Introduction
In 2019, the Federal Emergency Management Agency (FEMA) conducted a “Grant
Effectiveness Case Study” on the impact and effectiveness of grants used by the urban Las
Vegas area in their increased preparedness to respond to emergencies and acts of terrorism.
The outcomes of these grants were tested when, on October 1, 2018, the deadliest mass
shooting event carried out by a lone gunman in the history of the United States occurred during
the Route 91 Harvest music festival on the Las Vegan Strip. The shooter, Stephen Paddock,
distributed his violence on the crown from his 32nd-floor suite at the Mandalay Bay Hotel,
resulting in the tragic deaths of fifty-eight people and wounding at least 413 directly and 867 in
totality when considering the ensuing panic. Emergency officials from the Las Vegas urban area
could not imagine the events of that night when they were writing the grants that provided the
training, coordination, and communication equipment that was pure necessity on that dreadful
night.
Problem Being Address by the Grant/Program
The critical need in which these grants and problems sought to address was the need for
enhanced emergency preparedness and robust counterterrorism capabilities within the urban
area of Las Vegas. Large urban areas such as Las Vegas are often susceptible to large-scale
incidents and emergencies. Las Vegas, a city with a rapidly growing population and a high
number of annual visitors due to its status as a major tourist destination, faces unique threats
that necessitate a level of significant preparedness measures even greater than some other
large urban centers. The city’s vulnerability was tragically highlighted and tested by the October
1, 2017, mass shooting at the Route 91 Harvest Festival.
This incident highlighted the importance of well-coordinated emergency response
systems, particularly in high-risk urban areas like Las Vegas, where multiple agencies and
jurisdictions are pivotal to ensuring the safety of millions of people at any given time. The
grants, primarily from the Federal Emergency Management Agency (FEMA), were intended to
close interoperability and capability gaps, improve coordination among various law
enforcement and emergency agencies, and ensure the city was equipped to handle such crises
effectively. The focus was on building operational coordination and cooperation while
enhancing communication systems and ensuring that first responders had the necessary
equipment and training to respond quickly and effectively to emergencies.
Population Served by the Grant/Program
The population served by these grants is comprised of the entire Las Vegas urban area,
including its residents, tourists, and the broader community. Las Vegas, with a population of
2,231,647, also receives more than 42 million visitors annually, making it a global tourist hub.
The grants also indirectly serve specific demographic groups, including the 30.7% of the
population employed in the tourism sector, as well as attendees of large events and conventions
frequently held in the city. The city’s emergency preparedness initiatives aim to protect the local
population and the millions of visitors who come to Las Vegas each year, given the presence of
hazardous sites nearby, such as the Nevada Test Site, Hoover Dam, and Black Mountain
Industrial Complex, the population served includes those at potential risk from industrial
accidents or other hazards.
Type of Grant Administered in the Case
In light of lessons learned from recent global events, the Las Vegas urban area accessed
funding from a variety of sources, including federal and state funds. The primary funding
streams included FEMA's Homeland Security Grant Program (HSGP), the Emergency
Management Performance Grant (EMPG), the Metropolitan Medical Response System (MMRS),
and Nevada-specific funding through the State Emergency Response Commission (SERC) and
the Local Emergency Planning Committee (LEPC).
Two specific grants of the HSGP were the Urban Area Security Initiative (UASI) and State
Homeland Security Program (SHSP). The UASI specifically targets high-threat, high-density
urban areas like Las Vegas to enhance regional preparedness. The UASI grant is crucial for
funding equipment, training, and exercises that build and sustain capabilities necessary for an
effective response to terrorism and other catastrophic events. SHSP provides financial
assistance to support the implementation of state homeland security strategies, with an
emphasis on closing capability gaps identified through the Threat and Hazard Identification and
Risk Assessment process.
The EMPG grant supports the building and sustaining of the emergency management
system at the state and local levels, ensuring that states and local agencies have the necessary
resources to prepare for, mitigate, respond to, and recover from emergencies. The grants are
characterized by their focus on multi-agency, multi-jurisdictional coordination, preparedness
for complex incidents, and the enhancement of specific capabilities like communication
systems, protective equipment for first responders, and public education on emergency
preparedness.
Outcomes of the Case
While it would be grossly inappropriate to categorize the tragic events of that fateful
October day as positive, the outcomes of the grant programs were largely positive, drawing on
the conclusion that significant improvements in the Las Vegas area’s preparedness and
responsive capabilities were demonstrated in that event. The investments made were proven
effective, as seen through the following key outcomes:
Improved Operational Coordination: The Multi-Agency Coordination Center
(MACC) was successfully activated during the October 1 mass shooting incident.
This allowed coordinated efforts across multiple jurisdictions. This was a direct
result of investments in training and infrastructure funded by the various grants.
Incident Command System Training: The training of all local agency employees of
many varied disciplines in ICS proved useful during the incidents as all agencies
operated with a shared understanding of emergency management technology,
techniques thus eliminating confusion and delay in responses.
Enhanced Protective Equipment: First responders were equipped with ballistic
personal protective equipment (PPE), which allowed Fire and EMS personnel to
access the warm zone of the incident and begin life-saving measures more
quickly than would have been possible otherwise. Without such vital PPE, Fire
and EMS personnel would have been forced to stage well outside of the warm
zone, making the triage and treatment of the wounded significantly delayed,
which undoubtedly would have cost many more lives than the already
staggeringly high casualties there were.
Family Assistance Center and Training: the opening of the FAC, a result of grant-
funded training and tabletop exercise, helped to create plans that were used in
the aftermath of the event, where officials began to immediately provide
survivors and families information regarding the status and location of their
loved ones. Additionally, officials at the FAC conducted next-of-kin investigations
along with providing a variety of other victim-focused services, ultimately
assisting 4,356 individuals.
Effective Use of Technology: The Southern Nevada Counter Terrorism Center
(SNCTC) and its Fusion Watch desk were instrumental in real-time intelligence
gathering and response coordination during the incident. Grant-funded
technology and equipment significantly bolstered the center’s capabilities. Radio
equipment was purchased with grant funds, which built the Metro Medical
Response System. One key highlight of the communication system was the
foresight to implement a dedicated communication channel for medical staff on
the scene to coordinate with hospitals to decrease morbidity and mortality.
Increased Public Safety Training and Preparedness: Programs like the Community
Emergency Response Team (CERT) provide critical training to volunteers in skills
such as fire safety, search and rescue, disaster medical operations, and team
organization. This training and awareness directly contributed to the
community’s overall preparedness and response during the incident.
Despite these successes, the case study also highlights some challenges, such as
inconsistent UASI funding, which made it difficult to maintain and expand capabilities.
However, lessons from the incident have led to better mass casualty response planning,
improved patient tracking systems, and more widespread use of ballistic PPE for first
responders. These lessons were not only learned for the Las Vegas urban area but also
jurisdictions worldwide.
Additional Information
While the case study gives a thorough overview of the grant programs and their impact
on emergency preparedness in Las Vegas, more information could deepen understanding:
Long-Term Impact: It would be valuable to have detailed data on the lasting effects of
the grant-funded programs, especially on improving emergency preparedness.
Cost-Benefit: Analyzing the cost-effectiveness of these grants and comparing outcomes
to the financial investment would help assess their efficiency.
Community Engagement: Insights into how these programs have educated and involved
the public beyond the CERT program would highlight their broader impact.
Comparative Analysis: Comparing Las Vegas’s programs with other urban areas that
received similar grants could provide a benchmark for success.
Conclusion
The case study on the Las Vegas urban area demonstrates the critical role that federal
and state grants play in enhancing emergency preparedness and response capabilities beyond
what the local agencies could fund on their own. The successful management of the October 1,
2017 mass shooting incident is a testament to the effectiveness of these programs, which have
