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Two days after the rescue efforts ended and the full-scale recovery and cleanup began, Michael Burton, executive deputy commissioner of the Design and Construction Department, warned one of the companies in a letter that the city would fire individual workers or companies “if the highest level of efficiency is not maintained.”

Danger in the Air

Much has been said and written about Christie Whitman, then the Environmental Protection Agency administrator, and her statement a week after the towers fell that the air in New York was safe. But even then, the air above the debris pile was known to be more dangerous than the air in the rest of Lower Manhattan.

In those first days after 9/11, Mr. Giuliani made it clear that workers needed to wear masks at ground zero because it was more contaminated than elsewhere. But as time went on, and workers failed to heed the warnings, the record indicates that his administration sometimes said otherwise.

Even after the National Institute of Occupational Safety and Health found that workers were “unnecessarily exposed” to health hazards, officials played down the danger.

Robert Adams, director of environmental health and safety services at the Design and Construction Department, told the City Council’s environmental committee in early November that even unprotected ground zero workers would not experience long-term health risks. In an interview last week, Mr. Adams, now working for a consulting firm in Princeton, N.J., said that he still believed that based on the information available at the time, the right decisions were made.

Whatever they were saying publicly about the safety of the air, Mr. Giuliani and his staff were privately worried. A memo to Deputy Mayor Robert M. Harding from his assistant in early October said that the city faced as many as 10,000 liability claims connected to 9/11, “including toxic tort cases that might arise in the next few decades.”

The warning did not lead to a crackdown on workers without respirators. Rather, a month later, Mr. Giuliani wrote to members of the city’s Congressional delegation urging passage of a bill that capped the city’s liability at $350 million. And two years after Mr. Giuliani left office, FEMA appropriated $1 billion for a special insurance company to defend the city against 9/11 lawsuits.

Some experts and critics have suggested that the only way the respirator rules could have been enforced after rescue operations ended would have been to temporarily shut down the site and lay down the law: No respirator, no work. And they say the only person who could have done so was Mr. Giuliani.

“They should have backed off on the night shift, when a very limited amount of work could be done,” said Charles Blaich, who was in charge of safety for the Fire Department at the time of the attack.

Mr. Blaich, who is now retired, said he considers Mr. Giuliani’s unwillingness to enforce respirator rules a failure of judgment, not a mistake, because no one had ever faced such a crisis.

“ ‘Mistake’ indicates there was a known procedure that wasn’t followed,” he said. “There just was not that much logistics in place to support another course of action.”

Help for the Sick

Millions of Americans saw television news reports of Mr. Giuliani attending firefighters’ funerals. They heard him call those who died heroes.

But they have not heard him say much about the medical problems of ground zero workers. Although he pushed Congress to protect the city from lawsuits, he has generally stood on the sidelines as New York’s delegation tried to get the federal government to pay for the treatment that sick workers need.

“I don’t think I ever saw the mayor at a 9/11 hearing on health,” said Representative Jerrold Nadler, a Democrat whose district includes parts of Brooklyn and Manhattan. Mr. Nadler, who was one of the first to criticize the city’s handling of ground zero, said it never occurred to him or to other Democrats in Congress to ask for Mr. Giuliani’s help to influence the Republican White House.

John T. Odermatt, who was Mr. Giuliani’s deputy at the city’s Office of Emergency Management, said that Mr. Giuliani had to make many decisions every day during the crisis, but the priority always was “clearly more about people than getting the site open.”

Mr. Odermatt, now speaking on behalf of Mr. Giuliani’s presidential campaign, said he did not know whether the former mayor had ever lobbied Congress on behalf of sick workers, and the campaign did not provide any information about Mr. Giuliani’s working to secure federal funds for treatment of ground zero responders. Many of those people are now sick, and they are angry.

Lee Clarke, director of health and safety for District Council 37, the city’s largest public employees’ union, said Mr. Giuliani used “very, very poor judgment” in rushing to reopen the financial district without watching out for the workers who cheered him at ground zero.

Ms. Clarke said that if those workers found themselves in a meeting with Mr. Giuliani today, “a number of them would be standing up, wanting a piece of Rudy.”