, with the return of our passengers came a host of new
challenges. Long lines and extensive delays sprung up at the secu-
rity points in the airport as a result of the required enhanced pas-
senger processing and security screening. This problem was exacer-
bated by the layoffs of airline employees by many of the carriers
serving McCarran as they struggled to survive financially.
I am sure I do not need to remind you, Mr. Chairman, of the end-
less lines that stretched out the doors and onto McCarrans road-
ways, because I know you experienced them personally, and I know
you stood in the lines as well, or the hour it took to pass through
the security checkpoints.
Immediately this highlighted another security threat that I dont
think people have thought about. Such long lines give terrorists an
alternative and attractive target, thereby creating an unacceptable
increased security risk at airports.
In addition to the security risks, we feared that tourists whose
travel is discretionary would choose to avoid screening delays and
business travelers might not choose to endure the hassle of trav-
eling to Las Vegas if the delay problems were not rapidly solved.
McCarran is unique among the Nations airports when you con-
sider that we handle approximately 36 million passengers who use
our airport each year; 82 percent of McCarrans passengers are
tourists or conventioneers who are vital to the continued economic
well being of Southern Nevada.
Las Vegas is the second leading airport in the Nation for origina-
tion and destination passengers. This means that we handle more
passengers through the security screening than any other airport
in the world except for Los Angeles. Las Vegas handles an average
of 50,000 departing passengers per day. These passengers bring
with them approximately 60,000 bags per day that need to be
checked, which means we must screen more luggage than most of
the Nations larger airports.
On our weekly peak days of Thursday or Sunday, when tourists
coming and from leaving Las Vegas, we screen over 65,000 pas-
sengers.
Like most airports, Las Vegas McCarran was not designed with
adequate space in the ticket lobby or bag makeup rooms for the in-
stallation of large numbers of screening machines, which are now
required by the TSA. Shoehorning such equipment into the existing
space just to meet an arbitrary deadline would have led to ineffi-
ciencies, delays, and economic burdens and even security-related
problems, with masses of people cramped into a small area.
McCarrans analysis has shown that under one development sce-
nario, proposed by the TSA early in 2002, passengers checking bag-
gage would have waited up to four hours in line to check their
bags. Clearly unacceptable from a security and from customer serv-
ice standpoint.
Giving TSA more flexibility to work with a few selected airports
like McCarran on how to efficiently install in-line ESD and ETD
luggage screening machines helped prevent further economic dis-
44
ruption to the airline industry and tourism following 911 and also
allowed us to meet the security goals that Congress had estab-
lished for airports.
McCarran has moved aggressively and was one of the first air-
ports in the Nation to be given approval to commence construction
of the In-line baggage screening system at our main terminal. This
in-line system will change the passenger ticket counter experience
to almost a pre-911 experience for the customer.
Luggage checked at the ticket counter will be directed to the TSA
through a complex system of conveyor belts and screening ma-
chines. TSA employees will screen each bag for dangerous mate-
rials before the bag is returned to an airline for processing. This
system will cost approximately $125 million dollars to install and
is scheduled to be operational by December 31, 2004. In fact, the
first two notes of this six-note system are under construction as we
speak.
Recently, we faced an additional challenge when the TSA an-
nounced plans to reduce the number of passenger screeners as-
signed to our airport. Upon our investigation of the methodology
used by TSA to make personnel and equipment allocations among
the Nations airports, we found several major flaws:
TSAs staffing formula was not based on the number of pas-
sengers that require security screening, but rather upon the num-
ber of checkpoint screening lanes that an airport may have.
TSA screeners were assigned to match the number of screening
lanes at an airport regardless of the need. If an airport had more
physical space for lanes, they would get more staff regardless of the
number of passengers using those lanes.
TSAs own formula underestimated staffing needs at McCarran.
Their initial proposal was for 528 screeners, and our calculations
showed that the average passenger wait time at the screening
checkpoint would have been 41 minutes under that plan, well in
excess of the 10-minute commitment provided by the Federal Gov-
ernment initially.
Our analysis shows by adding one staff member per shift per
checkpoint lane, we could reduce the average passenger wait to 13
minutes. And this would bring the total staffing requirements from
TSA to 630.
We are moving aggressively at McCarran to add more security
checkpoint lanes. On June 6, 2002, we added three new screening
lanes to serve Concourses C and D. We are about to begin construc-
tion on a project to extend the screening areas over baggage claim
so that we can install six more screening lanes. However, this will
require an additional TSA staffing to fully man and operate them.
We want to thank Congress for recognizing in the recently ap-
proved FAA Reauthorization Conference report that allocation of
TSA personnel and equipment based exclusively upon lanes or
hubbing passengers was not the right approach. We gratefully
thank our congressional delegation for their support in this effort.
We now believe that the TSA has a greater appreciation of the se-
curity problems, especially at McCarran and is moving to address
them.
45
Our local Federal Security Director is an essential member of our

McCarran team and has proven to be an excellent partner in ad-
dressing these problems.
We still have a long way to go, however. Last month, for exam-
ple, we enjoyed the fifth busiest month in the history of the airport.
In July, just this last month, we processed more passengers than
we did July 2001.
We have resumed the expansion of the D satellite concourse.
We anticipate that as soon as three years form now, depending on
traffic flow, we could begin construction of another Unit Terminal
along Russell Road in front of D gates. This will necessitate new
in-line baggage screening equipment and additional screening
checkpoints for passengers who will use that terminal.
Thank you, Mr. Chairman, for allowing me to review the signifi-
cant security-related challenges we faced at McCarran. Our success
is of vital importance for the continued recovery and expansion of
Las Vegas economy, and Im sure you know that very well, and we
appreciate your assistance. I express our appreciation for your pre-
vious help and previous help of our congressional delegation on
these issues. I am thanking you in advance for the help I know
that you will give us in the future.
Mr. GIBBONS. Thank you very much, Mr. Walker. As a frequent
flyer into and out of Las Vegas, I can attest to everything you have
said in your comments. I can understand and appreciate your ef-
forts to make it better.
[The statement of Mr. Walker follows:]
PREPARED STATEMENT OF MR. RANDALL WALKER
Chairman Gibbons and Members of the Subcommittee, I want to thank you for
this invitation to address the security needs of Las Vegas McCarran International
Airport.
On September 11th, 2001 almost two years ago, the aviation industry suffered a
devastating blow. As airplanes were forced down onto airfields around the nation
and all air travel was suspended for days, the problems facing our industry changed
in an instant. You may recall that prior to 911, we were faced with unprecedented
passenger traffic, which created significant strains on the nations aviation infra-
structure. Before 911, our focus was on more runways, airspace efficiency enhance-
ments and a passengers bill of rights.
Almost overnight, our concerns shifted to the survival of the nations airlines and
the major security enhancements necessary to assure the traveling public it was
safe to fly again. We applaud Congress for responding in record time by enacting
federal legislation which imposed sweeping security obligations and requirements on
all airports and airlines. A new federal agency, the Transportation Security Admin-
istration (or TSA), was created and a new federal security screening workforce
began to assume the security related responsibilities previously borne by the air-
lines. The Aviation and Transportation Security Act required the TSA to install Ex-
plosive Detection Systems (EDS) at 429 commercial airports to screen all checked
baggage by December 31, 2002. In addition, TSA and its industry partners were
given deadlines for enhanced screening of passengers, checked luggage and cargo
shipments.
In retrospect, we all knew it would be difficultif not impossiblefor TSA to
meet this deadline at 100 percent of the nations commercial airports. According to
the Department of Transportation (DOT) Inspector General as of July 6-six months
before the screening deadlinethere were only 215 EDS machines and 273 Explo-
sive Trace Detection (ETD) machines in use at 59 airports. Consequently, TSA
would have had to purchase and install approximately 1,000 EDS machines and
5,600 EDT machines at airports in just five monthsapproximately one machine
every 37 minutes between July and December 31 to fulfill the 100% explosive detec-
tion mandate. Even if manufacturers could produce that many machines, TSA would
have been required to hire and train enough baggage screeners to operate the EDS
46
and EID machines. TSA would have needed to recruit, hire and train approximately
21,600 screeners to operate these machines. Again, according to the DOT Inspector
General, by July of last year the TSA had hired and trained only 215 baggage
screeners. Consequently, the agency was given the impossible task to recruit, hire
and properly train approximately 21,400 screeners over five monthsapproximately
one screener every 4 minutes.
With encouragement from the airports, including McCarran, Congress responded
by providing the TSA needed flexibility to meet the statutory deadlines imposed
particularly at unique airports like McCarran.
These requirements have posed a significant burden on airports everywhere; how-
ever, I dare say no city with the exception of New York and Washington D.C. felt
the adverse impacts of911 more than Las Vegas. From a high of 3.4 million pas-
sengers in of the month of August 2001, passenger traffic at McCarran fell 37% per-
cent almost overnight. Our hotel occupancy plummeted during the fall of 2002 as
cancellations reflected the somber and apprehensive mood of the nation. This, com-
bined with the fear of flying, kept many of our tourists away from Las Vegas. Thou-
sands of hotel workers lost jobs. At McCarran, most of the planned capacity expan-
sion projects where shelved and our focus shifted immediately to meeting the en-
hanced security requirements imposed by federal law.
Interestingly enough, air traffic to Las Vegas was really the first to begin to re-
cover. By Christmas of 2001, we began to see a return of some of the lost passenger
volume. While our numbers during 2002 failed to match the record highs of the pre-
vious year, they grew gradually from the post 911 traffic levels, while traffic at
most other airports continued to decline or at best remained flat.
However, with the return of our passengers came a host of new challenges. Long
lines and extensive delays sprung up at the security points in the airport as a result
of the required enhanced passenger processing and security screening. This problem
was exacerbated by the layoffs of airline employees by many of the carriers serving
McCarran as they struggled to survive financially. I am sure I do not need to re-
mind you, Mr. Chairman, of the endless lines that stretched out the doors and onto
McCarrans roadways, or the hours it took to pass through the security checkpoints.
Immediately this highlighted another threat. Such long lines give terrorists an al-
ternative and attractive target, thereby creating an unacceptable increased security
risk. In addition, we feared that tourists whose travel is discretionary would choose
to avoid screening delays and business travelers might not choose to endure the has-
sle of traveling to Las Vegas if the delay problems were not rapidly solved.
McCarran is unique among the nations airports when you consider that:
There are more than 36 million passengers who use our airport each year.
82% of McCarran s passengers are tourists or conventioneers who are vital
to the continued economic well being of Southern Nevada.
Las Vegas is the second leading airport in the nation for origination and des-
tination passengers. This means that we handle more passengers through secu-
rity screening than any other airport except for LAX.
Las Vegas handles an average of 50,000 departing passengers per day. These
passengers bring approximately 60,000 bags per day, which means we must
screen more luggage than most of the nations larger airports.
On our weekly peak days of Thursday or Sunday (when tourists come in and
out for the weekend) we screen over 65,000 passengers.
Like most airports, Las Vegas McCarran was not designed with adequate
space in the ticket lobby or bag makeup rooms for the installation of large num-
bers of the screening machines, which are now required by the TSA.
Shoehorning such equipment into the existing space just to meet an arbitrary
deadline would have led to inefficiencies, delays, and economic burdens on our
air carriers and potentially to our tourism based economy.
McCarrans analysis has shown that under one deployment scenario, proposed
by the TSA early in 2002, passengers checking baggage could be waiting in line
for four hours.
Giving TSA more flexibility to work with a few selected airports like McCarran
on how to efficiently install inline EDS and EID luggage screening machines helped
prevent further economic disruption to the airline industry and tourism following
9/11.
McCarran has moved aggressively and was one of the first airports in the nation
to be given approval to commence construction of the In Line baggage screening sys-
tem at our main terminal. This in-line system will change the passenger ticket
counter experience to almost a pre911 experience. Luggage checked at the ticket
counter will be directed to the TSA through a complex system of conveyor belts and
screening machines. TSA employees will screen each bag for dangerous materials
47
before the bag is returned to an airline. This system will cost approximately $125
million dollars to install and is scheduled to be operational by December 31, 2004.
Recently, we faced an additional challenge when the TSA announced plans to re-
duce the number of passenger screeners assigned to our airport. Upon our investiga-
tion of the methodology used by TSA to make personnel and equipment allocations
among the nations airports, we found several major flaws:
TSAs staffing formula was not based upon the number of passengers that
require security screening but rather upon the number of checkpoint
screening lanes an airport may have.
TSA screeners were assigned to match the number of screening lanes at
an airport regardless of the need. If an airport had more physical space for
lanes, they would get more staff regardless of the number of passengers
using those lanes.
TSAs own formula underestimated staffing needs at McCarran (the ac-
tual calculation was not correct!)
With TSAs initial proposal for 528 screeners, the average passeneer wait
time would have been 41-minutes at McCarran. well in excess of the 10-
minute commitment made by the federal government.
Our analysis shows by adding one staff member per shift per checkpoint lane we
could reduce the average passenger wait time to 13 minutes. By adding one more
person to each lane, total TSA staffing requirement would be 630 based on existing
lanes.
We are moving aggressively at McCarran to add more screening checkpoints
lanes. On June 6, 2002 we added three (3) new screening lanes serving Concourses
C and D. We are about to begin construction on a project to extend the screening
areas over baggage claim so we can install 6 more screening lanes. However, this
will require an additional TSA staffing to fully man and operate them.
We want to thank Congress for recognizing in the recently approved FAA Reau-
thorization Conference report that allocation of TSA personnel and equipment based
exclusively upon lanes or hubbing passengers was the not the right approach. We
now believe that the TSA has a greater appreciation of the security problems, espe-
cially at McCarran and is moving to address them. Our local Federal Security Direc-
tor is a member of our McCarran team and has proven to be an excellent partner
in addressing these problems.
We still have a long way to go however. Last month, for example, we enjoyed the
fifth busiest month in our history. We have resumed the expansion of the D sat-
ellite concourse and we anticipate that as soon as 3 years from now we could begin
construction of another Unit Terminal on Russell Road in front the D gates. This
will necessitate new inline baggage screening equipment and additional screening
checkpoints for passengers who will use that terminal.
Thank you for allowing me to review the significant security related challenges
we have faced and are facing at McCarran International Airport. Our success is of
vital importance to the continued recovery and expansion of Las Vegas tourist de-
pendent economy while maintaining a high level of safety. Along with providing the
highest level of safety and security, we strive to maintain an exceptional customer
service environment. We certainly are appreciative of the recent revision to the allo-
cation of Homeland Security funds that now includes tourist numbers in the for-
mula which was accomplished by our Nevada delegation. We recognize our vital role
as the gateway to the most exciting city in the world. We are truly the first impres-
sion and last look of every air passenger to Las Vegas.
I want to take this opportunity to express my appreciation for helping to ensure
that every air passenger to Las Vegas enjoys a safe, secure and hassle- free experi-
ence.
Mr. GIBBONS. We turn now to Dr. Carrison. Welcome, the floor
is yours. We look forward to your testimony.
STATEMENT OF DR. DALE CARRISON, EMERGENCY DEPART-

MENT MEDICAL DIRECTOR, UNIVERSITY MEDICAL CENTER,
TRAUMA CENTER
Dr. CARRISON. Thank you, Congressman Gibbons, its a privilege
to be here. I appreciate you having us here, and I think it is ex-
tremely important.
48
You have my document for submission in the record. I will ad-

dress some issues in that and make some extemporaneous com-
ments based on what I heard here today.
I am proud to represent University Medical Center, the only pub-
lic hospital in Southern Nevada and the only level-one trauma cen-
ter in the State of Nevada. We have been fortunate that weve had
incidents with regards to weapons of mass destruction that oc-
curred at our hospital, and we have learned from those.
The first two incidents were prior to September 11th. We had an
incident when an anthrax exposure came into the hospital. At that
time we had post-incident debriefing, which involved essentially
the emergency department, the agency that brought the alleged
victim of anthrax infection in. We learned from that. It was not
what I would call an ideal debriefing.
We had a second incident in the community where there was a
sarin gas threat of a person who had taken over a facility and
threatened that they had sarin gas. We were able to respond to
that with the help of Nellis Air Force Base. We were able to obtain
the medications that would have been necessary to address this
had there, in fact, been sarin gas.
We had a much better post-incident debriefing on that incident.
We were able to establish some policies and procedures that would
assist us if that occurred in the future.
But I think at that point reality had not really set in. Reality set
in as of 911. Since 911, we had an incident where an individual
in the community manufactured some lysine and injected himself.
That incident after 911 showed the hospital and community really
had their heart in finding out what we could do to prevent casual-
ties from these weapons of mass destruction similar to this biologi-
cal chemical radiological.
That incident, we had 20 agencies, 50 people. The post-incident
debriefing was outstanding. We went back to the hospital. Since
that time, that gave us new life. After 911, of course, we started
like everyone else to look at our systems and see what could be
prepared better. We reviewed our policies and procedures, modified
them. We have a committee, a WMD committee. We established an
incident command. We have enhanced our security capabilities. We
expanded the staff training just so that people know what these
agents are and what their effects on. With ignorance, you cant
have that because people become terrified.
Our nursing, clerical, from the janitors to the clerks, everyone in-
volved in the hospital, weve attempted to educate them on weap-
ons of mass destruction, particularly biological that we would see
in a hospital so everybody understands and that there is no mys-
tery and they understand that it is a disease.
With that, we expanded that decontamination plan. And just so
I better address the EMS system so that the committee under-
stands that I am EMS friendly. Im a former deputy sheriff, Orange
County, Southern California. Im a former special agent of the FBI,
and the current medical director for Clark County Fire Depart-
ment, Medical Director for Mercy Air Helicopter, which provides
the emergency helicopter services in the county, Medical Director
for Lake Mead National Recreational Area, and Im an active re-
sponder with the Las Vegas Metropolitan Police Department as a
49
tactical position for the SWAT team. So I am EMS friendly and I

have been a responder and I am a responder.
Communications are extremely important. We have enhanced
our internal communications. And as you respond, its as you train.
We have increased our training. I dont think its enough yet, but
were working on that. Training takes resources as everything asso-
ciated with this does.
We have done a much better job of coordinating with local com-
munities and working with the Clark County Health Department,
the LEPC, Clark County Public Safety Coordination Team, the
FBI, and local law enforcement terrorism. We have good commu-
nication with that now.
Mr. Shepherd brought up a point that its only as good as the
weakest link. I have concerns that as a director of an emergency
department and responsible for two other emergency departments
in the community that we may be the weak link.
Without allocation resources to the EMS community, first re-
sponders to law enforcement, I think we need to remember that the
last link in that chain is the hospital. Without that link, our best
efforts of first responders will bear no fruit. We wont save people.
We wont be able to treat their injuries. It wont happen.
And no offense to anyone, but the allocation of resources to the
State of Nevada as the public hospital in Southern Nevada, Univer-
sity Medical Center for my WMD program, I received zero. Zip.
Nothing. We want to be a link in that chain, but we want to be
a strong link. We dont want to be the weak link.
As everything, everyone wants, everyone wants more resources
so they can do a better job at being prepared. I understand that.
I understand the allocation and limitation of resources, but I would
point out once again, that what we have are patients. Those people
who are victims of a weapons of mass destruction event are going
to the hospitals. Theyre going to come to us for treatment.
We havethe Clark County Fire Department Hazmat is out-
standing. They would be at an incident. What does my Hazmat do
for decontamination at the hospital? I have the ability to decon-
taminate two people at a time. Past Federal rules indicate that the
decontamination area should be within the walls of the hospital.
We know now that is a great mistake. The last thing you want in
a hospital emergency department is to bring a contaminated person
within those walls because then you will set down the only patient
emergency system that you have because the whole place would be
contaminated, and that would be the end of that link in the chain.
Extremely important to remember the hospitalextremely im-
portant that we remember our patients and our mission to our pa-
tients, and if we are not included in that first responder as the
emergency responder that the patients are going to come to.
The other part we dont address, you cant think of how many
people are going to get in their cars when they think theyve been
exposed, and we saw this with the anthrax. We had people bring-
ing letters into the emergency department that had a white pow-
der. We have to address that from a security standpoint. We have
to address that multiple people showing up that we cant allow into
the emergency department from both a security point and from a
50
decontamination point, so that the safety of those people who are

providing the patient care is ensured.
We also have to remember that because we have an incident of
this sort, the other things that occur in our community are not
going to stop. We are going to continue to have motor vehicle crash-
es. We are going to continue to have people with heart attacks. We
are going to continue to have people that have respiratory illnesses
that require emergent intervention. I can go on with that list of
things.
I can tell you that the system right now is stressed to the max.
And if we had an incident, it could break that system.
That was one consideration given for having a mobile hospital,
something that we could set up immediately to provide the care for
those people who may be contaminated and provide them a safe en-
vironment and a safe environment for those persons who are tak-
ing care of them.
In closing, I appreciate, again. Being here. I will tell you that we
are committed to staying ever vigilant in our efforts and to the best
of our ability to respond to any disaster in our community.
Thank you.
Mr. GIBBONS. Thank you very much, Doctor. You have brought
some new information to light here with this committee and have
raised a number of questions even in my mind that Ill talk to you
about in a minute.
[The statement of Dr. Carrison follows:]
PREPARED STATEMENT OF DR. DALE CARRISON
HOSPITAL EMERGENCY PREPAREDNESS ASSESSMENT, ENHANCEMENTS AND PLANNING
As the only public hospital in Southern Nevada, University Medical Center of

Southern Nevada (UMC) has been actively involved in emergency response planning
for a number of years. After the tragic events of September 11, UMC initiated a
number of analyses to help ensure its readiness to respond to a man-made or nat-
ural disaster. In particular, UMC conducted a hazardous vulnerability assessment
to identify the range of hazards to which UMC could be called upon to respond. As
a result of these analyses, UMC has identified some specific areas on which imme-
diate efforts could be focused, given existing resources, to help increase UMCs read-
iness to respond in the event of a disaster in our community. Additional emergency
response enhancement opportunities have also been identified for possible future
implementation in the event that additional resources become available.
The following is a list of the emergency response enhancements that have been
implemented since September 11:
1) Review and revision of emergency response policies and procedures.
2) Formation of weapons of mass destruction (WMD) committee.
3) Establishment of an Incident Command System (ICS).
4) Enhancement of security capabilities.
a) Traditional personal safety and site security.
b) Medical safety, contamination prevention.
c) Coordination with local law enforcement agencies.
5) Expansion of staff training on clinical and operational emergency response.
6) Establishment of decontamination plan.
7) Establishment of clinical resource library.
8) Enhancement of internal and external communications equipment and sys-
tems.
9) Expansion of in-house disaster planning drills.
10) Coordination with all local emergency response agencies and participation
in emergency response drills.
a) Local Emergency Planning Committee (LEPC)
b) Clark County Public Safety Coordination Team
c) Clark County Health District Incident Response
d) FBI and Local Law Enforcement Terrorism Coordination
51
With the implementation of these immediate enhancements, UMC has increased
its readiness to respond in the event of a disaster in our community. In addition,
UMC has identified other enhancement opportunities in the areas of equipment,
supplies, capacity, planning and coordination that it is working to develop with ex-
isting and/or potential future resources. The following is a sample of the additional
enhancements that have been identified for future emergency readiness:
1) Enhance internal and external communication systems and technology.
2) Acquire additional personal protective equipment and supplies.
3) Increase emergency patient decontamination capacity.
4) Increase emergency patient isolation capacity.
5) Enhance security-related technology.
6) Enhance training and education.
7) Acquire additional clinical equipment.
8) Enhance ICS capabilities.
9) Acquire mobile hospital MASH-style capabilities.
10)Enhance coordination with local, state and federal agencies to help institute
a uniform leadership policy in Southern Nevada.
11)Initiate coordination with FEMA regarding emergency pharmaceutical dis-
tribution.
Since September 11, a great deal of effort has been devoted to helping ensure
UMCs readiness to respond to any type of disaster, man-made or natural. As a re-
sult of our initial assessments, we have identified a number of immediate and long-
term opportunities to enhance our ability to respond. While we have learned a great
deal and instituted some successful enhancements, we realize that we have some
future enhancements that would further increase our response capabilities, and po-
tentially new challenges that may arise. It is with this in mind that we are com-
mitted to staying ever vigilant in our efforts to do the best of our ability to be ready
to respond to any disaster in our community.
Mr. GIBBONS. Now, Ill turn it over to Mr. Bill Conger for your
comment. Bill, welcome, and the floor is yours.
STATEMENT OF MR. BILL CONGER, DEPUTY CHIEF, LAS

VEGAS METROPOLITAN POLICE DEPARTMENT
Mr. CONGER. Mr. Chairman, I appreciate the opportunity to
speak this morning. Im substituting for Sheriff Young because he
is unable to be with us today.
The Las Vegas Metropolitan Police Department is the eleventh
largest police department in the country with 4,300 employees and
jurisdictional responsibility of 7,800 square miles.
We are responsible for all of unincorporated Clark County, which
includes the Strip corridor, McCarran Airport, the sixth or seven
busiest, depending on who you talk to, Nellis Air Force Base, Hoo-
ver Dam, portions of the Nevada Test Site, and all other outlying
areas, including the population centers of Laughlin and Primm.
Our jurisdiction also includes the City of Las Vegas. Most of the
entertainment industry in Southern Nevada and approximately 1.2
million of the countys 1.6 million population and most of the 35
million visitors that visit our community each year are also our re-
sponsibility.
Our local response community has long recognized the need for
a regional approach to preparedness and response to any eventu-
ality that could occur.
This valley has a longstanding history of major events from the
MGM/Hilton fires in the early 1980s, the PepCon explosion, and
the yearly preparation for New Years Eve, which is second only to
New York in size and scope. These major events have created a
viable emergency management community that has been in full
swing for many years.
52
The preparedness/response piece of the puzzle is a focus that is

vital to the future of our community, but it is only a part of the
total picture, especially in areas that are totally reliant on tourism,
as we are, and the economic impact that its loss would incur. Be-
cause, without a doubt, our most important economy and a signifi-
cant portion of the states economy is based on discretionary spend-
ing from tourism and the entertainment industry. Any impact on
those dollars would have a staggering effect both on the local econ-
omy and the State.
When I speak about our community, I am speaking regionally,
which includes the cities of Henderson, North Las Vegas, Boulder
City, and Mesquite, because all the local governments recognize the
impact of an event anywhere in this valley.
This brings me to the focus of the Metropolitan Police Depart-
ment in the fight against terrorism. Prevention of an act in our
community is the most important issue we deal with on a daily
basis. The fact that the economic life of our community is depend-
ent on the discretionary dollars makes us vulnerable to those who
would make our community unsafe for visitors. To put it bluntly,
people wont vacation where they dont feel safe. Even the threat
of an event could have a substantial impact.
The national strategy includes the prevention of an act as a sig-
nificant portion of its effort. Prevention from our perspective is two-
fold:
Number one, the open and overt aspect of the policing function
including partnerships within both the public and private sector
and educating people on what to look for and where they can go
with the information. We have created a preparedness document
for the citizens of Clark County called H.A.N.D.S.S. and
partnered with the Sprint Telephone Company to get it printed in
the phone book essentially got it out to 1.3 million copies in the
local community. This gave citizens instructions on how to prepare
for any diaster.
We have created a Homeland Security Bureau and activated a
hotline for citizens to call to report suspicious activity. All leads
that come in on that hotline are investigated and either verified
and passed on to the JTFF or defunked with no further investiga-
tion necessary. Open source information is collected daily, ana-
lyzed, and disseminated to both law enforcement and the public/
private sector, especially if the information is a potential challenge
for that particular group or industry.
Communications operability and interoperability are significant
issues that not only affect our community, but most other jurisdic-
tions as well. Prevention of an act and the coordinated response to
an act are linked to the ability for police and the rest of the first
response community to communicate with each other.
It is important to talk with other agencies and jurisdictions, but
also a major challenge facing us currently is the inability for police
officers to talk to each other inside buildings and in certain areas
of town.
The second side of prevention has to do with the covert aspect
of what we as a police agency do with our Federal partners. After
911, our department moved very quickly to get security clearances
for officers involved in the JTTF. Key administrative personnel
53
were also given clearances in order to make decisions based on na-

tional security for determination of whether a mobilization may be
necessary to prevent an event.
Covert operations have long been a vital aspect of the police
function. In todays environment with the potential for individuals
to destroy the safety and security of our community, covert oper-
ations with Federal partnerships are necessary to protect our tour-
ist lifeblood.
I am reticent to discuss whether we are a target or vulnerable
to terrorism in an open forum, but I know the local and Federal
partnerships that have been created have gone a long way in en-
suring the creation of an inhospitable environment for those who
would cause our community harm.
I want to thank you for giving the Metropolitan Police Depart-
ment the opportunity to share our views on the vital mission of
homeland security as it relates to Clark County and the southwest
region.
Mr. GIBBONS. Thank you very much, Mr. Conger.
[The statement of Mr. Conger follows:]
PREPARED STATEMENT OF MR. BILL CONGER
Mr. Gibbons, members of Congress, my name is Bill Conger. am a Deputy Chief
with the Las Vegas Metropolitan Police Department substituting for Sheriff Young
who is unable to be with us today.
The Las Vegas Metropolitan Police Department is the eleventh largest police de-
partment in the country with 4,300 employees and jurisdictional responsibility of
approximately 7,800 square miles. We are responsible for all of unincorporated
Clark County which includes Congressional Hearing, August 21, 2003 Testimony of
Deputy Chief Bill Conger Las Vegas Metropolitan Police Department the Strip cor-
ridor, McCarran Airport (the sixth busiest airport in the nation), Nellis Air Force
Base, Hoover Dam, portions of the Nevada Test Site, and all other outlying areas
of the county, such as Laughlin and Primm. Our jurisdiction also includes the city
of Las Vegas. Most of the entertainment industry in Southern Nevada and approxi-
mately 1.2 million of the countys 1.6 million population and most of the 35 million
visitors that visit our community yearly are also our responsibility.
Our local response community has long recognized the need for a regional ap-
proach to preparedness and response to any eventuality that could occur.
This valley has a long-standing history of response to major events from the
MGM/Hilton fires in the early 1980s, the PepCon explosion, and the yearly prepara-
tion for New Years eve which is second only to New York City in size. These major
events have created a viable emergency management community that has been in
full swing for several years.
The preparedness/response piece of this puzzle is a focus that is vital to the future
of our community, but it is only a part of the total picture, especially in areas that
are totally reliant on tourism and the economic impact its loss would incur. Because,
without doubt, our most important economy and a significant portion of the states
economy is based on discretionary spending from the tourism, entertainment indus-
try. Any impact on those dollars would have a staggering effect on both the local
economy and the state.
When I speak about our community, I am speaking regionally, which includes the
cities of Henderson, North Las Vegas, Boulder City, and Mesquite, because all the
local governments recognize the impact of an event anywhere in this valley.
This brings me to the focus of the Metropolitan Police Department in the fight
against terrorism. Prevention of an act in our community is the most important
issue we deal with on a daily basis. The fact that the economic life of our community
is dependent on discretionary dollars makes us vulnerable to those that would make
our community unsafe for visitors. To put it bluntly, people wont vacation where
they dont feel safe. The threat of an event could have a substantial impact.
The national strategy includes the prevention of the act and is a significant por-
tion of our effort. Prevention from our perspective is twofold:
54
1. The open aspect of the policing function including partnerships within both the
public and private sector and educating people on what to look for and where they
can go with the information. We have created a preparedness document for the citi-
zens of Clark County called H.A.N.D.S.S. and partnered with Sprint Telephone to
get it printed in the phone book. This gave citizens instructions on how to prepare
for a disaster.
We have created a Homeland Security Bureau and activated a hotline for citizens
to call to report suspicious activity. All leads that come into our office are inves-
tigated and either verified and passed on to the JTTF or debunked with no further
investigation necessary. Open source information is collected daily, analyzed, and
disseminated to both law enforcement and the public/private sector, especially if the
information is a potential challenge for that particular group or industry.
Communications operability and interoperability are significant issues that not
only affect our community, but most other jurisdictions as well. Prevention of an act
and the coordinated response to an act are linked to the ability for police and the
rest of the first response community to communicate with each other. It is impor-
tant to talk to other agencies and jurisdictions, but a major challenge facing us cur-
rently is the inability of police officers to talk to each other inside buildings and in
certain areas of town.
2. The second side of prevention has to do with the covert aspect of what we as
a police agency do with our federal partners. After 911, our department moved
very quickly to get security clearances for officers involved in the JTTF. Key admin-
istrative personnel were also given security clearances in order to make decisions
based on national security for determination of whether a mobilization may be nec-
essary to prevent an event.
Covert operations have long been a vital aspect of the police function. In todays
environment with the potential for individuals to destroy the safety and security of
our community, covert operations with federal partnerships are necessary to protect
our tourist lifeblood. I am reticent to discuss whether we are a target of terrorism
in an open forum, but I know the local and federal partnerships that have been cre-
ated have gone a long way in ensuring the creation of an inhospitable environment
for those that would cause ourcommunity harm.
I want to thank you for giving the Metropolitan Police Department the oppor-
tunity to share our views on the vital mission of Homeland Security as it relates
to Clark County and the southwest region.
Mr. GIBBONS. And to each of you, Im sure you can tell by the
tenor of your statements to the records that all is not quite as rosy
as you might have heard from those people on the higher echelon
in homeland security. Thats one of reasons why we are here in this
hearing is to have the differences, the gaps, the weakness of this
chain, as Mr. Shepherd said, brought to light so that we in Con-
gress can have an idea on how better to help you do your job.
Let me begin by asking Mr. CongerI know that your position,
you have a great deal of day-to-day contact with the soldier who
is down there in the trenches doing the battle on the streets fight-
ing crime, drugs, and terrorism.
Do you feel that your officers are as prepared as they can be to
recognize needed indexes of terrorists and tactics of terrorism to be
able to report back to you, which then can be shared vertically that
information? Are they trained to look at those issues?
Mr. CONGER. Im going to answer that this way, sir. We still have
a long way to go. We have a department of 4,300 and we also have
a large jurisdiction, and it doesnt just include our employees being
prepared. It includes the first response community, the entirere-
quires the help of the citizens of Clark County, and it is our goal
to get everybody prepared and everybody up to the level that they
need to be, that if they see something suspicious, they can give us
that information knowing that we are going to take care of it.
Are we there yet? No.
55
Are we as prepared as any community in the United States to

respond to any eventuality? Yes, with some caveats, and those ca-
veats being we have to overcome a persons innate fear of the word
weapon of mass destruction, of the word its radiologic, or of the
word, its biologic. And we need to be able to create an environ-
ment that the first responders and the citizens dont go into a panic
when those issues raise their head.
I was the incident commander on the lycine incident in Clark
County. The call that I received at two oclock in the morning was,
Chief, we have a lycine exposure, we have two emergency rooms
closed, we have several officers exposed, et cetera. It brought this
community to the forefront on the response aspect of this very
quickly.
Did we make mistakes? Yes.
Are we going to do it better next time. And as Dr. Carrison
talked about, working as a partnership is what is most important
to this community. In that lycine incident after about three hours,
we knew that it was a horrible public relations nightmare for this
community. So we needed to get that information out as fast as we
could that this was not a terrorist event, it was an individual act.
Did I answer your question, sir?
Mr. GIBBONS. Very well.
Mr. CONGER. Thank you.
Mr. GIBBONS. And its nice to know that youre making a dif-
ference and that we are better prepared today than we were yester-
day for events that reflect terrorism. As you indicated, prevention
is the number one goal. Being a first responder says that somehow
we didnt bat 1000. We are now responding to something. And, un-
fortunately, theres no luxury of batting 1000 in this world. You
have to do the best you can. Unfortunately, you are not in baseball.
If youre batting even 500 in baseball, you would be paid millions
and millions of dollars. But if youre batting 500 in defending this
country, defending the citizens, youre basically at risk for being
criticized.
And what I want to say is that I hope our police forces, our
Metro and first responders, arent handcuffed by risk aversion con-
siderations. In other words, theres so many political and socio-
logical forces that drive us today that we are risk averse. Were
afraid of being sued. Unfortunately, sometimes that can have a
dramatic effect on how we view the overall picture.
Its something that I dont know how to address, and perhaps you
can address it as you work through these issues, but its something
that does concern me.
Thank you for your comments. They have been great, and I real-
ly appreciate it.
Dr. Carrison, is UMC part of the overall county picture that goes
to the State, as we heard Jerry Bussell talk about earlier, to decide
how that in the last three or four months $25 million that have
come to the State and shared 20 percent to the State, 80 percent
to counties and cities, are you part of that decision process? Are
you involved in that?
Im concerned if you say you get zero, and we understand the
risks you just described.
56
Dr. CARRISON. Im concerned also because thats the first time

Ive heard those figures. Id have to defer that to acting CEO, Mike
Walsh is here. I can tell you as the director of the emergency de-
partment and actively involved in medical staff and medical execu-
tive committee of the hospital, no.
Mr. GIBBONS. Youve never heard of.
Dr. CARRISON. Never heard of the process and having been in-
volved.
Mr. GIBBONS. That means that theres somehow a breakdown in
the communication on the county side because the counties are in-
volved, obviously from the county perspective, we were told there
are 17 representatives, one for each county, as to the body that
makes the decisions about how this money is to be allocated, re-
sources provided is going to be divided up.
Dr. CARRISON. The one thing that someone might say is we are
a county-supported hospital. If thats the only county hospital,
were court of last resort for those people who dont have resources
to go elsewhere for good medical care or for any medical care.
Mr. GIBBONS. And you are probably going to be the court of first
response when it comes to finding something biological or other at-
tack that comes in because you have to treat individuals that are
to be.
Dr. CARRISON. Individual
Mr. GIBBONS. Treat.
Dr. CARRISON. And the teaching hospital, we have those re-
sources with regard to what some of the research that is being
done, number one trauma center, we are talking about explosive
type injuries.
Mr. GIBBONS. Perhaps you could do me a favor because I realize
that is a Federal level were talking about on this committee, but
this is an issue for county officials and county hospital, if you talk
to the county and find out what the answer is to that question and
respond back to me. I would like to know just for my own satisfac-
tion. Im sure theres a lot people out there that would like to know
why the county ismajor hospital, the county hospital in this com-
munity gets zero dollars out of that first responder money.
Dr. CARRISON. I understand that. I think we also have to con-
siderI dont want be cavalier on this or give the wrong impres-
sion, but I think we have to consider that we have a hospital that
was losing lots of money since 911 because of the number of
indigents or patients without resources increased dramatically. We
required increased subsidy from the county. We are receiving a
subsidy from the county, and the county manager, Mr. Wiley, is
Ive worked with him, I spoke with him. Hes done an excellent job.
Mr. Walsh is stepping in as the acting CEO, and his staff are doing
an excellent job addressing our shortfalls and theyve reduced that.
But that may be a consideration in the funds.
But, again, thats operating costs versus costs that we are look-
ing at to give us the equipment necessary to be that link in the
first responder chain if we have a WMD incident.
Mr. GIBBONS. Well, in any event, if you can find an answer in
that determination and share that with us, we would be very inter-
ested. Because Im sure it is not a unique problem to Las Vegas.
57
I think this has got widespread problematic concerns and much

broader applications than just what you indicated.
Dr. CARRISON. Even if I were to say a comment for all hospitals
and particular emergency departments and emergency personnel,
physicians that staff those hospitals, it is a problem throughout the
United States, and, again, were establishing an excellent infra-
structure from the Federal level going down to the State level and
then into the county levels, but the problem is the hospital is still
there. In some areas its only private hospitals that have that, but
they are still going to be the ones that take care of our citizens and
our patients, then they cannot be overlooked because the system
will break if that happens.
Mr. GIBBONS. I think people for all good reasons anticipate that
the hospital will be there and capable of taking care of any illness
that they have because you have done a great job in the past, and
youve always been there for them, you will always be there in fu-
ture, and we may be making an assumption that shouldnt be
made.
Dr. CARRISON. I believe it is an assumption that absolutely
should not be made. Because in most places of the United States
now, if you look at the emergency visits and how they have in-
creased and the number of hospitals that have closed, the system
is really stretched to the max right now. If something happened,
major incident in any number of places, the hospitals are going to
be completely overwhelmed, completely overstressed. And, you
know, we need part of that allocation of resources and with particu-
larly the training and the knowledge that go with that to be able
to be that final link in the chain.
Mr. GIBBONS. I have a number of questions that Ive love to en-
gage with you in, including some ideas about how you create a list
of doctors and health care providers from around the State that can
respond and how do we get that coordinated and how do we work
on an emergency list that is.
Dr. CARRISON. Whats actually doing a decent job on that is asso-
ciation with FEMA through the fire department and the FEMA.
We have done much with local coordination with them, because, as
you know or probably know, with the event of a chemical biological
incident, we have to depend on FEMA because the medical re-
sources with regard to pharmaceuticals in our community would be
overwhelming without FEMA bringing those in. So that coordina-
tion is going on. There are physicians associated with that.
I think that part of it is much better than it was, but, unfortu-
nately, I still see people having meetings. I was able to be included
on the planning session for operation determined promise, but the
physician that is there today is there with Clark County Health
District. I think we have to remember, again, I hate to be redun-
dant, but we still have to remember that the role the hospitals play
in that first responder situation.
Mr. GIBBONS. And I think thats part of the whole process of this
determined promise exercise that is going through right now out in
Mesquite or Logandale about health care issues.
Doctor, let me go over to Mr. Walker and ask him a question be-
cause I know that aviation is absolutely unique. Its unique in its
whole character. There is no industry that is like it from the stand-
58
point of how it provides the basis for an economy such as Las

Vegas.
I know that many times Congress does things in an effort to
bring about some assurances to the public that we are taking steps
to ensure their safety. Of course, the December 31st deadline for
100 percent baggage screening, 100 percent passenger screening
that was required by us oftentimes didnt consider the reality that
those machines hadnt been built and couldnt be built by December
31st.
My question would be to you: Knowing the strategies of a layered
defense and knowing the risk that airports have throughout the
Nation, not necessarily Las Vegas, but all airports throughout,
where should the first layer of security be at an airport?
Should it be before they ever get to the grounds of the airport?
Should it be on the airport premises? Should it be in the ticketing
and baggage screening area? Where should that first layer is?
Mr. WALKER. Our goal is the Federal intelligence and the local
intelligence will sniff out any plots and prevent them.
Mr. GIBBONS. That is my goal as well, too, and its something Im
working on.
Mr. WALKER. But if that doesnt happen, then Ive heardweve
gone through at one timewhen we talked about whole masses of
people in the terminal, somebody had the brilliant idea that we
cant let anybody come to the terminal. We better have a processing
center away from the airport that doesnt blow up.
But the question was then you have to build holding buildings
somewhere else and have all the people standing there, and thats
the building theyll blow up. So at some point in time, you have to
understand that you can have a lot of people come somewhere,
youre going to have a lot of people.
So I think given the way the airport operates, the way that the
bags and the people are being screened, at the airport, I think, is
the right location. And then we set up a lot of layers in there, a
lot of them we dont tell everybody what they are in order to en-
hance them.
There are airportsone of the things weve done, of course, is
put a lot of cameras in the security checkpoints to record every-
thing. If an incident happens, we have veryits all digital. We
have very instantaneous information about what happened at the
checkpoint.
Weve also put in a lot of automatic doors that are tied to the
checkpoints, so if the emergency button is pushed, basically seal off
sections of the airport so that two things happen. One is whoever
has penetrated the security inappropriately cant get too far into
the system. And, secondly, if there becomes a situation where we
have to empty the terminal, we only have to empty part of a ter-
minal instead of the full terminal, which enhances our customer
service. So we are looking at all of those kind of things to help se-
cure it.
I think the biggest area that I would be concerned about as the
director of an aviation system that I dont think Congress has
spent enough time addressing, and that is the whole noncommer-
cial aviation, the whole general aviation.
59
You know, we have close to 500,000 operations in McCarran an-

nually. About 32 percent of those are not commercial aircraft. Some
of those aircraft are very large. There are Boeing business jets
which are as large as 737. And we have G5s and other significant
sized airplanes that come in and out of our airport that go through
very little security. We dont know where they come from when
they get here. We dont know what kind of security they have had
at the other side.
And the whole security at that side of the field is much less than
it is at the passenger side, yet, those airplanes are fairly large. And
if someone were able to take command of one of those airplanes
and get full control of it, I think we could have a serious problem.
So I think that needs to be looked at in the future.
General aviation at small airports is also a concern, but those
aircraft tend to be a little smaller. So if I were looking at the big-
gest threat, I would look at larger airports and the type of business
aircraft that come in in the larger size. But I think that is a con-
cern from my perspective.
Mr. GIBBONS. Well, I know that your concern that you just al-
luded to, the private sector aircraft, has been one which the Fed-
eral Government has looked at with regard to security of many of
the nuclear power plants because there was a theoretical prospect
that some private aircraft loaded with some type of explosive would
be used to crash into a nuclear power plant causing an enormous
disaster. So thats an issue that they are looking into on the Fed-
eral level right now.
Mr. WALKER. When we talk about general aviation, most people
think of small private planes, but general aviation actually in-
cludes anything from a Boeing business jet, which is very large,
down to a single engine propeller airplane. So I think maybe there
has to be some categories of different sizes of aircraft and what
kind of security you might have based on the potential threat to
the size of an aircraft being posed if it were taken over by people
with some ill intent.
Mr. GIBBONS. Mr. Shepherd, Im sorry we left you to the last.
You provided your testimony first. It was enlightening to say the
least. I heard Mr. Conger talking about H.A.N.D.S.S. program, H
ANDSS, sharing of information or creating and establishing
an informational net is provided in telephone books.
Do hotels like the Venetian give information like that to their
tourists when they arrive?
Mr. SHEPHERD. Pretty much when they ask. We try to have more
of appearance of security theyll see when they come in with the
armed checkpoints as they come on the property, where the officers
will meet them when they come in. Thats how we end up doing
it most of the time.
Mr. GIBBONS. From your experience, Im sure the Venetian is
much like any other infrastructure sensitive industry, whether its
the power and gas company, whether its the communications,
whether its a hotel, motel, or whether its trucking industry.
When you do your risk assessment for vulnerabilities inside your
structure, do you work with the local police, local fire departments
when you look at that and made some coordinated effort with them
60
to determine what the best recourse would be for an incident that

occurred in your hotel?
Mr. SHEPHERD. Sir, thats correct. We use all kinds of different
sources, whether it be law enforcement, private vendors, or threat
assessment people, as well as people on our staff that are from
other countries as well. We look at it from all sides again trying
to stop any threat, whether it be a terrorism threat.
Our emergency command center, for an example, we have set up
in three different way. We set it up for terrorism, we set it up for
life safety, and we also set it for a natural disaster be it an earth-
quake.
Mr. GIBBONS. Finally, Mr. Congers, my last question, because we
are out of time, we were required to vacate this room by one
oclock, and its little after, the program that I just talked about
that you created that you put in the phone books for advising tour-
ists, is that shared outside of the Clark County? Is it shared in
other counties in the State of Nevada, other communities? Is it
shared nationally or internationally? It seems like it is a creative
program that you made and one which has a great deal of merit
to it.
Mr. CONGER. Actually the genesis of the project was from the
FEMA preparedness handbooks that had been around for a long
time. After 911, people became very cognizant of potential danger
and potential manmade disaster and started calling and asking
questions, What do we do? How do we do it? Who do we notify?
Where do we go? What happens if we have an event? Do we shelter
in place? Do we evacuate? That type of stuff.
We had a very creative person on our department that came for-
ward with this during Sheriff Kellers tenure last year, and we car-
ried it forward, partnered with Sprint Telephone, including 1.3 mil-
lion phone books.
We have disseminated this to all major cities and major cities
chiefs association. The Sheriff, when he goes to those, he dissemi-
nates H.A.N.D.S.S. handbook, and he also disseminates a disk.
The challenge that we had initially was not producing the docu-
ment, it was getting it disseminated. Thats where the actual costs
are involved with the document. It was going to cost the depart-
ment 600 to 800 to a million dollars to get it produced and distrib-
uted to people.
When Sprint Telephone came forward and offered that it went in
the phone book, and it was minimal, we were able to provide for
essentially everybody in the community. If we send a document to
each address in the phone book orexcuse meeach address on
the mailing list, the MGM Hotel would get one, the Venetian Hotel
would get one, et cetera. By doing it in the phone book, each phone,
each room in every hotel room in Las Vegas has a phone book, and
they have access to that.
The biggest challenge we have now is getting the information to
the tourists that that is there, If we have an incident, look in the
book. Its in the first part of the January phone book. And we in-
tend to carry forward with this and get it further into the commu-
nities as we go forward.
Mr. GIBBONS. Gentlemen, I know that we have run out of time.
And theres many, many questions that I have just sitting here on
61
my mind wishing to ask you, but we are out of time. I want to

thank you for your patience. I want to thank you for your presence
and your testimony here today.
If you wouldnt mind, just as with any other members of the pre-
vious panel, we oftentimes will write questions and submit them to
you, if you wouldnt mind giving us an answer to some of those
questions. Maybe the questions will be generated out of the testi-
mony that you have presented to us today.
We would appreciate it if you would respond to our questions so
that we can add that information to the congressional hearing
today.
With that, I want to thank you again. I want to thank the audi-
ence for being out there as patient as they have been, and let them
know that they also can submit a statement that will be included
in the record if they so choose. That has to be submitted to us with-
in 14 days of this hearing. So if you are of a mind to do that and
want to add your thoughts to the congressional record on this hear-
ing, please remember the time lines and that it has to be sent to
us at the congressional committee which is in Washington, D.C. for
Homeland Security.
With that, Im going to close this hearing and excuse our panels
for today. Thank you very much again. And this hearing is now
closed.
[Whereupon, the subcommittee was adjourned.]

Assessing The Security Needs of The West

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ASSESSING THE SECURITY NEEDS OF THE WEST

SUBCOMMITTEE ON INTELLIGENCE AND

SELECT COMMITTEE ON HOMELAND

AUGUST 21, 2003

Serial No. 10822

Printed for the use of the Select Committee on Homeland Security

U.S. GOVERNMENT PRINTING OFFICE

For sale by the Superintendent of Documents, U.S. Government Printing Office

SUBCOMMITTEE ON INTELLIGENCE AND COUNTERTERRORISM

THURSDAY, AUGUST 21, 2003

U.S. HOUSE OF REPRESENTATIVES,

by some developments affecting the gas pipeline coming to Arizona

The Chairman has already mentioned that I chair the Sub-

in a bipartisan basis, and thats why I am particularly delighted

meeting, I sent a letter to the President and to Secretary Ridge

Since September 11th, we have continued to hear and read of the

tion system so our different levels of emergency personnel could re-

STATEMENT OF MR. WILLIAM H. PARRISH

STATEMENT OF MR. LARRY TODD, DIRECTOR, SECURITY,

My name is Larry Todd. I am the Director of Security, Safety,

trucks are being re-routed around the Dam through US 95 and

STATEMENT OF COLONEL JERRY BUSSELL, SPECIAL ADVISOR

interoperability, critical infrastructure, homeland advisory system,

What is your assessment of the functionality? How is it doing

And I said, Paul, I said, Start working on protective measures

Once we initiated and commenced Liberty Shield, the operations

I want to build on this as quickly as possible so that we can use

Westerner and native of Arizona, it randomly goes through my

criticisms sometimes in the media that the Federal Government is

ing to our infrastructure protection director, they are engaged with

STATEMENT OF MR. DAVID SHEPHERD, HEAD OF SECURITY,

Threat Assessment, U.S. Department of Energy and participated in

In Damage Limitation, the department must limit the loss of

I have on my staff, but it should be everyone that walks in that

STATEMENT OF MR. RANDY WALKER, DIRECTOR, CLARK

tion which imposed sweeping security obligations and requirements

Our local Federal Security Director is an essential member of our

STATEMENT OF DR. DALE CARRISON, EMERGENCY DEPART-

You have my document for submission in the record. I will ad-

tactical position for the SWAT team. So I am EMS friendly and I

decontamination point, so that the safety of those people who are

As the only public hospital in Southern Nevada, University Medical Center of

STATEMENT OF MR. BILL CONGER, DEPUTY CHIEF, LAS

The preparedness/response piece of the puzzle is a focus that is

were also given clearances in order to make decisions based on na-

Are we as prepared as any community in the United States to

Dr. CARRISON. Im concerned also because thats the first time

I think this has got widespread problematic concerns and much

point of how it provides the basis for an economy such as Las

You know, we have close to 500,000 operations in McCarran an-

to determine what the best recourse would be for an incident that

my mind wishing to ask you, but we are out of time. I want to

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