Combating Terrorism: Interagency Framework and Agency Programs to
Address the Overseas Threat (23-MAY-03, GAO-03-165).
Coordination of federal programs to combat terrorism overseas
became even more critical as a result of the terrorist attacks
against the United States on September 11, 2001. In response to
these attacks, the federal government has taken unprecedented
political, diplomatic, legal, law enforcement, financial,
military, and intelligence actions to combat terrorism abroad.
Among these actions is the publication of a series of new
national strategies to combat terrorism. Congress asked that we
develop baseline information identifying and describing federal
programs and activities to combat terrorism overseas. As agreed
with Congresses offices, this report describes the interagency
framework and policies for planning and coordinating federal
efforts to counter international terrorism. It identifies the
relationships between and among the new national strategies to
combat terrorism. It also describes the federal programs and
activities governmentwide to detect and prevent terrorism,
disrupt and destroy terrorist organizations, and respond to
terrorist incidents overseas. Finally, it provides detailed
matrices of selected departments' programs and activities to
combat terrorism overseas. We briefed your staffs previously on
the preliminary results of our work and, at your request, issued
an interim report on Combating Terrorism: Department of State
Programs to Combat Terrorism Abroad. This report contains the
final results of our review.
-------------------------Indexing Terms-------------------------
REPORTNUM: GAO-03-165
ACCNO: A06978
TITLE: Combating Terrorism: Interagency Framework and Agency
Programs to Address the Overseas Threat
DATE: 05/23/2003
SUBJECT: Armed forces abroad
Combat readiness
Terrorism
******************************************************************
** This file contains an ASCII representation of the text of a **
** GAO Product. **
** **
** No attempt has been made to display graphic images, although **
** figure captions are reproduced. Tables are included, but **
** may not resemble those in the printed version. **
** **
** Please see the PDF (Portable Document Format) file, when **
** available, for a complete electronic file of the printed **
** document's contents. **
** **
******************************************************************
GAO-03-165
A
Report to Congressional Requesters
May 2003 COMBATING TERRORISM Interagency Framework and Agency Programs to
Address the Overseas Threat
GAO- 03- 165
Transmittal Letter 1 Executive Summary 4
Purpose 4 Background 4 Results in Brief 5 GAO*s Analysis 6 Agency Comments
and Our Evaluation 10
Chapter 1 12
Introduction: Definitions for Terrorism and Combating Terrorism 12
The Threat of Terrorism Overseas 15 Terrorism Overseas
The Federal Government*s Role and Resources for Combating and the Federal
Terrorism Overseas 30 Government*s Role
Objectives, Scope, and Methodology 34 Chapter 2
38 The Interagency
Policies, Plans, and Legislation 38 Roles and Responsibilities of Key
Federal Agencies 52 Framework for
Interagency Coordination Mechanisms 60 Combating Terrorism
Agency Comments and Our Evaluation 64 Overseas
Chapter 3 66
Federal Efforts to Intelligence Gathering and Analysis Help Detect
Terrorist Activities 66
Detect and Prevent Protecting U. S. Government Facilities and Americans
Abroad 77
Terrorism Public Diplomacy Builds International Support for
U. S. Foreign Policy 89 Visa and Border Controls Are Intended to Prevent
Terrorists and
Their Materials from Entering the United States 91 Coalition Capabilities
Are Enhanced through Bilateral Programs
and Activities 105 Agency Comments and Our Evaluation 127
Chapter 4 128
Federal Efforts to Diplomatic Initiatives Strengthen International
Cooperation 128
Law Enforcement Efforts to Disrupt Terrorist Organizations 135 Disrupt and
Destroy
Identifying and Freezing Terrorists* Financial Assets Disrupts Terrorist
Organizations Terrorist Organizations 145 Military Operations Provide
Means to Destroy Terrorist
Organizations 154 Covert Actions Can Be Used to Disrupt and Destroy
Terrorist
Organizations 168 Agency Comments and Our Evaluation 169
Chapter 5 170
Federal Efforts to Advance Preparations for Terrorist Incidents 170
Response to a Terrorist Incident Overseas 173 Respond to Terrorist
Evaluations in the Aftermath of a Terrorist Incident 182 Incidents
Overseas
Agency Comments and Our Evaluation 183 Appendixes
Appendix I: Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas 184
Appendix II: Matrix of Department of Homeland Security Programs and
Activities to Combat Terrorism Overseas 209
Appendix III: Matrix of Department of Justice Programs and Activities to
Combat Terrorism Overseas 215
Appendix IV: Matrix of Department of State Programs and Activities to
Combat Terrorism Overseas 225
Appendix V: Matrix of Department of the Treasury Programs and Activities
to Combat Terrorism Overseas 239
Appendix VI: United Nations Protocols, Conventions, and Resolutions
Related to Terrori sm 243
Appendix VII: Organizations Visited or Contacted 249
Appendix VIII: Comments from the Department of Defense 253
Appendix IX: Comments from the U. S. Agency for International Development
254
Appendix X: GAO Contacts and Staff Acknowledgments 255
Related GAO Products 256 Tables Table 1: Fiscal Year 2004 President*s
Request for Funding to
Combat Terrorism Domestically and Overseas (Gross Budget Authority) 32
Table 2: National Strategies Related to Combating Terrorism 43 Table 3:
Goals and Objectives in the National Strategy for
Combating Terrorism 49 Table 4: NSC- Sponsored Interagency Working Groups
Under the
Counterterrorism Security Group to Coordinate Efforts to Combat Terrorism
Overseas 61 Table 5: Selected Members of the Interagency Intelligence
Committee on Terrorism 75
Table 6: U. S. Nonproliferation Assistance Programs 117 Table 7: Federal
Agencies* Roles in Investigating Terrorist- Related
Incidents Overseas 137 Table 8: Reported Extraditions and Renditions of
Terrorists to the
United States, 1987- 2001 140 Table 9: Significant Military Contributions
by Selected Coalition
Partners in and around Afghanistan in Support of Operation Enduring
Freedom 164 Table 10: Department of Defense Programs and Activities to
Combat
Terrorism Overseas 184 Table 11: Department of Homeland Security Programs
and Activities
to Combat Terrorism Overseas 209 Table 12: Department of Justice Programs
and Activities to Combat Terrorism Overseas 215
Table 13: Department of State Programs and Activities to Combat Terrorism
Overseas 225 Table 14: Department of the Treasury Programs and Activities
to
Combat Terrorism Overseas 239 Table 15: UN Conventions and Protocols
Related to Terrorism 243 Table 16: UN Security Council Resolutions Related
to Terrorism 244 Table 17: UN General Assembly Resolutions Related to
Terrorism 246
Figures Figure 1: The Pentagon in Flames Moments after International
Terrorists Crash a Hijacked Aircraft into the Building on
September 11, 2001 14 Figure 2: Total International Terrorist Attacks,
1981- 2001 17
Figure 3: Types of International Terrorist Attacks Against Americans by
Percentage, 1988- 2001 18 Figure 4: Terrorist Attacks Against U. S.
Targets during 2001 by
Type of Targets Attacked 20 Figure 5: Terrorist Attacks Against U. S.
Targets during 2001 by
Region 21 Figure 6: Aftermath of the al Qaeda Terrorist Bombing of the U.
S.
Embassy in Dar es- Salaam, Tanzania, in August 1998 23 Figure 7:
Relationships Between and Among National Strategies
Related to Combating Terrorism Overseas 47 Figure 8: Host Nation Police
Use Buses to Cordon off a U. S.
Embassy during a Heightened Threat Period 81 Figure 9: 2nd Company,
Georgian Commando Battalion, Perform a
Combat Off Load With Members of the U. S. Army*s 10th Special Forces Group
(Airborne) at a Training Range at Krtsanisi, Republic of Georgia 124
Figure 10: U. S. Special Forces Soldier Shows a Filipino Soldier How
to Adjust the Sights on His M- 16 Rifle during Marksmanship Training in
Tipo- Tipo Town, Basilan Island, Philippines 125 Figure 11: UN Security
Council Unanimously Adopts Resolution
1373, Calling for Wide- Ranging International Cooperation to Combat
Terrorism 132 Figure 12: Air Force B- 52H Bomber Drops a Load of M117 750
lb.
Bombs 157 Figure 13: U. S. Special Forces Troops Riding Horseback in
Afghanistan With Members of the Northern Alliance during Operation
Enduring Freedom 158 Figure 14: British Troops Prepare to Board an Oil
Tanker as Part of the Coalition*s Maritime Interception Operations in the
Arabian Sea 160 Figure 15: Camp X- Ray Used as a Temporary Holding
Facility for
Detainees Held at U. S. Naval Air Station Guantanamo Bay, Cuba 162 Figure
16: NATO Member France Provided Six Mirage 2000 Aircraft
to Fly Reconnaissance Missions in Support of Operation Enduring Freedom
166 Figure 17: USS Cole Damaged by a Terrorist Bomb Explosion While
Refueling at the Port of Aden, Yemen 176 Figure 18: Federal Response Teams
That Could Respond to a
Weapons of Mass Destruction Incident Overseas 181
Abbreviations
ATF Bureau of Alcohol, Tobacco, Firearms and Explosives CIA Central
Intelligence Agency CLASS Consular Lookout and Support System DARPA
Defense Advanced Research Projects Agency DOD Department of Defense DOE
Department of Energy FARC Fuerzas Armadas Revolucionarias de Colombia
(Revolutionary Armed Forces of Colombia) FBI Federal Bureau of
Investigation FEMA Federal Emergency Management Agency FEST Foreign
Emergency Support Team FinCEN Financial Crimes Enforcement Network FISA
Foreign Intelligence Surveillance Act FLETC Federal Law Enforcement
Training Center G- 8 Group of Eight GAO U. S. General Accounting Office
ICITAP International Criminal Investigative Training
Assistance Program ILEA International Law Enforcement Academy INS
Immigration and Naturalization Service INTERPOL International Police
Organization NATO North Atlantic Treaty Organization NSC National Security
Council OMB Office of Management and Budget OPDAT Overseas Prosecutorial
Development, Assistance and Training
USAID U. S. Agency for International Development USA PATRIOT Uniting and
Strengthening America by Providing Appropriate Tools Required to Intercept
and Obstruct Terrorism
PDD Presidential Decision Directive RDT& E research, development, test,
and evaluation UN United Nations WMD weapons of mass destruction
This is a work of the U. S. Government and is not subject to copyright
protection in the United States. It may be reproduced and distributed in
its entirety without further permission from GAO. It may contain
copyrighted graphics, images or other materials. Permission from the
copyright holder may be necessary should you wish to reproduce copyrighted
materials separately from GAO*s product.
May 23, 2003 Trans Let mi er t al t t The Honorable Henry J. Hyde Chairman
The Honorable Tom Lantos Ranking Member Committee on International
Relations House of Representatives
The Honorable Christopher Shays Chairman Subcommittee on National
Security, Emerging Threats, and International Relations Committee on
Government Reform House of Representatives Coordination of federal
programs to combat terrorism overseas became even more critical as a
result of the terrorist attacks against the United States on September 11,
2001. In response to these attacks, the federal
government has taken unprecedented political, diplomatic, legal, law
enforcement, financial, military, and intelligence actions to combat
terrorism abroad. Among these actions is the publication of a series of
new national strategies to combat terrorism.
You asked that we develop baseline information identifying and describing
federal programs and activities to combat terrorism overseas. As agreed
with your offices, this report describes the interagency framework and
policies for planning and coordinating federal efforts to counter
international terrorism. It identifies the relationships between and among
the new national strategies to combat terrorism. It also describes the
federal programs and activities governmentwide to detect and prevent
terrorism, disrupt and destroy terrorist organizations, and respond to
terrorist incidents overseas. Finally, it provides detailed matrices of
selected departments* programs and activities to combat terrorism
overseas. We briefed your staffs previously on the preliminary results of
our work and, at your request, issued an interim report on Combating
Terrorism: Department of State Programs to Combat Terrorism Abroad (GAO-
02- 1021, Sept. 6, 2002). This report contains the final results of
our review. The scope of this report was on combating terrorism overseas
and did not include a comprehensive review of homeland security efforts
within the
United States or federal agencies* efforts to combat terrorism
domestically. However, for this report, we did perform limited work on
border security, where homeland security and overseas efforts overlap.
Also, we included certain efforts to combat terrorism overseas that
actually occur within the
United States, such as interagency coordination, intelligence analysis,
and law enforcement investigations and prosecutions. Further, our analysis
was performed before the Department of Homeland Security began operations
in January 2003. Thus, many of the agencies, bureaus, offices, and federal
response teams discussed in this report had not yet transferred to the new
department from the Departments of Health and Human Services, Justice,
Transportation, and the Treasury.
Because of the large number of federal agencies and wide spectrum of
efforts involved in combating terrorism overseas, this *landscape* report
describes the governmentwide framework and programs and activities rather
than evaluating their effectiveness. Therefore, this report contains no
recommendations. We recognize that the effectiveness of the new strategies
and related programs that we describe will only be determined through time
as they are implemented. Some of our recent work on combating terrorism
indicates there are many implementation challenges and we have designated
some of these programs as high risk. Where we have done evaluative work on
relevant programs, we have identified the
appropriate GAO products and summarized their results in footnotes. In
addition, we include a comprehensive list of related GAO products at the
back of this report.
We are sending copies of this report to other interested congressional
committees. We also are sending copies to the Secretaries of Defense,
Energy, Homeland Security, State, Transportation, and the Treasury; and
the Attorney General. In addition, we are sending copies to the Director,
U. S. Agency for International Development; the Director of Central
Intelligence; the Assistant to the President for National Security
Affairs; the Director, Office of Homeland Security; and the Director,
Office of Management and Budget. We will make copies available to other
interested parties upon request. This report also will be available on
GAO*s Web site at http:// www. gao. gov.
If you or your offices have any questions about matters discussed in this
report, please contact me at (202) 512- 6020 or by e- mail at deckerrj@
gao. gov. Contacts and key contributors are listed in appendix X.
Raymond J. Decker, Director Defense Capabilities and Management
Executive Summary Purpose In response to the terrorist attacks of
September 11, 2001, the federal
government has taken unprecedented political, diplomatic, legal, law
enforcement, financial, intelligence, and military actions to combat
terrorism abroad. Combating terrorism is now at the top of the national
security agenda, and many changes have occurred in the government*s
organization and strategies related to these matters. GAO was requested to
produce this report to assist congressional committees with their
responsibilities to oversee federal programs to combat terrorism overseas.
Specifically, this report describes the interagency framework for
planning, executing, and coordinating related federal efforts. In
addition, this report identifies and describes the programs and activities
to detect and prevent terrorist attacks, disrupt and destroy terrorist
organizations, and respond to terrorist incidents.
Given the number of federal agencies and the wide spectrum of activities
involved in combating terrorism overseas, GAO limited its work to
describing the interagency framework and programs and activities and did
not evaluate their effectiveness. While there are several new strategies
to combat terrorism, many of the programs they incorporate are
longstanding. The strategies by themselves, no matter how cohesive and
comprehensive, will not ensure an integrated and effective set of programs
to combat terrorism overseas. The ability to ensure these things will be
determined through time as the strategies and programs are implemented.
Some of GAO*s recent work on combating terrorism demonstrates some of the
challenges ahead.
Background Although agencies have slightly different definitions,
terrorism generally is defined as politically motivated violence to coerce
a government or civilian
population. Efforts to combat terrorism are further broken down into
homeland security activities (those that occur domestically) and combating
terrorism overseas (those that occur abroad)* the topic of this report.
According to the Central Intelligence Agency, the threat of terrorist
attacks against U. S. personnel, facilities, and interests overseas is
greater now than ever before. Terrorists attacking the United States
employ a variety of tactics, target a number of different interests, and
strike in regions throughout the world. The federal government*s role in
combating terrorism overseas includes political, diplomatic, legal, law
enforcement, financial, military, and intelligence efforts. Funding for
combating terrorism overseas has increased about 133 percent, growing from
$4. 9 billion in fiscal year 2001 to $11.4 billion requested in fiscal
year 2004.
In addition, DOD has spent about $30 billion on military operations
overseas against terrorism in the period roughly equivalent to fiscal year
2002.
Results in Brief Combating terrorism overseas falls under an interagency
framework of plans, agency roles, and interagency coordination mechanisms.
In general,
the National Security Council manages this interagency framework. The
President, National Security Council, and federal agencies have published
a series of related directives and new national strategies to guide
federal efforts. To implement the directives and strategies, various
federal agencies are assigned key roles and responsibilities based on
their core missions.
Given the number of agencies involved, there are also a number of
interagency mechanisms to coordinate across agencies in both Washington,
D. C., and overseas. Within this framework, efforts to combat terrorism
overseas can generally be divided into programs and activities to (1)
detect and prevent terrorism, (2) disrupt and destroy terrorist
organizations, and (3) respond to terrorist incidents.
Efforts to detect and prevent terrorism include activities to gather
intelligence on terrorist threats and organizations, protect facilities
and persons overseas, impact foreign opinion through public diplomacy,
prevent terrorists and their materials from entering the United States,
and improve other countries* capabilities. Efforts to disrupt and
destroy terrorist organizations can occur in many
ways, to include diplomacy in both bilateral and multilateral forums; law
enforcement efforts to investigate, arrest, and prosecute terrorists;
financial and related measures to eliminate terrorist support; military
actions to destroy terrorists and regimes that harbor them; and covert
operations by intelligence agencies.
Efforts to respond to an international terrorist incident consist of
advance preparations, managing the crisis and consequences of an attack,
and reviewing incidents to learn lessons and prevent or mitigate future
attacks.
GAO is making no recommendations in this report.
GAO*s Analysis The Interagency Framework
The National Security Council and its Director for Combating Terrorism for
Combating Terrorism
develop and manage the interagency framework for combating terrorism
overseas. This framework consists of presidential directives, national
strategies, and related guidance. For example, the National Security
Council coordinated the overall National Security Strategy of the United
States of America, and the Director for Combating Terrorism coordinated
the National Strategy for Combating Terrorism. There are other
nationallevel strategies related to combating terrorism. Examples of these
include the National Strategy for Homeland Security and the National
Strategy to Combat Weapons of Mass Destruction. The various strategies
were developed for specific and separate purposes. There is a general
hierarchy among these overlapping strategies.
Another key element in the interagency framework for combating terrorism
overseas is the specific roles played by federal organizations and
agencies. Some play a coordinating role, others serve a lead role in
specific areas, and many others have support roles for specific
activities. Some individual agencies have positions designated within them
to lead their
agencies* terrorism- related programs. In addition, individual agencies
have their own strategic plans or develop interagency plans and related
guidance for specific functions. For example, the Department of Justice*s
Strategic Plan for Fiscal Years 2001- 2006 and the Department of State*s
2002 Annual Performance Plan provide department- specific plans and goals
related to terrorism. The interagency framework also consists of
coordinating mechanisms and groups to implement the functions and
activities among all the federal agencies involved. In Washington, D. C.,
the National Security Council plays a major coordinating role by
sponsoring a policy coordinating committee called the Counterterrorism
Security Group that has several subordinate working groups on such topics
as interagency exercises and assistance to other countries. At U. S.
embassies, there are interagency teams that meet to coordinate bilateral
efforts to combat terrorism. Similarly, regional
military commands have interagency coordination groups that coordinate
military operations with non- military tools to combat terrorism.
Efforts to Detect and Gathering and analyzing intelligence outside of the
United States are the
Prevent Terrorism major activities to detect and prevent terrorist
activities overseas and
generally are led by the Central Intelligence Agency. Under the overall
leadership of that agency, U. S. intelligence agencies gather information
on terrorist organizations, monitor terrorist threats, and share
information with other nations. The Departments of State, Justice, and
Defense collect
and analyze intelligence through surveillance programs and liaisons with
foreign police. These intelligence activities support other preventative
efforts, such as protecting U. S. facilities and Americans overseas, and
visa and border controls.
Protecting U. S. facilities and Americans overseas is a major part of
preventing terrorism and is generally led by the Department of State. To
protect U. S. facilities and personnel abroad, State has programs that
include facility security, local guard forces, armored vehicles for
embassy personnel, and Marine Guards to protect sensitive information. The
Department of Defense has separate programs to protect its military forces
against terrorist attacks. For American citizens traveling and living
abroad, the State Department issues public travel warnings and public
announcements and operates warning systems to convey terrorist- related
information. State also uses overseas advisory councils* voluntary
partnerships between State and U. S. businesses* to exchange threat
information with private companies.
Improving the image of the United States to support U. S. foreign policy
is another activity to prevent terrorism. For example, in an attempt to
reduce possible negative perceptions of the United States and foster
greater
understanding of U. S. policy in key international audiences, State
conducts public diplomacy through various media. Similarly, the
Broadcasting Board of Governors conducts international broadcasts to
worldwide audiences to
help support U. S. strategic interests. Keeping terrorists and their
materials out of the United States also helps to prevent terrorism. The
State Department has a role in preventing terrorists from entering the
United States through its visa programs and related efforts to screen out
terrorists. Agencies that have recently transferred from various
departments to the Department of Homeland Security also have a role in
keeping terrorists and their contraband out of the United States. These
include the former Immigration and Naturalization Service, the U. S.
Border Patrol, the former U. S. Customs Service, and the U. S. Coast
Guard, which monitor the border at and between ports of entry.
Improving other countries* capabilities is another part of preventing
terrorism and is generally led by the Department of State. The department
has overall leadership of bilateral relations, including programs to
assist foreign nations. Such programs consist of training, equipment, and
other assistance to improve foreign police and military capabilities.
While the State Department has the overall lead, many of these assistance
programs are implemented in conjunction with the Departments of Defense,
Homeland Security, Justice, Energy, and the Treasury. One example is the
Antiterrorism Assistance program, which is managed by State, but the
training might be delivered by other agencies, such as the Federal Bureau
of Investigation or the U. S. Secret Service. These assistance efforts not
only help to prevent terrorist attacks, they can improve the capabilities
of other
countries to disrupt and destroy terrorists and to respond to terrorist
incidents.
Efforts to Disrupt and Diplomacy and cooperation with other countries, led
by the Department of Destroy Terrorist
State, enables that department and other federal agencies to undertake a
Organizations
number of efforts to combat terrorism. State manages bilateral and
multilateral relationships to leverage opportunities for cooperation among
traditional and emerging allies. At the bilateral level, State helps
orchestrate other nations* support and assistance for U. S. law
enforcement activities, financial operations, and military actions against
terrorists. At the multilateral level, State leads U. S. efforts in the
United Nations and in other international forums to combat terrorism. For
example, State has introduced and coordinated the passage of several
related United Nations Security Council Resolutions to combat terrorism.
Law enforcement efforts are also a key activity to disrupt and destroy
terrorist organizations and generally are led by the Department of Justice
and its Federal Bureau of Investigation. These include efforts, in
conjunction with other nations, to investigate terrorist incidents, make
arrests, arrange for the return of suspects to the United States, and
prosecute alleged terrorists. In such investigations, the Departments of
State and the Treasury and other law enforcement agencies support the
Department of Justice.
Taking action against the financial structure of terrorist organizations
also plays a key role in disrupting and destroying the organizations and
preventing future attacks. Numerous components of the Departments of
State, the Treasury, Homeland Security, Justice, and other agencies
participate in efforts to combat terrorist financing. Activities include
blocking or freezing assets of designated individuals and organizations
linked to terrorism and conducting investigations aimed at identifying,
tracing, and freezing assets tied to terrorist organizations.
Military operations are important in disrupting and destroying terrorist
organizations and generally are led by the Department of Defense with
support at the multilateral level provided by the Department of State.
Operations in Afghanistan bluntly illustrate the devastating nature of
military efforts to attack terrorist organizations. Many of the military
operations are conducted or coordinated with foreign militaries.
Another means of disrupting and destroying terrorists is to strike
secretly at terrorists through covert action, approved by the President
and led by the Central Intelligence Agency.
Efforts to Respond to The federal government takes many advance
preparations in anticipation Terrorist Incidents
of a terrorist attack. For example, each diplomatic post has an Emergency
Action Committee and Emergency Action Plan. The committees are required to
exercise these plans periodically. To improve the governmentwide responses
to a terrorist incident, a number of federal agencies participate in an
interagency exercise program.
Federal efforts to respond to terrorist incidents are organized along a
lead agency concept. The State Department is the lead agency for
responding to the crisis and managing the consequences of a terrorist
incident overseas. In this role, State is responsible for marshaling all
federal assets necessary to respond. The U. S. ambassador would be the on-
scene coordinator for the U. S. response in the foreign nation, as was
done, for example, after the U. S. embassy bombing in Nairobi, Kenya. The
State Department, with the concurrence of the National Security Council,
can lead a rapidly deployable interagency advisory group called the
Foreign Emergency Support Team.
As part of the response to an incident, the Department of Justice, through
the Federal Bureau of Investigation, would lead U. S. law enforcement
investigations in conjunction with local police in the immediate aftermath
of a terrorist incident overseas. Other federal law enforcement agencies*
such as the Bureau of Alcohol, Tobacco, Firearms and Explosives and the
State Department*s Bureau of Diplomatic Security* have expertise to assist
in investigations at the scene of an overseas attack.
Depending on the nature of the threat or incident, other federal agencies
may be called upon to support State in managing the consequences of a
terrorist attack. For example, the Department of State may request that
the Department of Defense provide military support as part of the U. S.
government*s efforts to assist in mitigating the consequences of a
terrorist incident overseas. The Department of State also may request U.
S. military support for the evacuation of embassy staff and other
Americans, should that be necessary in the aftermath of a terrorist
incident. Many of State Department*s efforts for managing the consequences
of a terrorist attack have focused on incidents involving weapons of mass
destruction* those involving chemical, biological, radiological, and
nuclear materials. Several federal agencies could assist the State
Department in responding to
such an incident. For example, the Department of Energy has a Nuclear
Emergency Search Team to provide technical expertise in resolving a
nuclear or radiological terrorist incident.
After a terrorist incident overseas, the Departments of State and Defense
generally conduct reviews of the incident, which identify actions to
prevent or mitigate future attacks. Examples of these include State*s
Accountability Review Boards for the 1998 bombings of two U. S. embassies
in East Africa and Defense*s Task Force on the 1996 bombing of the al-
Khobar Towers
military housing facility in Saudi Arabia. Agency Comments and
GAO provided a draft of the report to several federal agencies in March
Our Evaluation
2003 for their review and comment. Such agencies included the Executive
Office of the President (including the National Security Council, the
Office of Homeland Security, and the Office of Management and Budget); the
Departments of Defense, Energy, Homeland Security, Justice, State,
Transportation, and the Treasury; the Central Intelligence Agency; and the
U. S. Agency for International Development.
The Department of Defense and the U. S. Agency for International
Development provided written comments on a draft of this report. These
comments generally agreed with the accuracy of the report and they are
reproduced in appendixes VIII and IX, respectively. In addition, these
agencies provided technical comments, and we made revisions, as
appropriate. We also received technical comments from the Office of
Management and Budget; the Departments of Justice and State; Bureau of
Alcohol, Tobacco, Firearms and Explosives; the U. S. Secret Service; and
the Bureau for Immigration and Customs Enforcement. We made changes, as
appropriate, based upon these written and oral technical comments.
Our draft report reflected efforts to combat terrorism overseas just prior
to the transfer of certain agencies and functions to the new Department of
Homeland Security in March 2003. Therefore, many of the technical comments
concerned the creation of the new department and the transfer of these
agencies and functions from other departments into the Department of
Homeland Security. The Departments of Energy, Homeland Security,
Transportation, and the Treasury and the CIA had no comments on a draft of
this report.
Introduction: Terrorism Overseas and the
Chapt 1 er Federal Government*s Role Terrorism generally is defined as
politically motivated violence to coerce a government or civilian
population. Within that definition, there is domestic terrorism and
international terrorism, depending on the origin of terrorist groups,
where they launch their attacks, and who their victims are. Efforts to
combat terrorism are further broken down into homeland security activities
(those that occur domestically) and combating terrorism overseas (those
that occur abroad). 1 According to the Central Intelligence Agency (CIA),
the threat of terrorist attacks against U. S. personnel, facilities, and
interests overseas is greater now than ever before. Terrorists capable of
attacking the United States can employ a variety of tactics, can hit a
number of different targets, and can strike in regions throughout the
world. Terrorism overseas is aggravated by a series of interrelated
factors and trends, such as technological advances and alliances with
international crime. The federal government*s role in combating terrorism
overseas includes political, diplomatic, legal, law enforcement,
financial, military, and intelligence efforts. Immediately after the 2001
terrorist attacks, the
Congress passed and the President signed into law an emergency
supplemental appropriation that increased funding to combat terrorism
overseas by at least $2 billion in fiscal year 2002. Funding for combating
terrorism overseas has increased about 133 percent, growing from $4. 9
billion in fiscal year 2001 to $11.4 billion requested in fiscal year
2004. In addition, the Department of Defense (DOD) has spent about $30
billion on military operations against terrorism in the period roughly
equivalent to fiscal year 2002.
Definitions for *Terrorism* generally is defined as politically motivated
violence to coerce Terrorism and
a government or civilian population. However, no single definition of
terrorism has gained universal acceptance by the U. S. government and
Combating Terrorism
federal agencies* definitions of terrorism vary somewhat based on their
functional roles and missions. For example, the Department of State and
the CIA define terrorism as *premeditated, politically motivated violence
perpetrated against noncombatant targets by sub- national groups or
1 In this report, we refer to programs outside of the United States as
combating terrorism
overseas. This term is consistent with how the Executive Office of the
President defines terrorism- related programs to distinguish them from
programs inside the United States* also known as homeland security
programs. For the purposes of this report, we use the terms *overseas* and
*abroad* interchangeably to refer to programs and activities that occur
outside of the United States.
clandestine agents.* 2 The Federal Bureau of Investigation (FBI) defines
it more broadly as *the unlawful use of force and violence against persons
or property to intimidate or coerce a government, the civilian population,
or any segment thereof, in furtherance of political or social objectives.*
3 The FBI definition reflects its mission, identifying a terrorist
incident as a violation of the criminal laws of the United States and a
suspected terrorist would, therefore, be subject to arrest and
prosecution. Finally, DOD defines terrorism as *the calculated use of
violence or the threat of violence to inculcate fear; intended to coerce
or try to intimidate governments or societies in the pursuit of goals that
are generally political, religious, or
ideological.* 4 DOD*s definition of terrorism subsumes both definitions
used by the Department of State and the FBI. This definition was carefully
crafted to distinguish between terrorism and other kinds of violence.
Within the definition of terrorism, there is *domestic terrorism* and
*international terrorism,* depending on the origin of terrorist groups,
where they launch their attacks, and who their victims are. The FBI
defines domestic terrorism as the unlawful use, or threatened use, of
force or violence by a terrorist group or individual based and operating
entirely within the United States or its territories without foreign
direction. The 1995 bombing of the Alfred P. Murrah Federal Building in
Oklahoma City, for example, was an act of domestic terrorism. The State
Department and the CIA define international terrorism as terrorism
involving citizens or the territory of more than one country.
International terrorist acts can occur either inside or outside of the
United States and may transcend national boundaries in terms of the means
by which they are accomplished, the persons they intend to coerce or
intimidate, or the locale in which the
perpetrators operate or seek asylum. The 2001 coordinated terrorist
attacks against the World Trade Center in New York City and the Pentagon
in Washington, D. C., for example, were acts of international terrorism.
Although the attacks occurred within the United States, the perpetrators
came from other countries and many of the World Trade Center victims
2 This definition is derived from 22 U. S. C. S: 2656f( d) (2002).
*Noncombatant* includes not only civilians, but also military personnel
who, at the time of the incident, are unarmed and/ or are not on duty.
State also considers as acts of terrorism attacks on U. S. military
installations or on armed military personnel when a state of military
hostilities does not exist at the incident site, such as terrorist
bombings against U. S. military facilities. Since 1983, the U. S.
government has used this definition for statistical and analytical
purposes.
3 This definition is derived from 28 C. F. R. S: 0.85 (2002). 4 DOD
Directive 2000.12, DOD Antiterrorism/ Force Protection Program, Apr. 13,
1999.
were foreign nationals. Figure 1 shows the aftermath of an international
terrorist attack within the United States.
Figure 1: The Pentagon in Flames Moments after International Terrorists
Crash a Hijacked Aircraft into the Building on September 11, 2001
*Combating terrorism* refers to the full range of policies, strategies,
programs, and activities to counter terrorism both at home and abroad. The
distinction between *homeland security* and *combating terrorism overseas*
is based on where federal efforts to combat terrorism occur. Federal
programs and activities directed against terrorism within the United
States are considered homeland security, which is defined by the
federal government as *a concerted national effort to prevent terrorist
attacks within the United States, reduce America*s vulnerability to
terrorism, and minimize the damage and recover from attacks that do
occur.* 5 This is a new term, used since the terrorist attacks on
September 11, 2001. In contrast, federal programs and activities directed
against terrorism outside of the United States are considered combating
terrorism overseas, which is the subject of this report.
Finally, within the term combating terrorism, some federal agencies make a
further distinction between *antiterrorism* and *counterterrorism* to
describe their programs and activities within the context of their
functional roles and missions. Antiterrorism generally refers to defensive
measures. The Department of State, for example, uses *antiterrorism* in
the context of law enforcement training, border security, critical
infrastructure protection, and embassy security. DOD uses the term
*antiterrorism* to mean the defensive measures, including force
protection, taken to reduce the vulnerability of individuals and property
to terrorist acts. DOD uses the term *counterterrorism* to mean offensive
measures taken to prevent, deter, and respond to terrorism. The FBI,
meanwhile, uses the term *counterterrorism* to refer to the full range of
its activities directed against terrorism, including preventive measures,
incident response, and investigative efforts. Finally, OMB tracks funding
to combat terrorism overseas, but does not include direct military
operations in the figures it reports.
The Threat of International terrorists use a variety of tactics in their
attacks against the
Terrorism Overseas United States. The number of terrorist attacks against
U. S. citizens,
facilities, and interests overseas has declined in recent years, but the
lethality of the attacks has increased. Although terrorists use many
different tactics and methods to attack Americans, bombings are the
predominant type of attack in recent years. While the threat to Americans
varies by region, type of event, and targets attacked, bombing of U. S.
businesses in Latin America constituted the majority of attacks in 2001.
Also, international terrorism is aggravated by a series of interrelated
factors, such as globalization, technological advances, and troubling
trends that include, for example, a shift in terrorists* tactics and the
use of unconventional weapons.
5 See Office of Homeland Security, National Strategy for Homeland
Security, July 16, 2002, p. 2.
Terrorist Organizations Use According to the CIA, the threat of terrorist
attacks against U. S. personnel, Variety of Tactics to Attack
facilities, and interests overseas is greater now than ever before because
of American Targets
the number and types of terrorist organizations, the lethality of
terrorists* Worldwide
tactics, and the ability of terrorists to operate worldwide. Terrorist
organizations that threaten U. S. personnel, facilities, and interests at
home and abroad come primarily from organized groups that have political,
ethnic, or religious agendas; from state sponsors of terrorist
organizations;
and from transnational groups with broader goals. Islamic terrorist
groups, which have become a growing threat in recent years, tend to be
loosely organized, recruit their membership from many different countries,
and obtain support from an informal international network.
Number and Lethality of Attacks Worldwide, the number of international
terrorist attacks has declined in recent years compared to the mid- 1980s.
However, the level of violence and lethality of such attacks have
increased. According to the Department of State, the number of
international terrorist attacks peaked at 666 incidents in 1987 and had
declined to 348 in 2001. Yet, casualties resulting from
international terrorist attacks during 2001 were the highest ever
recorded* 3,572 persons killed and 1,083 injured. Figure 2 shows the total
number of international terrorist attacks over a 21- year period (1981-
2001).
Figure 2: Total International Terrorist Attacks, 1981- 2001
The terrorist attacks against the United States on September 11, 2001,
represented the most lethal international terrorist attack ever. Three of
four separate, but coordinated aircraft hijackings, carried out by the al
Qaeda terrorist network, deliberately destroyed predetermined targets that
represented America*s political, economic, and military strength. (The
fourth hijacked aircraft crashed in Pennsylvania apparently as a result of
the passengers overpowering the terrorists, thus preventing the aircraft
from being used as a missile in the terrorists* plan.) According to
State*s Office of International Information Programs, a total of 3,057
people were killed in these four incidents. 6 Citizens representing 78
different countries perished at the World Trade Center site. These events
clearly demonstrated not only the lethality, but also the global reach of
a terrorist organization 6 This figure includes 2,666 persons killed in
the coordinated terrorist attacks on
September 11, 2001, against the World Trade Center Towers in New York
City, 125 killed in the Pentagon, 92 killed aboard American Airlines
flight 11 that crashed into the North Tower of the World Trade Center, 65
killed aboard United Airlines flight 175 that crashed into the South Tower
of the World Trade Center, 64 killed aboard American Airlines flight 77
that
crashed into the Pentagon, and 45 killed aboard United Airlines flight 93
that crashed in rural Pennsylvania.
beyond any terrorist attack the United States had previously experienced
at home or abroad.
Types of Terrorist Attacks Terrorists employ a wide variety of tactics, to
include violent demonstrations, vandalism, arson, assault, kidnappings,
ambushes, sniper attacks, murder, and attacks with firearms, grenades,
rockets, and bombs. However, bombings are the most common type of attack.
From 1988 to 2001, bombings accounted for 67 percent of all terrorist
attacks against Americans. Figure 3 shows the different types of
international terrorist attacks by percentage that were perpetrated
against Americans over a 14- year period between 1988 and 2001.
Figure 3: Types of International Terrorist Attacks Against Americans by
Percentage, 1988- 2001
Note: "Other" consists of drugging, sabotage, physical harassment, mortar/
landmine, bomb/ rocket hoax, banditry, sit- in, and other/ incidental.
In recent years, the United States and its interests have been the target
of several terrorist bombings overseas, to include the June 1996 truck
bombing of the al- Khobar Towers military housing facility near Dhahran,
Saudi Arabia; the August 1998 truck bombings of the U. S. embassies in Dar
es- Salaam, Tanzania, and in Nairobi, Kenya; and the October 2000 ship
bombing of the guided missile destroyer USS Cole during a refueling stop
in
Aden Harbor, Yemen. In 2001 (the most recent year that data is available),
bombings have become an even more prevalent type of tactic used by
terrorists against U. S. facilities and interests overseas. Of the 219
terrorist attacks against U. S. citizens and facilities overseas during
2001, 207 (or about 95 percent) were carried out by bombing the target.
Type of Targets Attacked Terrorists attack American businesses most
frequently. Of the 228 attacks during 2001 against U. S. targets, 204 (or
more than 89 percent) were against American businesses. U. S. government,
diplomatic, and military targets tend to be more protected and represent
hard targets; American businesses, in contrast, are less protected, making
them soft targets.
Figure 4 shows the number of terrorist attacks against U. S. citizens,
facilities, and interests overseas during 2001 by type of target attacked.
Figure 4: Terrorist Attacks Against U. S. Targets during 2001 by Type of
Targets Attacked
Terrorism Varies by Region, Terrorism* both in the number of attacks and
the nature of the threat* With Most Attacks varies by region. The
overwhelming number of attacks have occurred in Occurring in Latin America
Latin America. Of the 219 terrorist attacks against U. S. citizens and
facilities overseas during 2001, 191 (or 87 percent) were in Latin
America. Figure 5 shows the number of terrorist attacks against U. S.
citizens, facilities, and interests overseas during 2001 by region.
Figure 5: Terrorist Attacks Against U. S. Targets during 2001 by Region
The following sections summarize, by region, the international threat of
terrorism to U. S. citizens and personnel; U. S. business, government, and
military facilities; and U. S. political, economic, and strategic
interests. This information is based on a review of key documents and
interviews with officials in the Departments of State and Defense, U. S.
Central Command, U. S. European Command, U. S. Southern Command, U. S.
Special
Operations Command, and the CIA.
Africa In Africa, terrorism is a persistent and increasing threat to U. S.
and other countries* personnel, facilities, and interests. Most terrorist
attacks in Africa, according to the State Department, stem from internal
civil unrest and spillover from regional wars as African rebel movements
and opposition groups use terrorist tactics to further their political,
social, or economic objectives. For example, insurgent groups have used
terrorist
tactics and attacked civilians in recent years in the Democratic Republic
of the Congo, Liberia, and Sierra Leone. In addition, international
terrorist organizations with Islamic ties, such as al Qaeda and the
Lebanese Hizballah, have established footholds in Africa and exploit the
continent*s permissive operating environment to expand and strengthen
their terrorist networks. The al Qaeda terrorist bombing of the U. S.
embassies in Kenya and Tanzania in August 1998 demonstrated how vulnerable
*lower risk* U. S. diplomatic facilities are on the continent compared
with hardened embassies in the Middle East and elsewhere. Africa*s
ungoverned areas, porous borders, regional conflicts, lax or non- existent
financial systems, and the wide availability of weapons all contribute to
an operating environment where terrorist organizations thrive. Similarly,
terrorist organizations breed and find sanctuary in Africa*s *failed
states,* such as Somalia, or those countries with weak central governments
and poor or nonexistent law enforcement that cannot monitor, let alone
control, the
activities of terrorists and their supporters. Terrorists also are using
the illegal trade in Africa in diamonds both to launder money and to
finance their operations worldwide. 7 Finally, one African nation* Sudan*
has been designated by the State Department as one of seven countries
worldwide that sponsors terrorism. 8 Figure 6 shows the aftermath of the
1998 terrorist bombing of a U. S. embassy in East Africa.
7 For more information on the illegal diamond trade, see U. S. General
Accounting Office,
International Trade: Critical Issues Remain in Deterring Conflict Diamond
Trade, GAO02- 678 (Washington, D. C.: June 14, 2002). We reported that the
nature of diamonds and the operations of the international diamond
industry create opportunities for illicit trade, including trade in
conflict diamonds. We also reported that there are considerable
challenges in establishing a system that will effectively deter this
trade.
Figure 6: Aftermath of the al Qaeda Terrorist Bombing of the U. S. Embassy
in Dar es- Salaam, Tanzania, in August 1998
South Asia South Asia currently represents the primary (but by no means
the only) focus of terrorism directed against the United States. Terrorist
organizations, such as al Qaeda, continue to operate and garner support in
the region. Afghanistan became the first military battleground in the *war
on terrorism* in October 2001. Afghanistan, for example, had been used by
Islamic extremists from around the world as a training ground and base of
operations for their terrorist activities. The al Qaeda leadership used
Afghanistan as a safe haven to recruit and train terrorists, manage
8 State sponsors of terrorism are those countries designated by the
Secretary of State under section 40( d) of the Arms Export Control Act, 22
U. S. C. S: 2780( d). Moreover, each year, under the provisions of section
6( j) of the Export Administration Act of 1979, as amended (50 U. S. C. S:
2405( j)), the Secretary of Commerce, in consultation with the Secretary
of State, provides the Congress with a list of countries that support
international terrorism. The Secretary of State may designate a government
as a state sponsor of terrorism if that government has repeatedly provided
support for acts of international terrorism, invoking economic sanctions.
The seven countries currently on the list are Cuba, Iran, Iraq, Libya,
North Korea, Sudan, and Syria. Various types of sanctions can be imposed
on a government so designated, as discussed in more detail in chapter 4.
worldwide fundraising for the terrorist organization, plan terrorist
operations, and conduct violent anti- American demonstrations to provoke
extremists in other countries to attack U. S. interests worldwide. These
activities culminated in the September 11, 2001, coordinated terrorist
attacks against the United States.
East Asia In East Asia, trafficking in narcotics, persons, and weapons* as
well as organized crime and official corruption* are serious international
crimes that terrorist organizations exploit to finance their operations.
Southeast Asian terrorist organizations that have cells linked to al Qaeda
were discovered in 2001 in Malaysia and Singapore and their activities,
movements, and connections traverse the entire region. Multinational
terrorist organizations and networks operate throughout the region,
highlighting the lack of an effective regional counterterrorism mechanism.
Most terrorist activity in East Asia is related to domestic political
disputes. However, the Abu Sayyaf Group, an Islamic extremist organization
in the Philippines, kidnapped two Americans and killed one of them in
2002. The United States remains concerned about Islamic extremists
operating in and around western China who have received training,
equipment, and inspiration from al Qaeda, the Taliban, and others in
Afghanistan.
Eurasia In Eurasia, the threat against the United States and its interests
stems principally from the ongoing threat posed by al Qaeda- linked
terrorists rather than by the influx of al Qaeda and Taliban fighters
following coalition operations led by the United States in neighboring
Afghanistan. The Islamic Movement of Uzbekistan, which is on the U. S.
foreign terrorist organization list, seeks to overthrow the Uzbek
government and create an Islamic state. Kazakhstan, Kyrgyzstan,
Tajikistan, Turkmenistan, and
Uzbekistan are five of the new U. S. partners in the *war on terrorism*
and have provided the United States with access to their military
facilities for U. S. offensive combat operations and/ or humanitarian
support in Afghanistan. Also of U. S. concern in Eurasia is the linkage
between
terrorism and other international crimes (specifically organized crime and
trafficking in persons and drugs), ethnic separatism, and religious
extremism. U. S. officials remain concerned about routes through Georgia.
The international mujahidin with ties to terrorist organizations move
people, money, and materiel throughout the Caucasus region in support of
separatist fighters in Chechnya, Russia. Finally, the United States is so
concerned about the terrorist threat in the region that it has provided
Georgia with training to help it implement tighter counterterrorism
controls in the Pankisi Gorge. 9 (Chapter 3 discusses U. S. training to
improve other countries* capabilities to combat terrorism.)
Europe In Europe, U. S. diplomatic and military officials remain concerned
about the terrorist threat to U. S. military and diplomatic facilities and
personnel. Potential al Qaeda *sleeper cells* in Germany and elsewhere
continue to pose a threat to U. S. interests. Domestic terrorist
organizations in a number of countries (such as Greece, Italy, Spain,
Turkey, and the United Kingdom) continue to function at varying levels of
effectiveness. A wide- range of groups and individuals use terrorist
tactics to protest globalization, often directing their demonstrations
toward U. S. businesses. In the Balkans, according to the Department of
State, although governments generally are committed to combating
terrorism, terrorists and Islamic extremist groups have exploited
inadequate border security and institutional weaknesses to support their
operations. Also, Middle Eastern nongovernmental organizations identified
as supporting terrorist activities remain in the Balkans, providing
assistance to Islamic extremist groups. Terrorists also exploit some
European countries* liberal asylum laws; open land borders; and weaknesses
in their investigative, prosecutorial, and procedural
processes while using these countries as operational staging areas for
international terrorist attacks. For example, according to the Department
of State, the theft and forgery of passports in Belgium facilitated
terrorists* ability to travel freely. State further reported that, while
in the past, lenient Greek courts reduced sentences of suspected
terrorists and overturned guilty verdicts of terrorist cases, Greek
authorities are using new antiterrorism legislation passed in 2002 to more
successfully prosecute terrorist cases. Greece effectively neutralized its
most lethal terrorist group, Revolutionary Organization 17 November, in
June 2002, and 19 suspected members went on trial in March 2003. According
to the State Department, U. S. and international officials are pleased
with Greek
cooperation on security preparations for the 2004 Olympic Summer Games in
Athens, Greece.
Latin America In Latin America, the transnational threats of terrorism,
drugs and arms trafficking, illegal migration, and international organized
crime are the greatest challenge to U. S. security interests in the
region. 10 These transnational threats are increasingly linked as they
share common infrastructure, transit patterns, corrupting means, and
illicit mechanisms.
9 The Pankisi Gorge is a region in northern Georgia that Russia accuses
Georgia of allowing Chechen terrorists (separatist fighters) and the
international mujahidin to use as a safe haven.
10 Testimony by General Gary Speer (U. S. Army), Acting Commander- in-
Chief, U. S. Southern Command, before the Committee on Armed Services, U.
S. Senate, Mar. 5, 2002.
International terrorists groups have established support bases in some
South American countries that sustain their worldwide operations. For
example, the triborder area where the borders of Argentina, Brazil, and
Paraguay converge continues to be a safe haven for Hizballah* the
Lebanese- based terrorist organization* and other terrorist organizations,
such as HAMAS, where they raise funds to finance their operations through
criminal enterprises. According to the Department of State, there are
unconfirmed reports that al Qaeda support cells and sympathizers also are
scattered throughout Latin America. A Colombian paramilitary organization
has been added to the list of Foreign Terrorist Organizations, and the
Revolutionary Armed Forces of Colombia, known as the FARC (Fuerzas Armadas
Revolucionarias de Colombia), pose a direct threat to U. S. personnel,
facilities, and interests. Terrorist attacks against Columbia*s energy
infrastructure (the Cano Limon- Covenas oil pipeline) has a severe
impact. Even members of the Irish Republican Army were arrested in 2001
for helping the FARC prepare for an urban terror campaign by providing
explosives training. Bombings, kidnappings, extortions, and assassinations
remain the most pervasive terrorism problems in the region. The major
concern for U. S. officials is the nexus or linkage between the illegal
narcotics trafficking and terrorism or narco- terrorism. In addition,
land, maritime, and air smuggling routes and support networks across South
America, Central America, and the Caribbean once used exclusively by
criminals trafficking in illegal narcotics and humans are now being used
by terrorists.
Middle East In the Middle East, the greatest threat to U. S. interests
comes from terrorist groups and state- sponsored terrorist organizations.
Chief among the terrorist groups is Osama bin Laden*s al Qaeda terrorist
organization. According to the Department of State, Syria and Lebanon
refuse to recognize Hizballah, HAMAS, the Palestine Islamic Jihad, and
other
Palestinian rejectionist groups as terrorist organizations, believing that
violent activities by these groups represent legitimate resistance. After
decades of civil war and foreign occupation, Lebanese governmental control
continues to be weak or non- existent in many areas of the country. 11
This environment allows for the smuggling of small arms and explosives and
training activities by terrorist organizations. Financing of terrorist
organizations remains problematic in the Gulf countries. Joint
11 According to the State Department, this is not an issue of the Lebanese
having the capability to enforce its will and choosing not to; it is an
issue of Lebanese governmental incapacity after decades of Israeli and
Syrian occupation of Lebanon.
efforts by the U. S. and Yemeni governments to disrupt and destroy al
Qaeda elements in Yemen have been only partially successful, and al Qaeda
nodes still exist in that country. Protecting U. S. citizens and personnel
and facilities from terrorist attack is a high priority throughout the
region. In addition, force protection of U. S. forces transiting the Suez
Canal in Egypt has increased.
North America In North America, the greatest vulnerability to the United
States is the porous borders with Canada and Mexico. The lack of adequate
border security could allow terrorists to enter the United States
unnoticed or unchallenged to carry out their activities and conduct their
operations. Another threatening factor facing the United States in North
America is a
lack of effective mechanisms by neighboring countries to prevent terrorist
from financing their operations. In Mexico, for example, new measures
taken to counter terrorist financing include monitoring financial
movements, exchanging information on unusual movements of capital, and
more effective steps to combat money laundering.
Factors That Aggravate the The increase in the level and severity of
international terrorism (and other
Threat of Terrorism international crimes) in recent years can be traced to
a series of
interrelated aggravating factors. These factors enable terrorist groups to
operate more effectively. The factors, as identified by the FBI, are as
follows. Reduced International Barriers The post- Cold War landscape
provides terrorists and terrorist organizations
with opportunities to exploit the advantages of reduced or collapsed
political and economic barriers to move people, money, information, and
materiel* including weapons of mass destruction (WMD)* across
international borders.
Global Business Networks The globalization of business networks also
facilitates international terrorism. Like international criminals,
international terrorists take advantage of global commercial, banking,
transportation, and communication systems to plan, finance, and carry out
their operations. Through these networks, terrorists and terrorist
organizations often plan their operations in third countries, some of
which provide safe havens.
Technological Advances Technological advances, particularly in information
technology and communications, also facilitate terrorist organizations*
global reach. Terrorists are becoming more sophisticated in their use of
computer and
telecommunications technology. For example, there is widespread use of
cell phones to plan, coordinate, support, and execute terrorist
operations, making antiterrorism measures challenging. In addition, cyber,
or computer- based, attacks are a real threat to the nation*s critical
computersupported
infrastructures, such as telecommunications, power distribution, financial
services, national defense, and critical government operations. Terrorist
organizations also are adept at using technology for counterintelligence
purposes and for tracking law enforcement activities.
Weak Law Enforcement Institutional shortcomings in foreign countries
exacerbate federal efforts
Institutions to combat the spread of international terrorism (and other
transnational
crimes). According to an interagency working group, local police and the
judicial systems in many countries in which terrorists and terrorist
organizations operate are ineffective. 12 They lack adequate resources,
have limited investigative authorities, or are plagued by corruption. The
working
group reported that many countries have outdated or even nonexistent laws
involving extradition, immigration, asset seizure, anti- money laundering,
computers, and anti- terrorism. According to the interagency working
group, many countries simply do not have adequate resources, training,
equipment, expertise, or the political will to carry out complex,
sustained investigations of international terrorism or to conduct
counterterrorism operations. Terrorists and terrorist organizations take
advantage of these institutional limitations and weaknesses to find and
establish sanctuaries, while governments and law enforcement remain
constrained by national boundaries.
Trends in International In recent years, U. S. intelligence agencies have
identified several important
Terrorism trends in international terrorism. Some of these trends are the
result of
adaptations that terrorist organizations have made in response to the
aggravating factors discussed above. These trends are as follows:
12 See International Crime Threat Assessment (Dec. 2000). This global
assessment was prepared by an interagency working group in support of and
pursuant to the President's International Crime Control Strategy of the
United States (The White House, May 1998).
The interagency working group included representatives from the
Departments of State, the Treasury, Justice, and Transportation; the CIA;
the FBI; Drug Enforcement Administration; U. S. Customs Service; U. S.
Secret Service; Financial Crimes Enforcement Network; National Drug
Intelligence Center; the Office of National Drug Control Policy; and the
National Security Council.
Decline in state- sponsorship of Terrorists have become less dependent on
sponsorship by sovereign states.
terrorism State- sponsors in the past had provided terrorists with a safe
haven and
political, financial, and logistical support. They provided intelligence,
planning, and support for terrorist acts and may have had prior knowledge
of such attacks. However, the threat of sanctions and retaliation have
reduced the willingness of most states to sponsor terrorism. By the late
1990s, according to the Director of Central Intelligence, a completely new
phenomenon had emerged* a terrorist sponsoring a state. The Taliban
actively aided Osama bin Laden by assigning him guards for security,
permitting him to build and maintain terrorist camps, and refusing to
cooperate with efforts by the international community to extradite him. In
return, bin Laden invested vast amounts of money in Taliban projects and
provided hundreds of well- trained fighters to help the Taliban
consolidate and expand its control of Afghanistan. 13
Move to loosely affiliated groups As dependency on state- sponsored
terrorism decreases, terrorist groups operating on their own in loosely
affiliated groups have increased. The resulting transnational and
decentralized structure facilitates terrorists* avoiding detection. In
particular, Islamic terrorist groups tend to be loosely organized, recruit
their membership from many different countries, and obtain support from an
informal international network of like- minded extremists.
Use of unconventional weapons Tactics among international terrorists have
shifted from aircraft hijackings and hostage taking to indiscriminate
terrorist attacks that yield maximum destruction, casualties, and impact.
Although the vast majority of terrorist attacks worldwide continue to be
carried out with conventional weapons, such as firearms and bombs, there
is a concern among U. S. intelligence community officials about terrorists
using unconventional weapons, namely weapons of mass destruction to
include chemical, biological, radiological, or nuclear weapons.
Alliance with transnational crime There has been a coalescence of
terrorism and other transnational crimes, which provides terrorists with
various types of international crime to finance their operations. These
include, for example, illegal immigration, contraband smuggling, visa
fraud, piracy, illegal trafficking in human
13 Written statement for the record by the Director of Central
Intelligence before a Joint Hearing of the Joint Inquiry Committee of the
House Select Committee on Intelligence and Senate Select Committee on
Intelligence, Oct. 17, 2002, p. 5.
beings, diamond smuggling, and tobacco diversion and associated tax fraud.
The Federal The federal government*s role in combating terrorism overseas
involves
Government*s Role and many diplomatic, law enforcement, financial,
military, and intelligence
activities. These roles span numerous departments, agencies, bureaus, and
Resources for
offices. In fact, no single government agency possesses the authority,
Combating responsibility, and capability to effectively detect and prevent
terrorism,
Terrorism Overseas disrupt and destroy terrorist organizations, deny
terrorists safe haven, and
respond to terrorist incidents abroad. Therefore, the federal government
combats terrorism overseas simultaneously on many different fronts by
attempting to coordinate its interagency efforts. The federal government*s
interagency framework for combating terrorism overseas, including federal
agencies* roles and responsibilities and how they coordinate with each
other, is discussed in detail in chapter 2 and other chapters, as
appropriate. The federal government has dedicated substantial resources to
combating terrorism overseas.
Funding of Federal Identifying funding to combat terrorism is inherently
difficult, but the
Programs and Activities to Office of Management and Budget (OMB), as
required by law, has reported
on these funds annually since 1998. 14 Funding to combat terrorism
overseas Combat Terrorism Overseas
only recently has been identified separately from other funding to combat
terrorism (i. e., domestic spending for homeland security). The funding of
federal programs and activities to combat terrorism overseas has increased
dramatically since the terrorist attacks against the United States on
September 11, 2001. Emergency supplemental appropriations increased
funding by $2 billion in fiscal year 2002. Funding for combating terrorism
overseas has increased about 133 percent, growing from $4.9 billion in
fiscal year 2001 to $11. 4 billion requested in fiscal year 2004. In
addition to these amounts, DOD has spent about $30 billion on military
operations against terrorism in the period roughly equivalent to fiscal
year 2002.
Funding to Combat Terrorism Is There are inherent challenges in
identifying federal funding to combat
Difficult to Identify terrorism. First, numerous federal agencies have
some role in combating terrorism. Second, the agencies* budgets often
include both domestic and
overseas components. Third, there are no separate appropriation accounts
14 P. L. 105- 85 S: 1051, Nov. 18, 1997, as amended by P. L. 105- 261 S:
1403, Oct. 17, 1998.
specifically for combating terrorism and the many activities it entails.
Fourth, funding for these programs may be in accounts authorized to fund
programs and activities not specific to combating terrorism.
As required by law, OMB has issued an annual report to the Congress since
1998 on federal funding to combat terrorism. This report is to include
such information as a description of the programs and activities, the
amounts to be expended, program priorities, and areas of potential
duplication. 15 The OMB report also has a classified annex providing
additional detail on DOD and intelligence activity funding. The most
recent OMB report, issued in June 2002, provides funding and programmatic
information on 27 federal entities (for example, departments, agencies,
bureaus, and offices) that have budgeted or spent combating terrorism
funds. 16 These entities are responsible for the federal government*s
efforts to combat terrorist activity
both domestically and overseas, including defense against terrorist
incidents involving weapons of mass destruction. Funding to Combat
Terrorism
In the June 2002 report, OMB for the first time separately identified
funds Overseas Now Identified
to combat terrorism domestically (for homeland security) from those to
Separately
combat terrorism overseas. In prior reports, both domestic and overseas
activities were combined. However, as a result of the terrorist attacks on
September 11, 2001, and the emphasis on domestic protection, OMB included
a separate, detailed analysis of homeland security* which OMB defined as
activities to combat terrorism within the United States. For the June 2002
report, OMB defined *overseas combating terrorism* as
activities outside of the United States, excluding direct military
actions, such as the war on terrorism in Afghanistan. Of the $52.74
billion budget requested to combat terrorism in fiscal year 2004, $11.4
billion (or 22 percent) was for combating terrorism overseas. The
remaining $41.35 billion (or 78 percent) was requested for homeland
security
activities (gross budget authority). Table 1 shows the President*s fiscal
15 For an evaluation of OMB*s annual reports, including an assessment of
their usefulness to the Congress, see U. S. General Accounting Office,
Combating Terrorism: Funding Data Reported to Congress Should be Improved,
GAO- 03- 170 (Washington, D. C.: Nov. 26, 2002). We reported on the
difficulties in coordinating budgets to combat terrorism, limitations to
OMB*s annual reports, and recommended ways to improve OMB reporting to the
Congress on programs to combat terrorism.
16 See 2002 Report to Congress on Combating Terrorism, OMB, June 24, 2002.
At the time this report was being prepared, OMB had not issued the 2003
report.
year 2004 budget request to combat terrorism both domestically and
overseas.
Table 1: Fiscal Year 2004 President*s Request for Funding to Combat
Terrorism Domestically and Overseas (Gross Budget Authority)
Dollars in millions
Total fiscal year 2004 Fiscal year 2004 request for
Fiscal year 2004 request for request for combating
homeland security overseas combating
terrorism (domestic and Department or agency (domestic)
terrorism overseas)
Energy $1, 361 $226 $1, 587 Homeland Security 23, 890 a 23, 890 Justice
2,290 a 2,290 National Security b 6,717 8,455 15, 172 State 811 1,555
2,366 Tr easury 91 a 91 International assistance programs 0 1,158 1,158
All other federal agencies 6,187 2 6,189
Total $41,347 $11, 396 $52, 743
Source: GAO analysis of OMB data. a The Departments of Homeland Security,
Justice, and the Treasury have some funds dedicated
to activities to combat terrorism overseas. However, OMB includes these
funds as part of homeland security. b National Security combines DOD and
selected intelligence activities. These figures are combined to
prevent the disclosure of classified intelligence spending. In addition,
the amounts do not include direct military action.
There are several qualifications to the figures reported by OMB. First,
OMB officials said that there is not always a clear distinction between
activities to combat terrorism and other related activities, nor between
domestic activities and overseas activities. The OMB budget examiners must
make judgment calls about how to characterize the funding. For example,
some
combating terrorism missions have multiple purposes and funding for these
missions is co- mingled in accounts that can cover multiple purposes. OMB
reports all of DOD*s military and civilian personnel costs associated with
security as funds to combat terrorism* even if these individuals spend
some portion of their time on security matters not related to combating
terrorism. In contrast, OMB does not report the State Department*s public
diplomacy activities as funds to combat terrorism* even if these
activities have a major terrorism focus. As another example, OMB*s
reported figures
do not capture overseas law enforcement activities from the Departments of
Homeland Security, Justice, and the Treasury. Examples of these activities
include customs, legal and financial attaches stationed overseas,
training and assistance provided to other countries, or these departments*
support to International Law Enforcement Academies around the world. 17
OMB includes the funding of such activities along with homeland security
(domestic) programs of the Departments of Homeland Security, Justice, and
the Treasury. Finally, as stated earlier, OMB*s reported figures for
combating terrorism overseas do not include direct military actions, such
as the war on terrorism in Afghanistan. For the purpose of this report, we
are including military actions against terrorists as part of combating
terrorism overseas. OMB has estimated military operations against
terrorism at $30 billion for the period roughly equivalent to fiscal year
2002. 18
Funding to Combat Terrorism In response to the terrorist attacks on the
United States on September 11,
Overseas Increased 2001, the Congress appropriated a supplemental $40
billion to the
Emergency Response Fund. 19 Of this amount, $12.9 billion was provided for
combating terrorism, including just over $2 billion for combating
terrorism overseas. The remaining $28 billion from that emergency
supplemental
appropriation was made available to other missions, such as recovery
efforts at the World Trade Center Towers in New York City and at the
Pentagon. 20 The President*s Budget requested additional funding for
federal programs and activities to combat terrorism overseas, which
increased from about $4.9 billion in fiscal year 2001 to almost $11.4
billion (or about 133 percent) in the President*s fiscal year 2004 budget
request. 21 17 More details on these activities are provided in chapters 3
and 4.
18 OMB Press Release 2002- 61, Sept. 10, 2002. 19 See 2001 Emergency
Supplemental Appropriations Act for Recovery from and Response to
Terrorist Attacks on the United States (P. L. 107- 38), Sept. 18, 2001. 20
A second supplemental appropriation totaling $29 billion was signed into
law on August 2, 2002. Of that amount, some $14 billion was allocated to
DOD, but none of it was for
combating terrorism overseas, according to OMB. 21 As discussed earlier,
OMB only began reporting the overseas funding for combating terrorism
separately from domestic (homeland security) in its June 2002 report to
the Congress. However, in that report they estimated the overseas funding
for the previous 2
years (fiscal years 2001 and 2002).
While the level of funding for intelligence activities is classified* and
included with DOD funding to prevent the disclosure of classified data*
recent unclassified statements by the Director of Central Intelligence
provide information on the magnitude of increases in intelligence programs
related to terrorism. 22 According to the Director, intelligence funding
to combat terrorism tripled between fiscal years 1990 and 1999. The
Director also said that the percent of the CIA*s budget dedicated to
combating terrorism increased from less than 4 percent in fiscal year 1994
to almost 10 percent in fiscal year 2002.
Objectives, Scope, and Based upon your original requests and in subsequent
discussions with your
Methodology offices, our overall objective was to identify and describe
federal agencies*
programs and activities to combat terrorism overseas. This report
discusses the federal government*s interagency framework to combat
terrorism overseas (see ch. 2); federal programs and activities to
detect and prevent terrorism overseas
(see ch. 3); federal programs and activities to disrupt and destroy
terrorist
organizations overseas (see ch. 4); and federal programs and activities
to respond to terrorist incidents
overseas (see ch. 5). In addition, the report discusses how federal
agencies coordinate efforts in Washington, D. C., and at U. S. missions
and other locations abroad to combat terrorism overseas. Where
appropriate, it also discusses recent
changes since the September 11, 2001, terrorist attacks. Information on
coordination mechanisms and recent changes is discussed throughout the
report.
In preparing this report, we limited our scope to developing descriptive
information rather than conducting evaluations of individual programs and
activities. This was done, as agreed with our congressional clients,
because
22 See Written Statement for the Record, Director of Central Intelligence,
Before the Joint Inquiry Committee, Oct. 17, 2002.
of the large number of departments, agencies, bureaus, and offices as well
as the multitude of their programs and activities to combat terrorism
overseas. Where we have conducted related evaluative work, we have
identified the appropriate GAO products and their results in footnotes. In
addition, we include a list of related GAO products at the end of this
report.
In addition, to make this report most useful for oversight, we limited our
discussion in this report to unclassified information.
The scope of this report included key federal departments and agencies
with programs and activities to combat terrorism overseas. Review work was
conducted in Washington, D. C., at the Executive Office of the
President, including the National Security Council (NSC), Office of
Homeland Security, and OMB; the Departments of Defense, Energy, Justice,
State, Transportation, and the Treasury; and at the CIA. We also conducted
review work at or met overseas with officials from the Bureau of Alcohol,
Tobacco, Firearms and Explosives (ATF); Defense Intelligence Agency; Drug
Enforcement Administration; the FBI; Federal Law Enforcement Training
Center (FLETC); the former Immigration and Naturalization Service (INS);
USAID; the former U. S. Customs Service; U. S. Coast Guard,
and the U. S. Secret Service. In addition, fieldwork was conducted at the
U. S. Central Command, MacDill Air Force Base, Florida; U. S. European
Command, Patch Barracks, Stuttgart/ Vaihingen, Germany; U. S. Southern
Command, Miami, Florida; U. S. Special Operations Command, MacDill Air
Force Base, Florida; U. S. Embassy in Athens, Greece; and at the
International Law Enforcement Academy (ILEA) in Budapest, Hungary. We
included information on other departments and activities based on
previous and ongoing work by GAO. A complete listing of organizations and
locations visited or contacted is found in appendix VII.
While our scope was generally limited to combating terrorism overseas, we
included programs related to border security, which also are considered
part of homeland security. Also, we included certain efforts to combat
terrorism overseas that actually occur within the United States, such as
interagency coordination, intelligence analysis, and law enforcement
investigations and prosecutions. Our more comprehensive work on homeland
security is summarized in two recent reports. 23 Most of our
23 See U. S. General Accounting Office, Major Management Challenges and
Program Risks: Department of Homeland Security, GAO- 03- 102 (Washington,
D. C.: Jan. 1, 2003) and U. S. General Accounting Office, Homeland
Security: Management Challenges Facing Federal Leadership, GAO- 03- 260
(Washington, D. C.: Dec. 20, 2002).
analysis for this report was performed before the creation of the
Department of Homeland Security in December 2002 and its initial
operations in January 2003. Therefore, when we conducted our review, many
of the agencies, bureaus, offices, and federal response teams
discussed in this report had not yet been transferred to the new
department from the Departments of Health and Human Services, Justice,
Transportation, and the Treasury.
For each objective, we interviewed agency officials, reviewed supporting
programmatic and budgetary documentation, and reviewed prior GAO work.
To identify and describe the federal government*s interagency framework
and policies to combat terrorism overseas and how they have changed since
the terrorist attacks of September 11, 2001, we conducted a qualitative
analysis of: (1) the current interagency framework and policies for
combating terrorism overseas; (2) the relationship between and among
various national strategies to combat terrorism overseas; (3) the roles,
responsibilities, and management structure of the NSC and its Policy
Coordinating Committees for international counterterrorism coordination
and the role of the Office of Homeland Security; (4) the roles,
responsibilities, and management structure of the lead federal agency
(Department of State) for crisis and consequence management of terrorist
incidents overseas and those of support agencies (Departments of Defense,
Justice, and the Treasury, and the intelligence community); (5)
legislation
and agency plans, implementing guidance, concepts of operations, and
contingency plans; and (6) changes in the interagency framework, policies,
and implementing guidance since September 11, 2001.
To identify and describe federal programs and activities to combat
terrorism overseas, we conducted a qualitative analysis of these efforts
in the areas of: (1) preventing and detecting terrorism overseas; (2)
disrupting and destroying terrorist organizations; and (3) responding to a
terrorist incident overseas. To identify and describe how federal agencies
coordinate efforts in Washington, D. C., and at U. S. missions abroad to
combat terrorism overseas, we conducted a qualitative analysis of: (1)
interagency and agencies* roles and responsibilities; (2) interagency
management structures, policies, and procedures to coordinate
international
counterterrorism at headquarters and at a selected U. S. mission abroad;
(3) U. S. missions* roles, responsibilities, management structures, and
procedures to coordinate international counterterrorism with headquarters
elements; and (4) changes in coordination policies and procedures that
resulted from the terrorist attacks of September 11, 2001.
We faced some limitations to our methodology during our review. For
example, the NSC*s National Strategy for Combating Terrorism was released
at the end of our review. In addition, agencies* reorganizations and
creation of the Department of Homeland Security affected the organization,
management structure, roles and missions, programs, and activities of
numerous agencies involved in combating terrorism overseas. Funding to
combat terrorism overseas is not always identified as such and may not be
broken out neatly into specific functions. Additional terrorismrelated
funding was appropriated in addition to funds requested in the President*s
budget, including supplemental appropriations, emergency funding, and
reprogrammed funding from other accounts. Also, there is not always a
clear distinction between programs and activities to combat terrorism and
other transnational crimes, such as money laundering, arms trafficking,
and piracy. Finally, many DOD and intelligence community*s operations,
programs, and activities are classified, which limited what we could
discuss in an unclassified report.
To mitigate these limitations, we relied on other key NSC policy and
planning documents and interviews with key officials until the national
strategy was released. Agencies* reorganization and creation of the
Department of Homeland Security will have more of an impact on combating
domestic terrorism than terrorism overseas. OMB requested that agencies
identify terrorism- related funding and we reviewed that process. We
gathered information, where available, on funding for programs and
activities to combat terrorism overseas. Terrorism is one of many
transnational crimes, which often are used to fund terrorist
organizations* operations. Where appropriate, we identified the nexus or
linkage between terrorism and other transnational crimes. Finally, we
worked with DOD and the CIA to accurately describe the threat and their
counterterrorism programs and activities in an unclassified manner. Given
our efforts to mitigate these factors, we do not believe they had a
material affect on our work.
We performed our review from December 2001 through March 2003 in
accordance with generally accepted government auditing standards.
The Interagency Framework for Combating
Chapt 2 er Terrorism Overseas The interagency framework for combating
terrorism overseas consists of policies and plans, agency roles and
responsibilities, and interagency coordination mechanisms developed and
managed by the NSC and its Director for Combating Terrorism. The policies
and plans are articulated in presidential directives, new national
strategies, annual plans, and operational guidance. These policies and
plans lay out the roles and responsibilities of individual federal
agencies that lead or support specific
functions. In addition, many individual agencies have their own policies
and plans that direct their own activities to combat terrorism overseas.
The interagency framework also includes coordinating mechanisms to
implement combating terrorism functions and activities across federal
agencies. For example, the NSC* which plays a major coordinating role*
sponsors a policy coordination committee called the Counterterrorism
Security Group, which has several subordinate working groups on such
topics as interagency counterterrorism exercises, and assistance to other
countries. Overseas, U. S. embassies and regional military commands
coordinate activities through interagency teams that meet to coordinate
efforts to combat terrorism across agencies. In addition, interagency
coordination is facilitated by personnel exchanges and liaisons among
agencies. The effectiveness of this interagency framework will be
determined through time as the new strategies and programs are
implemented.
Policies, Plans, and U. S. policies and plans for combating terrorism
overseas have developed
Legislation over the past 17 years. These policies and plans consist of
presidential
directives, national- level strategies, and operational guidance. Various
laws also address terrorism.
Subsequent chapters in this report provide details on how agencies are
implementing and coordinating these policies, plans, and legislation.
Policies and Plans in Place According to the Department of State, four
enduring policy principles guide
before Terrorist Attacks of U. S. strategies to combat terrorism overseas.
They are as follows:
September 11, 2001 Make no concessions to terrorists and strike no
deals.
Bring terrorists to justice for their crimes.
Isolate and apply pressure on states that sponsor terrorism to force
them to change their behavior.
Bolster the counterterrorist capabilities of those countries that work
with the United States and require assistance.
One of the earlier executive- level formalization of counterterrorism
policy occurred in 1986 under National Security Decision Directive 207.
This directive was in response to several terrorist attacks on U. S.
facilities and interests overseas in the early 1980s, and focused
primarily on responding to terrorism abroad. It designated the Department
of State as the lead agency for dealing with overseas terrorist incidents,
and designated the FBI as the lead agency for handling domestic terrorist
incidents, unless otherwise specified by the Attorney General. It also set
up an interagency working group on counterterrorism to coordinate efforts
across the different agencies.
The next major presidential directive on terrorism occurred in 1995 under
Presidential Decision Directive (PDD) 39. Following the terrorist bombing
of a federal building in Oklahoma City, this directive had a more domestic
focus, outlining measures to be undertaken by federal agencies to reduce
domestic vulnerabilities to terrorism, deter and respond to terrorist
acts,
and develop capabilities to effectively manage the consequences of a
terrorist attack. The directive designated the Federal Emergency
Management Agency (FEMA) as the lead agency for managing the
consequences of a terrorist incident within the United States. This
directive also detailed the responsibilities of other agencies expected to
provide support when requested by the lead agencies.
Counterterrorism policy was further developed in 1998 through PDDs 62 and
63. PDD 62 further clarified agency roles and responsibilities in
terrorism prevention, terrorist apprehension and prosecution,
transportation security, and protection of critical infrastructure. PDD 63
established critical infrastructure protection as a national goal and
described a strategy for cooperative efforts by government and the private
sector to protect the physical and cyber- based systems essential to the
minimum operations of the government and economy* such as
telecommunications, power distribution, financial services, national
defense, and critical government operations* from physical and cyber
attacks. To help manage these issues, these directives established a
National Coordinator for Security, Infrastructure Protection, and
Counterterrorism. This Coordinator was meant to coordinate relevant
agency programs and activities on behalf of the NSC, as well as take the
lead in providing guidelines for interagency operations.
The previous administration issued a federal strategy for combating
terrorism in 1998* the Attorney General*s Five- Year Interagency
Counterterrorism and Technology Crime Plan. 1 The Congress mandated this
plan, which was intended to serve as a baseline strategy for coordination
of national policy and operational capabilities to combat terrorism both
at home and abroad. 2 It identified several high- level counterterrorism
goals and described the specific tasks of federal agencies in responding
to terrorist incidents. Although primarily domestic in focus, one of the
plan*s five major goals was to facilitate greater international
cooperation to combat terrorism. The Department of Justice issued annual
updates to the Five- Year Plan in 1999 and 2000, which did not revise the
basic plan but tracked agencies* progress in implementing the original
plan. Justice Department officials told us they are no longer providing
annual updates because other interagency plans (discussed later in this
chapter) have been released.
Operational guidance on combating terrorism overseas (i. e., specific
agency roles and actions in a crisis) was drafted in 1996 by the
Department of State. This guidance, known as the International Guidelines,
outlines procedures for deploying emergency support teams and otherwise
coordinating federal operations overseas. Although the NSC did not
formally approve the International Guidelines until January 2001, agencies
had used them in draft form since 1996. Our previous examination of
operations to combat terrorism overseas found that agencies generally
followed the draft International Guidelines when performing their
1 Another earlier and related plan was the International Crime Control
Strategy, released in May 1998. While not specific to terrorism, this plan
had 8 overarching goals and 30 implementing objectives related to
international crime. For more information, see U. S. General Accounting
Office, International Crime Control: Sustained Executive- Level
Coordination of Federal Response Needed, GAO- 01- 629 (Washington, D. C.:
Aug. 13, 2001).
2 Conference Committee Report (House Report 105- 405), Nov. 13, 1997,
accompanying the Fiscal Year 1998 Appropriations Act for the Departments
of Commerce, Justice, and State, the Judiciary, and Related Agencies (P.
L. 105- 119), Nov. 26, 1997.
respective roles in diplomacy, law enforcement, military planning, and
intelligence gathering. 3
Current Policies and Many federal policies and plans changed in the
aftermath of the
Plans Include New Areas September 11, 2001, terrorist attacks. There were
changes in both positions of Responsibility and
and offices to manage terrorism- related programs, and changes through the
National Strategies
publishing of new strategies. New Areas of Responsibilities
The President divided the responsibilities of the National Coordinator
Established
for Security, Infrastructure Protection, and Counterterrorism, created in
PDD 62, among three new areas of responsibility. Efforts to combat
terrorism domestically. Executive Order 13228, dated
October 8, 2001, created a new Assistant to the President for Homeland
Security, to head a new Office of Homeland Security responsible for
coordinating efforts to combat terrorism inside the United States.
Specific responsibilities included working with departments and
agencies, state and local governments, and private entities to ensure the
adequacy of the National Strategy for Homeland Security. The order
detailed a number of other specific responsibilities for the Office of
Homeland Security. 4
Efforts to combat terrorism overseas. National Security Presidential
Directive 8, dated October 24, 2001, created a National Director for
3 U. S. General Accounting Office, Combating Terrorism: Issues to Be
Resolved to Improve Counterterrorism Operations, GAO/ NSIAD- 99- 135
(Washington, D. C.: May 13, 1999). We reported that with ongoing
counterterrorism operations, federal agencies had not
completed interagency guidance and resolved command and control issues.
Also, key federal agencies did not capture lessons learned for all field
and tabletop exercises in which they led or participated.
4 For information on the situation leading up to the creation of this
position, including GAO*s recommendations that a similar type of focal
point be established, see U. S. General Accounting Office, Combating
Terrorism: Selected Challenges and Related Recommendations, GAO- 01- 822
(Washington, D. C.: Sept. 20, 2001). We reported on (1) the current
framework for leadership and coordination of federal agencies* efforts to
combat terrorism, (2) progress the federal government made in developing
and implementing a national strategy to combat terrorism domestically, (3)
the federal government*s capabilities to respond to a domestic terrorist
incident, (4) progress the federal government made in helping state and
local emergency responders, and (5) progress made in developing and
implementing a federal strategy for combating cyber- based attacks.
Combating Terrorism, with responsibilities for activities to combat
terrorism overseas. The Director is located in the NSC and reports to the
Assistant to the President for National Security Affairs. Per the
directive, the Director also serves as the Deputy National Security
Advisor for Combating Terrorism. The Director chairs a policy coordination
committee named the Counterterrorism Security Group. While not specified
in the directive, this group has a number of interagency working groups,
which are described later in this chapter. The director also reports to
the Assistant to the President for Homeland
Security on matters relating to global terrorism inside the United States.
Efforts to protect critical infrastructure. On February 28, 2003, the
President signed Executive Order 13286, which maintained *it is the policy
of the United States to protect against disruption of the operation of
information systems for critical infrastructure and thereby help to
protect the people, economy, essential human and government services, and
national security of the United States, and to ensure that any disruptions
that occur are infrequent, of minimal duration, and manageable, and cause
the least damage possible.* 5 It also stated that *implementation of this
policy includes voluntary public- private partnership, involving corporate
and nongovernmental organizations.* In addition, Executive Order 13286
replaced in its entirety Executive Order 13231, 6 thus dissolving the
President*s Critical Infrastructure Protection Board that was to
coordinate cyber- related federal efforts and programs associated with
protecting the nation*s critical infrastructures, and the board*s chair*
the Special Advisor to the President for Cyberspace Security* and related
staff.
Series of New Strategies A series of new national plans were developed and
published to help guide
Published U. S. policy. Some of these plans* called national strategies*
are specific to
combating terrorism, while others involve terrorism to lesser degrees. The
strategies most directly addressing terrorism are the National Security
Strategy of the United States of America, published in September 2002; the
National Strategy for Homeland Security, published in July 2002; and the
National Strategy for Combating Terrorism, published in 5 The White House,
Executive Order 13286* Amendment of Executive Orders, and Other Actions,
in Connection With the Transfer of Certain Functions to the Secretary of
Homeland Security (Washington, D. C.: Feb. 28, 2003).
6 The White House, Executive Order 13231* Critical Infrastructure
Protection in the Information Age (Washington, D. C.: Oct. 16, 2001).
February 2003. Table 2 summarizes the functions of each of the various
national strategies and how they relate to combating terrorism overseas. 7
Table 2: National Strategies Related to Combating Terrorism Strategy
Description of strategy National Security Strategy of the United This
document provides a broad framework for strengthening U. S. security in
the future. It
States of America
identifies the national security goals of the United States, describes the
foreign policy and Issued by the President, September 2002
military capabilities necessary to achieve those goals, evaluates the
current status of these capabilities, and explains how national power will
be structured to utilize these capabilities. It devotes a chapter to
combating terrorism that focuses on the disruption and destruction of
terrorist organizations, the winning of the *War of Ideas,* the
strengthening of homeland security, and the fostering of cooperation with
allies and international organizations to
combat terrorism.
National Strategy for Homeland Security
This document addresses the threat of terrorism within the United States
by organizing the Issued by the President, July 2002 domestic efforts of
federal, state, local, and private organizations. Although mostly domestic
in focus, this strategy mentions various initiatives related to combating
terrorism overseas,
including: negotiating new international standards for travel documents,
improving security for international shipping containers, enhancing
cooperation with foreign law enforcement agencies, expanding specialized
training and assistance to allies, and increasing the security of
transnational infrastructure. The strategy stresses the importance of
expanding international cooperation in research and development and
enhancing the coordination of incident response. Finally, the strategy
recommends reviewing current international treaties and laws to determine
where improvements could be made.
National Strategy for Combating Terrorism
This document elaborates on the terrorism aspects of the National Security
Strategy of the
Issued by the President, February 2003 United States of America by
expounding on the need to destroy terrorist organizations, win the *War of
Ideas,* and strengthen security at home and abroad. Unlike the National
Strategy for Homeland Security that focuses on preventing terrorist
attacks within the United States,
the National Strategy for Combating Terrorism focuses on identifying and
defusing threats before they reach the borders of the United States. In
that sense, although it has defensive elements, this strategy is an
offensive strategy to complement the defensive National Strategy for
Homeland Security.
7 There are additional national strategies that have some discussion of
terrorism that we have not included. For example, the National Drug
Control Strategy, issued by the President in February 2003, cites the
importance of a unified approach to fighting both drugs and terrorism,
particularly in South America. The 2002 strategy highlighted drug
revenue as a source of funding for 12 of the 28 international terrorist
groups identified by the Department of State.
(Continued From Previous Page)
Strategy Description of strategy National Military Strategy of the United
This document sets the strategic direction for all aspects of the U. S.
Armed Forces. This
States of America
includes force structure, acquisition, and doctrine, as well as the
strategic environment. The Issued by the Chairman of the Joint Chiefs
1997 strategy notes the rising danger of asymmetric threats, such as
terrorism. The strategy of Staff, September 1997 stresses the need for the
military to adapt its doctrine, training, and equipment to ensure a rapid
and effective joint and interagency response to these threats.
There is also a more recent Defense Strategy, which was issued by the
Secretary of Defense in September 2001. This strategy is part of DOD*s
Quadrennial Defense Review and has relatively little discussion of
terrorism.
National Military Strategic Plan for the War
This document provides a framework to guide the conduct of the *war on
terrorism* by U. S. on Terrorism
Armed Forces. It provides specific guidance from which regional
commanders, the military Issued by the Chairman of the Joint Chiefs
services, and other agencies can formulate their own individual action
plans. Individual of Staff, October 2002
regional commands drafted their own campaign plans in response to this
plan. For example, one regional command plans to conduct maritime
interception operations to disrupt terrorists* use of commercial shipping
to transport people and material.
National Strategy to Combat Weapons of
This document presents a national strategy to combat weapons of mass
destruction through Mass Destruction
three major efforts: (1) nonproliferation, (2) counterproliferation, and
(3) consequence Issued by the President, December 2002
management in WMD incidents. The plan addresses the proliferation of
weapons of mass destruction among states, as well as the potential threat
of terrorists using WMD agents.
National Money Laundering Strategy
This document presents a national strategy to combat money laundering and
other financial Issued by the Secretary of the Treasury crimes. The
strategy sets forth an action plan for how law enforcement, regulatory
officials, and the Attorney General, July 2002
the private sector, and the international community could take steps to
make it harder for criminals to launder money generated from their illegal
activities. In addition to addressing general criminal financial
activities, the 2002 strategy presents the government*s plan to attack
financing networks of terrorist entities. The strategy discusses the need
to adapt
traditional methods of combating money laundering to unconventional tools
used by terrorist organizations to finance their operations.
National Strategy to Secure Cyberspace
This document is intended to provide an initial framework for both
organizing and prioritizing Issued by the President, February 2003 efforts
to protect our nation*s critical cyber infrastructures. Also, it is to
provide direction to federal departments and agencies that have roles in
cyberspace security and to identify
steps that state and local governments, private companies and
organizations, and individual Americans can take to improve the nation*s
collective cybersecurity. The strategy is organized according to five
national priorities, with major actions and initiatives identified for
each. These priorities are: (1) a National Cyberspace Security Response
System, (2) a National Cyberspace Security Threat and Vulnerability
Reduction Program, (3) a National Cyberspace Security Awareness and
Training Program, (4) Securing
Governments* Cyberspace, and (5) National Security and International
Cyberspace Security Cooperation. In describing the threats and
vulnerabilities for our nation*s cyberspace, the strategy highlights the
potential for damage to U. S. information systems by criminals,
nationstates,
and terrorists.
(Continued From Previous Page)
Strategy Description of strategy National Strategy for the Physical
This document provides a statement of national policy to remain committed
to protecting Protection of Critical Infrastructures and
critical infrastructures and key assets from terrorist attacks, and it is
based on eight guiding Key Assets
principles, including establishing responsibility and accountability,
encouraging and Issued by the President, February 2003
facilitating partnering among all levels of government and between
government and industry, and encouraging market solutions wherever
possible and government intervention when needed. The strategy also
establishes three strategic objectives. The first is to identify and
assure the protection of the most critical assets, systems, and functions,
in terms of nationallevel public health and safety, governance, and
economic and national security and public confidence. The second is to
assure protection of infrastructures and assets facing specific, imminent
threats. The third is to pursue collaborative measures and initiatives to
assure the protection of other potential targets that may become
attractive over time.
Source: Published national strategies. Note: GAO analysis of published
national strategies.
New Strategies Provide As we have recently testified, we view the new
strategies, and the
Framework framework they provide, as a positive step. 8 The new strategies
are
organized in some hierarchy, share common themes, and cross- reference
each other. The strategies are organized in a hierarchy with the National
Security Strategy of the United States of America providing the
overarching strategy related to national security as a whole, including
terrorism. According to the administration, the National Security Strategy
of the United States of America and the National Strategy for Homeland
Security are top- level strategies that together address U. S. security
both overseas and domestically. According to the administration, these two
strategies establish a framework that takes precedence over all other
national strategies, plans, and programs. Our interpretation of the
hierarchy among strategies is somewhat different from how the
administration has presented it. We do not view the hierarchy as that
absolute because we see the National Strategy for Homeland Security and
the National Strategy for Combating Terrorism as roughly equivalent. These
two strategies provide, respectively, the strategies to combat terrorism
related to defensive domestic issues and offensive overseas issues. 9
Under this hierarchy, the other strategies provide further levels of
detail on the specific functions related to military operations, money
laundering, weapons of mass destruction, cyber security, and protection of
physical infrastructures. Intelligence is one of the critical functions
that cuts across all the other strategies, but does not have a strategy
itself related to 8 For a more detailed discussion and evaluation of these
collective strategies, see U. S.
General Accounting Office, Combating Terrorism: Observations on National
Strategies Related to Terrorism, GAO- 03- 519T (Washington, D. C.: Mar. 3,
2003). In this testimony, we stated that the new strategies show cohesion
in that they are organized in a hierarchy, share common themes, and cross-
reference each other. In addition, the collective strategies are more
comprehensive than the single strategy they replaced. However, we noted
there will be many challenges in implementing these strategies.
9 We recognize that this characterization of the strategies simplifies a
complex relationship among the two. Both strategies contain both defensive
and offensive elements. For example, while we characterize the National
Strategy for Homeland Security as mainly defensive, it includes offensive
initiatives to target and attack terrorist financing, and to track foreign
terrorists and bring them to justice. Similarly, while we characterize the
National Strategy for Combating Terrorism as mainly offensive, it includes
defensive objectives to implement the National Strategy for Homeland
Security and to protect U. S. citizens abroad.
terrorism, according to CIA officials with whom we spoke. Some of these
other strategies contain independent elements beyond national security
that do not overlap with the other strategies. For an example of the
latter, both the National Strategy to Secure Cyberspace and the National
Money
Laundering Strategy include some domestic criminal elements not associated
with national security or terrorism. Also, the National Strategy to Secure
Cyberspace and the National Strategy for the Physical Protection of
Critical Infrastructures and Key Assets make a distinction between threats
to national security and threats to national economic security and
national public health and safety. Further, the National Drug Control
Strategy has relatively little overlap with these other strategies. Figure
7 displays graphically how some of these national strategies fit into
a hierarchy and overlap.
Figure 7: Relationships Between and Among National Strategies Related to
Combating Terrorism Overseas
Notes: GAO analysis of national strategies. This graphic is intended to
show relationships and overlaps among these national strategies. The sizes
and shapes of the boxes are not meant to imply the relative importance of
the strategies.
The various strategies also share common themes. Among the strategies more
relevant to combating terrorism overseas such as the National Security
Strategy of the United States of America, the National Strategy for
Combating Terrorism, the National Strategy to Combat Weapons of Mass
Destruction, and the National Military Strategy of the United States of
America all contain either goals or objectives relating to strengthening
international relationships; strengthening intelligence gathering and
analysis capabilities; and improving capabilities to deter, prevent, and
respond to weapons of mass destruction.
In addition, the strategies have linkages among them in the form of
citations and cross- references from one document to another. At least
half of the strategies cite either the National Security Strategy of the
United States of America or the National Strategy for Homeland Security.
The most extensively linked strategies include the National Security
Strategy of the United States of America, the National Strategy for
Homeland
Security, the National Strategy for Combating Terrorism, and the
National Strategy to Combat Weapons of Mass Destruction. Strategies that
cover topics beyond terrorism, such as criminal law enforcement, are less
extensively linked to these documents. For example, the National Strategy
to Secure Cyberspace and the National Strategy for the Physical Protection
of Critical Infrastructures and Key Assets solely cite each other and the
National Strategy for Homeland Security. The National
Drug Control Strategy and the National Money Laundering Strategy contain
no explicit linkages to any of the other strategies, but are referenced in
the National Strategy for Homeland Security. Some strategies contain broad
themes that are covered in more detail by other strategies, but do not
cite these documents. For instance, although the
National Strategy for Combating Terrorism mentions the topic of terrorist
financing, it does not mention the National Money Laundering Strategy.
Nevertheless, it mentions the National Drug Control Strategy, a document
with considerably less thematic overlap in terms of terrorism. The
National Security Strategy of the United States of America covers many
broad strategic themes, but refers to no other national strategies,
although many of the strategies refer back to it. National Strategy for
Combating
The key strategy for overseas efforts is the National Strategy for
Terrorism
Combating Terrorism, issued in February 2003. According to this strategy,
terrorist groups can be categorized as those that operate primarily within
a single country, those that operate regionally, and those with global
reach. The document*s strategic intent calls for fighting terrorist
organizations of global reach and reducing their scope and capabilities to
the regional and
then local levels. The goal is to reduce the scope of terrorism to make it
more localized, unorganized, and relegated to the criminal domain. The
strategy seeks to accomplish this through four goals and 15 subordinate
objectives. Together, these goals comprise the *4D Strategy* and are shown
in table 3.
Tabl e 3: Goals and Objectives in the National Strategy for Combating
Terrorism
Goal: Defeat terrorist organizations of global reach by attacking their
sanctuaries; leadership command, control, and communications; material
support; and finances.
Objective: Identify terrorists and terrorist organizations. Objective:
Locate terrorists and their organizations. Objective: Destroy terrorists
and their organizations.
Goal: Deny further sponsorship, support, and sanctuary to terrorists by
ensuring that other states accept their responsibilities to take actions
against these international threats within their sovereign territory.
Objective: End the state sponsorship of terrorism. Objective: Establish
and maintain an international standard of accountability with regard to
combating terrorism. Objective: Strengthen and sustain the international
effort to fight terrorism. Objective: Interdict and disrupt material
support for terrorists. Objective: Eliminate terrorists* sanctuaries and
havens.
Goal: Diminish the underlying conditions that terrorists seek to exploit
by enlisting the international community to focus its efforts and
resources on the areas most at risk.
Objective: Partner with the international community to strengthen weak
states and prevent the (re) emergence of terrorism. Objective: Win the War
of Ideas.
Goal: Defend the United States, its citizens, and its interests at home
and abroad by both proactively protecting the homeland and extending
defenses to identify and neutralize the threat as early as possible.
Objective: Implement the National Strategy for Homeland Security.
Objective: Attain domain awareness. Objective: Enhance measures to ensure
the integrity, reliability, and availability of critical physical and
information- based infrastructures at home and abroad.
Objective: Integrate measures to protect U. S. citizens abroad. Objective:
Ensure an integrated incident management capability.
Source: National Strategy for Combating Terrorism, Feb. 2003.
New Strategies Will Not As we have testified, the strategies by
themselves, no matter how cohesive
Guarantee Success and comprehensive, will not ensure an integrated and
effective set of
programs to combat terrorism. 10 The ability to ensure these things will
be determined through time as the strategies are implemented. In addition,
these new strategies reflect a host of long- standing themes and programs.
For example, certain themes and related programs contained in the new
strategies preventing and deterring terrorism, maximizing international
cooperation to combat terrorism, and improving crisis and consequence
planning and management* were included in the Attorney General*s 1998
Five- Year Interagency Counterterrorism and Technology Crime Plan.
Some of the related policies and programs have been in place for decades.
For example, the State Department*s Antiterrorism Assistance program,
which provides assistance to other countries to improve their
capabilities, has existed since 1983. Given that these strategies are
relatively new, GAO has not yet evaluated their implementation, either
individually or
collectively. However, we have done work that demonstrates the federal
government will face many implementation challenges. For example, we have
designated the implementation and transformation of the Department of
Homeland Security* which will have some responsibilities for combating
terrorism overseas* as a high- risk federal activity. 11 We have also
identified cyber security as a high- risk area. 12
Various Laws Address While there is no single, comprehensive federal law
explicitly dealing with
Terrorism terrorism, the Congress passed and the President signed a series
of laws
dealing with various aspects of terrorism before the September 11, 2001,
terrorist attacks. The Congress passed these laws to ensure that the
10 GAO- 03- 519T. 11 We designated the implementation and transformation
of the department as a high risk for three reasons. First, the size and
complexity of the effort make the challenge especially daunting, requiring
sustained attention and time to achieve the department*s mission in an
effective and efficient manner. Second, components being merged into the
department already face a wide variety of existing challenges that must be
addressed. Finally, the
department*s failure to effectively carry out its mission exposes the
nation to potentially very serious consequences. For more details, see
GAO- 03- 102; GAO- 03- 260; and U. S. General Accounting Office,
Highlights of a GAO Forum: Mergers and Transformation: Lessons Learned for
a Department of Homeland Security and Other Federal Agencies, GAO- 03-
293SP (Washington, D. C.: Nov. 14, 2002).
12 See U. S. General Accounting Office, High- Risk Series: Protecting
Information Systems Supporting the Federal Government and the Nation*s
Critical Infrastructures, GAO- 03- 121 (Washington, D. C.: Jan. 1, 2003).
perpetrators of certain terrorist acts are subject to punishment no matter
where the acts occur; require or permit sanctions on countries and
organizations supporting or sponsoring terrorism; delineate agency roles
and responsibilities; and authorize and/ or appropriate funding for
agencies to carry our their responsibilities.
Responding to the September 11, 2001, terrorist attacks, the Congress
passed and the President signed into law legislation affecting the way the
United States combats terrorism overseas and domestically. The Congress
enacted these laws to improve intelligence sharing, enhance airport
security, and strengthen border control, among other goals. To provide the
intelligence community and law enforcement with additional means to fight
terrorism worldwide and prevent future terrorist attacks, the Congress
enacted the Uniting and Strengthening America by Providing Appropriate
Tools Required to Intercept and Obstruct Terrorism (USA PATRIOT) Act. 13
In addition to broadening the definition of *terrorist
activity* and *terrorist organization,* and addressing international money
laundering, the act also authorizes the Secretary of State to share
sensitive visa information with foreign government officials, where
appropriate. In addition, the Congress recently enacted legislation to
implement the obligations of the United States under the International
Convention for the Suppression of the Financing of Terrorism and the
International Convention for the Suppression of Terrorist Bombings. 14
Another major piece of legislation that has greatly impacted the war on
terrorism, both overseas and domestically, is the Homeland Security Act of
2002. 15 The act created the Department of Homeland Security, an agency
whose primary mission includes preventing terrorist attacks within the
United States and reducing the vulnerability of the United States to
terrorism. The act combined many of the federal agencies involved in
combating terrorism into the new department, including those discussed in
this report. 16 In addition, the act contains a number of provisions that
13 P. L. 107- 56, Oct. 26, 2001. 14 Terrorist Bombings Convention
Implementation Act of 2002 (P. L. 107- 197), Jun. 25, 2002. 15 P. L. 107-
296, Nov. 25, 2002. 16 See appendix II for the Matrix of Department of
Homeland Security Programs and Activities to Combat Terrorism Overseas.
encourage the sharing of information between the intelligence and law
enforcement communities. 17 Recent legislation further addressed the
issues of border and aviation security. The Enhanced Border Security and
Visa Entry Reform Act of 2002
increased the number of authorized INS inspectors and support staff to
prevent terrorist suspects from entering the United States. 18 It also
addressed the need for increased interagency data sharing pertaining to
the admission of and ability to remove aliens. The Aviation and
Transportation Security Act created the Transportation Security
Administration within the Department of Transportation to strengthen
security at U. S. national and international airports. 19
Roles and Another key element in the interagency framework for combating
Responsibilities of Key
terrorism overseas is the delineation of roles played by federal
organizations and agencies. Some play a coordinating role, others serve as
Federal Agencies
leads in specific areas, and many others provide various kinds of support.
Some agencies also have positions designated within them to lead their
agencies* terrorism- related programs and have agency- specific plans. The
roles and responsibilities of the key organizations and agencies are
described below. Subsequent chapters provide additional information on
these agencies* roles in the areas of diplomacy, law enforcement,
intelligence, international finance, military operations, and other
activities to combat terrorism overseas. In addition, appendixes provide
further details on selected agencies* programs and activities.
17 For example, Subtitle I of the act, the Homeland Security Information
Sharing Act, requires that, under procedures prescribed by the President,
all appropriate agencies, including the intelligence community, shall
share homeland security information with federal agencies and appropriate
state and local personnel, subject to certain protections.
18 P. L. 107- 173, May 14, 2002. 19 P. L. 107- 71, Nov. 19, 2001.
National Security Council Located within the Executive Office of the
President, the NSC advises and Leads Coordination Across
assists the President on national security and foreign policy. It serves
as a Agencies
forum for the discussion and debate of national security issues between
the President, presidential advisors, and cabinet officials. It is also
the President*s instrument for coordinating policy among government
agencies on crosscutting issues, such as terrorism. Beyond the NSC
principals committee* consisting of secretaries of the cabinet departments
or equivalent heads of independent agencies* the Council is composed of a
professional staff and various policy coordination committees. The policy
coordination committee that deals with terrorism is the Counterterrorism
Security Group. The National Director for Combating Terrorism chairs this
group, which has subordinate working groups discussed later in this
chapter. The NSC is the lead for developing the National Security Strategy
of the United States of America and the National Strategy for Combating
Terrorism* the key strategies that address combating terrorism overseas.
Office of Homeland Security The Office of Homeland Security, also located
within the Executive Office
Coordinates Related of the President, coordinates efforts to detect,
prepare for, prevent, protect
Domestic Issues against, respond to, and recover from terrorist attacks
within the United
States. Similar to NSC, the Office of Homeland Security has several
interagency working groups (called policy coordination committees) to
manage crosscutting issues. 20 Although mainly domestic in scope, the
Office is involved in functions that intersect with combating terrorism
overseas, such as border security. The Director for Homeland Security
heads this office, which developed the National Strategy for Homeland
Security* the key strategy for combating terrorism domestically.
Office of Management The Office of Management and Budget, also located in
the Executive Office and Budget Tracks Funding
of the President, assists the President in overseeing the preparation of
the for Combating Terrorism
federal budget and supervises its administration in Executive Branch 20
For more information on the Office of Homeland Security and its role and
coordination mechanisms related to combating terrorism domestically, see
U. S. General Accounting Office, Homeland Security: Management Challenges
Facing Federal Leadership, GAO- 03- 260 (Washington, D. C.: Dec. 20,
2002). We reported that additional actions to clarify missions and
activities across agencies involved in homeland security will be necessary
and some agencies will need to determine how best to support both homeland
security and nonhomeland security missions. Also, more emphasis on
collaboration and coordination with the state and local governments and
the private sector will be needed to meet overall goals.
agencies. Since 1998, OMB has issued its Annual Report to Congress on
Combating Terrorism, which provides funding and programmatic information
on the federal government*s efforts to combat terrorism and, in the most
recent report, breaks out funding for combating terrorism overseas
separately from homeland security initiatives. The report summarizes data
for three fiscal years-- the most recent prior year, current operating
year, and the President*s budget year request* by department,
agency, and mission area. Department of State Leads
Below the Executive Office of the President, the State Department is the
Overall Efforts Overseas
lead federal agency for U. S. government activities to combat terrorism
overseas. The activities that State leads include diplomatic efforts on
both the bilateral and multilateral levels, protecting U. S. facilities
and personnel abroad, protecting American civilians traveling and working
abroad, limited law enforcement functions, and providing assistance to
other countries to improve their capabilities to combat terrorism. The
State Department also has the lead in responding to terrorist attacks on
U. S. interests overseas. In such a terrorist incident, State would lead
and
coordinate measures to alleviate damage, protect health, and provide
emergency assistance. Other federal agencies would provide support under
State*s direction.
The Coordinator for Counterterrorism* an ambassador rank position* heads
the State Department*s efforts to combat terrorism. The department*s
objectives for combating terrorism are delineated in the State
Department*s 2002 Annual Performance Plan. This plan describes the
State Department*s objective as to reduce international terrorist
incidents, especially against the United States. Key goals in the plan are
to (1) reduce the number of attacks, (2) bring terrorists to justice, (3)
reduce or eliminate state- sponsored terrorist acts, (4) delegitimize the
use of terror as a political tool, (5) enhance the international response,
and (6) strengthen international cooperation and operational capabilities
to counter terrorism.
Department of Justice Leads The Department of Justice has the lead in law
enforcement and criminal
Arrest and Prosecution of matters related to terrorism* both domestically
and overseas. The
Terrorists department has responsibility for investigating, indicting, and
prosecuting
terrorists. In addition, the department administers training for foreign
law enforcement and security services through a variety of programs. These
responsibilities are distributed among a number of components within
Justice. For example, the department*s efforts to prosecute terrorists are
led by the Counterterrorism Section of Justice*s Criminal Division, and
its Office of International Affairs works with the State Department to
negotiate treaties and agreements with other countries that promote
international cooperation, including cooperation in terrorism cases. The
department*s plans and goals for combating terrorism are documented in its
Strategic Plan for Fiscal Years 2001- 2006.
The FBI leads Department of Justice efforts to investigate international
terrorism. Specifically, the FBI is responsible for the apprehension and
rendition of foreign terrorists who are suspected of violating U. S.
statutes. 21 According to the FBI, it also has the primary responsibility
to collect
foreign intelligence and counterintelligence information, including that
related to terrorism, within the United States. In a terrorist incident
overseas, the FBI could support the State Department in resolving the
crisis. Within the FBI, efforts related to international terrorism are led
by the Counterterrorism Division, which has two International Terrorism
Operations Sections that investigate terrorist crimes against U. S.
interests, along with a Terrorism Financing Operations Section that
investigates terrorism financing. In addition, the FBI legal attaches
overseas work with foreign services. The FBI*s strategic plan is currently
under revision to reflect FBI*s recent reorganization, done in part to
reflect new priorities to include terrorism. 22
Other agencies within the department have important roles. For example,
the ATF leads or supports investigations related to firearms and
explosives, including terrorist incidents overseas. This bureau
transferred from the Department of the Treasury to the Department of
Justice in January 2003. Some of the Department of Justice*s functions
related to border security, such as those conducted by the former
Immigration and Naturalization Service, transferred to the new Department
of Homeland Security in March 2003.
21 According to the FBI, in cases where the United States lacks an
extradition treaty, the U. S. government can capture suspected terrorists
through an overseas arrest called a rendition. State*s Office of the
Coordinator for Counterterrorism, in conjunction with State*s Office of
the Legal Adviser, the Department of Justice, and other agencies, would
coordinate State*s role in negotiating and conducting these arrests. Since
1987, there have been 11 reported renditions (see table 8 in ch. 4 for a
complete list of reported extraditions and renditions of terrorists to the
United States between 1987 and 2001).
22 GAO currently has additional work under way to evaluate the FBI*s
efforts to reorganize.
New Department of The new Department of Homeland Security also has
selected
Homeland Security Has responsibilities for combating terrorism overseas.
It has an Office of
Variety of Functions to International Affairs with responsibilities to
promote information and Combat Terrorism
education exchange with foreign nations with respect to best practices and
technologies related to homeland security. The department also has the
responsibility of coordinating the federal government*s lines of
communications with state and local public safety agencies and the general
public, including monitoring threats from terrorists (including
international terrorists) and keeping the nation alerted via the color-
coded Homeland Security Advisory System.
In addition, the Department of Homeland Security assumed many
responsibilities for combating terrorism overseas when certain agencies
and their functions transferred into the department in March 2003. Many of
these responsibilities relate to border security. For example, the U. S.
Customs Service (formerly under the Department of the Treasury) and the
Immigration and Naturalization Service (formerly under the Department of
Justice) and their functions are now part of the department*s Bureau of
Customs and Border Protection and Bureau of Immigration and Customs
Enforcement. The U. S. Coast Guard (formerly under the Department of
Transportation) is responsible for maintaining border security at certain
maritime borders between ports of entry. In addition, the U. S. Coast
Guard tracks suspicious vessels and works with DOD to conduct maritime
interception operations. The Bureau of Immigration and Customs Enforcement
also has some responsibilities to track and investigate terrorist
financing. The Department of Homeland Security has a number of other
functions as well. For example, the U. S. Secret Service (formerly under
the Department of the Treasury) protects the President and certain other
senior officials when they travel abroad. In addition, the department has
several disaster response teams (formerly with a variety of other
department and agencies) that have a domestic mission but could be
deployed abroad in a terrorist incident overseas. Further, the
department*s responsibilities include enhancing the security of the
nation*s cyber and
physical public and private infrastructures essential to national
security, national economic security, and/ or national public health and
safety. Department of the Treasury
The Department of the Treasury has a number of important roles in
Identifies and Blocks
combating terrorism overseas. The department has a key role, working
Terrorist Financing
with other agencies, in efforts to prevent money laundering and to disrupt
and dismantle the financial support of terrorist organizations. The
Financial Crimes Network and the Office of Foreign Assets Control provide
support to the Treasury and other law enforcement agencies in
investigating and freezing terrorist financial assets. Treasury*s plans
for
financial operations against terrorist finances are included in the
National Money Laundering Strategy, issued jointly with the Department of
Justice. Treasury*s Office of International Affairs coordinates the
department*s assistance to other countries. The Department of the Treasury
recently transferred selected agencies and functions to the Departments of
Justice
and Homeland Security, as discussed above. Department of Defense
DOD is the lead agency for military operations against terrorist Leads
Military Operations
organizations and states that sponsor them. If directed by the President,
Against Terrorists
DOD can use military forces to disrupt and destroy terrorist organizations
and operations. DOD also is responsible for protecting its worldwide
forces from terrorist attacks. In a terrorist incident overseas, DOD could
support the State Department in resolving the crisis. DOD has a broad
array of capabilities* from tactical units to transportation assets to
decontamination units* that could help manage a terrorist incident,
including those involving WMD agents. DOD also leads the U. S.
government*s international counterterrorist response exercise program. DOD
agencies are part of the intelligence community and have a mutually
supportive relationship with the CIA. While DOD provides training and
equipment to foreign governments to improve their capabilities to combat
terrorism, the Department of State retains overall statutory authority for
training and equipping foreign personnel.
The Secretary of Defense establishes policy and guidance for DOD*s
operations to combat terrorism overseas. The Secretary of Defense*s senior
policy advisor on terrorism is the Assistant Secretary of Defense for
Special Operations and Low- Intensity Conflict. The Chairman of the Joint
Chiefs of Staff ensures implementation of the Secretary*s guidance by
issuing
direction to combatant commanders, defense agencies, and the military
services as members of the Joint Chiefs of Staff. Within the Joint Staff,
the Chairman has a number of directorates of dedicated staff with
expertise to conduct the war on terrorism, including the Deputy Director
for the War on Terrorism in the Directorate for Strategic Plans and Policy
(J- 5), the War on
Terrorism Branch within the Special Operations Division of the Directorate
for Operations (J- 3), and several elements within the Directorate for
Intelligence (J- 2).
Staff representing the Secretary of Defense and Chairman of the Joint
Chiefs of Staff work together with other agencies to develop and implement
DOD plans and operations. U. S. military forces, in coordination with
other U. S. government agencies and/ or allied forces, carry out
operations. These forces are under the command of one of the geographic or
functional combatant commanders who have specific areas of responsibility.
DOD*s plans to combat terrorism are included in the
National Military Strategic Plan for the War on Terrorism, which is
implemented by the combatant commands* campaign plans.
Department of Energy Has DOE is responsible for responding to radiological
terrorist incidents and
Role in Radiological Issues preventing the proliferation of WMD materials.
DOE*s response programs
consist of special teams that could deploy overseas to follow State
Department*s lead in a terrorist crisis. Specifically, these DOE response
teams could provide threat assessments, search operations, diagnostic and
device assessments, containment relocation and storage of special nuclear
material, and post- incident cleanup. DOE*s non- proliferation programs,
implemented in conjunction with the State Department and other agencies,
provide assistance and training to foreign countries. These programs are
primarily focused on nations in the former Soviet Union and are aimed at
keeping weapons of mass destruction out of the hands of terrorists and
rogue states by preventing the smuggling of nuclear materials.
No single DOE official is in charge of coordinating the department*s
efforts to combat terrorism. However, the Administrator of the
department*s National Nuclear Security Administration is responsible for
supervising
both response and non- proliferation programs. While the department has no
agency specific strategic plan for combating terrorism, the department*s
response teams have contingency and operational plans. According to
officials from the National Nuclear Security Administration, they are
currently developing plans specific to their counterterrorism and
nonproliferation missions.
Central Intelligence Agency The CIA has the lead for gathering, analyzing,
and disseminating
Leads Overseas Intelligence intelligence on foreign terrorist
organizations. This information is used to
Activities produce a wide variety of intelligence products for
policymakers and
operational agencies, ranging from quick- reaction briefings to long- term
research studies. These efforts broadly support diplomatic, legal,
financial, and military operations against terrorism. Additionally, the
CIA Director is
charged with promoting coordination and information sharing between all
intelligence community agencies. 23 The CIA also has the lead for covert
action and other special activities used to disrupt and destroy terrorist
organizations.
CIA efforts to combat terrorism are coordinated in its Counterterrorist
Center, which is located at the agency*s headquarters. The center, which
includes representatives from a number of other federal agencies, is the
CIA*s central coordination center for agency and governmentwide
intelligence activities related to foreign terrorists.
U. S. Agency for USAID has roles in providing immediate emergency
assistance after a
International Development terrorist incident and in providing long- term
assistance to strengthen other
Helps with Disasters and countries* capabilities to combat terrorism.
USAID, working under the
Institution Building leadership of the Department of State, coordinates U.
S. government efforts
to manage the consequences of a terrorist incident. In the aftermath of a
terrorist incident, USAID could respond with humanitarian relief and
rehabilitation activities. Within USAID, the Office of Foreign Disaster
Assistance leads agency efforts to provide such assistance. In addition,
several USAID programs provide assistance to other countries in developing
their law enforcement and judicial systems. For example, USAID supports
programs to (1) train foreign law enforcement,
prosecutors, and judges and (2) assist in rewriting legislation and
criminal sentencing guidelines. These programs, which are discussed in
chapter 3, could help these countries bring terrorists to justice.
Other Federal Agencies Other federal agencies have more limited roles in
combating terrorism Could Provide Specialized
overseas. These agencies generally have a domestic focus, but have unique
Assistance capabilities to provide technical advice or special response
teams. These
23 The intelligence community includes the Office of the Director of
Central Intelligence; Central Intelligence Agency; the National Security
Agency; the National Imagery and Mapping Agency; the National
Reconnaissance Office; the Defense Intelligence Agency and other offices
within the Department of Defense for the collection of specialized
national intelligence through reconnaissance programs and the intelligence
elements of the Army, the Navy, the Air Force, and the Marine Corps; the
FBI; the Department of the Treasury; the Department of Energy; the State
Department*s Bureau of Intelligence and Research; and such other elements
of any department or agency as may be designated by the President or
jointly by the Director of Central Intelligence and the head of the
department or agency concerned.
teams could deploy overseas to support the State Department in managing a
terrorist WMD incident or in other activities related to terrorism. Such
agencies include the following:
The Department of Health and Human Services has expertise and
capabilities related to the health and medical consequences of terrorist
WMD incidents, particularly biological agents.
The Department of Veterans Affairs has expertise and capabilities
related to the health and medical consequences of radiological agents.
The Environmental Protection Agency has expertise and capabilities
related to identifying and cleaning up hazardous materials, including
chemical agents.
Interagency Another part of the interagency framework to combat terrorism
overseas is
Coordination coordination. Interagency coordination is important because
of the large
number of agencies and multiple functions involved. Agencies involved in
Mechanisms combating terrorism participate in various interagency
mechanisms used to coordinate their activities. In Washington, D. C., NSC
policy coordination committees and interagency working groups coordinate
higher- level policy
issues. Overseas, U. S. missions and regional military commands coordinate
their activities through a combination of working groups and operational
plans. Agencies also achieve interagency coordination through personnel
exchanges and cross- agency liaisons.
Subsequent chapters provide more information on how coordination occurs in
the specific functions of diplomacy, intelligence, law enforcement,
financial operations, and military operations against terrorism overseas.
NSC Oversees Interagency Formal interagency coordination of national
policy and operational issues
Coordination in Washington, to combat terrorism overseas occurs through
the NSC. The NSC heads a
D. C. policy coordination committee called the Counterterrorism Security
Group. 24 The group is comprised of high- level representatives (at the 24
The Counterterrorism Security Group was formerly known as the Coordinating
SubGroup of the NSC Deputies* Committee.
assistant secretary level) from key federal agencies that combat terrorism
such as the Departments of State, Justice, and Defense and other agencies,
to include the FBI and the CIA. Other departments or agencies might be
invited to participate in meetings of the group as needed, such as the
Departments of the Treasury, Transportation, Health and Human Services,
Energy, and FEMA. The group develops and tries to reach consensus on
terrorism policy and operational matters and makes recommendations to
the President. The Counterterrorism Security Group has a number of
subordinate interagency working groups that coordinate efforts related to
specific issues in combating terrorism overseas. Table 4 describes these
subordinate groups and their functions.
Table 4: NSC- Sponsored Interagency Working Groups Under the
Counterterrorism Security Group to Coordinate Efforts to Combat Terrorism
Overseas Working group (Chair) Functions of working group
Exercise and Readiness This long- standing group promotes interagency
planning, implementation, and evaluation of exercises Sub- Group.
to combat terrorism. The State Department, the FBI, and FEMA co- chair the
group, taking Chairs: State Department, the responsibility for planning
exercises. The group has regular meetings where agencies address FBI, and
FEMA
interagency issues, plan future exercises, and compare and resolve
schedule conflicts in agency exercises.
Terrorist Financing Working This group coordinates U. S. government
efforts to identify and deny terrorist financing. It coordinates Group.
policy, strategy, and operations to disrupt terrorist networks by freezing
terrorist accounts. The group Chair: Treasury Department
also helps to develop strategies and activities for working with other
countries. Training and Assistance SubGroup. This group coordinates the
different programs to provide terrorism- related training and assistance
to
foreign governments and their officials. This training can include
technical assistance, classroom Chair: State Department
courses, or field training. The group works to prioritize countries that
should receive assistance. The group reviews assistance programs of the
various agencies to ensure they are properly sequenced, avoid duplication,
and ensure that they are implemented in collaboration with or reinforce
other efforts, as appropriate.
Counterterrorism Finance This is a subgroup of the above Training and
Assistance Sub- Group that focuses on assistance to Training and Technical
other countries to eliminate terrorist funding. The group focuses on
providing related finance training Assistance Working Group.
and technical assistance to a set of priority countries, and attempts to
ensure that the delivery of such Chair: State Department
assistance by different agencies does not conflict and is used effectively
and efficiently. Hostage Crisis Working Group
This group develops and coordinates the U. S. government*s hostage crisis
policy. The group meets on Chair: NSC an emergency basis to monitor and
plan actions related to overseas crises or incidents where
Americans are taken hostage by terrorists. Technical Support Working This
long- standing group conducts the national interagency research and
development program for Group.
combating terrorism. It operates under the policy oversight of the State
Department and the Chair: State Department
management and technical oversight of DOD. This group coordinates research
and development across nine categories of terrorism- related products,
amounting to $165 million in fiscal year 2003.
Source: GAO discussions with NSC and agency officials. Note: Until
recently, there was also a National Strategy Working Group chaired by NSC.
This group was formed to develop, write, and coordinate the National
Strategy for Combating Terrorism. It disbanded when the strategy was
published in February 2003.
Some terrorism- related groups formerly under the NSC have been
transferred to the Office of Homeland Security. For example, the NSC had
interagency working groups related to issues such as WMD consequence
management, aviation security, and assistance to state and local
governments. These functions are now covered by the Office of Homeland
Security, which has its own interagency working groups (called policy
coordination committees) to coordinate these and other domestic issues.
Our work in producing this report did not evaluate the implications of the
new Department of Homeland Security, but it also will participate in some
of these policy coordination committees under the sponsorship of the
Office of Homeland Security.
Coordination Occurs At U. S. embassies overseas, programs to combat
terrorism are coordinated
Overseas through U. S. through various plans and working groups. Each
embassy has a mission
Missions performance plan to coordinate embassy activities across
agencies. The mission performance plans list each embassy*s priorities and
include
implementation and budgeting plans. In cases where combating terrorism is
a priority, the plan might include specific goals and actions to counter
that threat. For example, one embassy has goals to both reduce the threat
of terrorists against Americans in that country and to keep the host
government an active and effective member of the international coalition
against terrorism.
In addition, embassies have a *country team* that can be used to
coordinate efforts to combat terrorism. The country team, which includes
representatives from all of the agencies with representatives at the
embassy, sometimes have subgroups related to terrorism. For example,
selected embassies have country team subgroups dedicated to law
enforcement matters, chaired by the deputy chief of mission. These groups
consist of agency representatives at the embassy with law enforcement
duties, such as the regional security officer, FBI legal attache, Treasury
Department financial attache, and officials from other agencies. The
country teams and their subgroups meet regularly and on an ad hoc basis
for crises or time- sensitive matters. The ambassador works with the
country teams in developing the mission performance plan discussed above.
Regional Military U. S. regional military commands also have plans and
interagency working
Commands also Provide groups to coordinate their military operations with
other agencies to
Interagency Coordination combat terrorism overseas. These regional
commands include the U. S. Central Command, U. S. European Command, U. S.
Southern Command, and
Overseas U. S. Pacific Command. 25 All of these commands have Campaign
Plans and
Theater Security Cooperation Plans to coordinate their activities. The
Campaign Plans are the regional commanders* strategies for implementing
DOD*s National Military Strategic Plan for the War on Terrorism in their
specific geographic area of responsibility. These plans include efforts to
coordinate both military and non- military operations. In addition, the
commands* Theater Security Cooperation Plans lay out strategies for
working with other countries in the region to further U. S. foreign policy
and military goals. Command officials told us that since September 11,
2001, these plans have additional emphasis on coordinating efforts to
combat terrorism with other countries.
These regional commands also have new interagency working groups to help
coordinate activities to combat terrorism across different agencies. DOD
created these interagency groups on an experimental basis right after the
September 11, 2001, terrorist attacks and NSC formally approved them in
January 2002. The working groups coordinate military operations with
nonmilitary activities, to include diplomacy, law enforcement,
intelligence, and others. The groups include representatives from the
Department of State, Department of Justice (including the FBI), Department
of Homeland Security (including the U. S. Secret Service), the
intelligence community (including the Defense Intelligence Agency,
National Security Agency, and National Imagery and Mapping Agency), and
other agencies (including USAID). These interagency working groups include
agencies with longstanding representatives at the commands as well as
newcomers. For example, some of the defense components of the intelligence
community have long had liaisons at the regional commands. In contrast,
law enforcement agencies have only recently assigned staff to the regional
commands on a full- or part- time basis.
25 We did not include the newly created U. S. Northern Command in our
review because of its domestic focus. The Northern Command is responsible
for homeland defense within the United States and at its borders.
Interagency Coordination Agencies also accomplish interagency coordination
and information
also Facilitated via sharing through personnel exchanges and agency
liaisons. Such exchanges
Personnel Exchanges occur at all levels and can be extensive. For example,
the FBI and the CIA
routinely detail senior- level officers to the counterterrorism office of
their counterpart. The Deputy Chief of the CIA*s Counterterrorist Center
is an FBI official, while the Deputy Section Chief in the FBI*s
Counterterrorism Division is a CIA official. Additionally, the staff of
the newly instituted Office of Intelligence at the FBI is headed by a CIA
official and includes 25 staff on detail from the CIA.
The staff exchanges provide a valuable service to both their assigned and
home agencies. Besides contributing their own expertise, part of the job
of these detailees is to provide their agency hosts with timely verbal
briefings,
especially during crisis situations when interagency liaison is critical.
For example, CIA officers detailed to the counterterrorism offices of
other agencies maintain direct contact with their primary assignments at
the CIA*s Counterterrorist Center. State Department political advisors
detailed to U. S. regional military commands help coordinate with both
State Department headquarters in Washington, D. C., and with U. S.
embassies overseas.
Personnel also learn about other agencies by taking orientation and
training courses. One new initiative is a training program where new CIA
chiefs of station are introduced to FBI perspectives and capabilities. New
FBI legal attaches receive reciprocal training at the CIA. Through these
types of initiatives, personnel are able to better understand their
counterparts* roles, responsibilities, and authority and thus promote
better coordination.
Coordination through personnel exchanges also occurs at the international
level. For example, U. S. officials are detailed to international
multilateral organizations, such as the International Police Organization
(INTERPOL) and the North Atlantic Treaty Organization (NATO).
Agency Comments and The Departments of Defense, Justice, and State and
USAID provided Our Evaluation
technical comments on this chapter, generally relating to their roles in
combating terrorism overseas. Based upon these comments, we made
revisions, as appropriate. We also made revisions regarding the creation
of the Department of Homeland Security and the transfer of various
agencies and functions from other departments into that department.
Federal Efforts to Detect and Prevent
Chapt 3 er Terrorism The federal government has an important mission to
protect Americans abroad from terrorist attacks. A critical component in
performing that mission is detecting terrorists and preventing their
attacks against U. S. interests. By protecting Americans abroad, the
federal government helps protect the homeland. Federal efforts to detect
and prevent terrorism involve a wide range of programs and activities.
Efforts to detect terrorism are led by the CIA and the intelligence
community, which gather, analyze, and share intelligence on terrorist
threats. Efforts to protect U. S. interests
abroad are led by the State Department and other agencies, which have
programs to protect U. S. government facilities and personnel as well as
American civilians living, working, and traveling overseas. Preventing
terrorism through public diplomacy is led by the State Department, which
seeks to shape foreign opinion and garner support for U. S. foreign
policy. Efforts to prevent terrorists from entering the United States are
conducted
by several federal agencies, which operate visa and border controls.
Efforts to prevent terrorism also include several agencies* programs to
improve coalition partners* capabilities through training, equipment,
security, and economic assistance, and assistance in providing security
for special international events. This chapter describes the relevant
federal programs
in place and is not an evaluation of their effectiveness. Intelligence
The National Strategy for Combating Terrorism includes objectives to
Gathering and Analysis identify and locate terrorists and terrorist
organizations. There is also an objective to attain domain awareness* the
knowledge of all activities,
Help Detect events, and trends within any specified domain (air, land,
sea, and cyber)
Terrorist Activities that could threaten the United States. Intelligence
gathering and analysis
are key functions toward these objectives. Intelligence gathering and
analysis are critical in detecting terrorist activities and generally are
led by the CIA. Under the overall leadership of that agency, U. S.
intelligence agencies gather information on terrorist organizations,
monitor terrorist threats, and share information with other nations. The
Departments of State and Defense collect and analyze intelligence and
participate in surveillance programs and liaisons with foreign police at
the local level.
These intelligence activities support other preventative efforts, such as
protecting U. S. facilities and Americans overseas, public diplomacy, and
border controls.
Federal efforts to combat terrorism are supported by the work of the U. S.
intelligence community, which is a group of government agencies that play
various roles in intelligence gathering, analysis, and distribution. That
intelligence provides policymakers with valuable information about
terrorist organizations and forms the basis for threat assessments and
warnings. Also, it generally supports operations against terrorist
organizations. In the wake of September 11, 2001, many intelligence
agencies have sought to reduce barriers to the flow of such intelligence
between and within agencies. The CIA and various interagency bodies manage
the coordination of these agencies.
CIA Leads Intelligence The CIA leads the intelligence community in efforts
to collect, analyze,
Community Collection and disseminate information on terrorist incidents
and groups. This
and Analysis of Foreign information and analysis is used to inform
government decision makers
Intelligence from Overseas and supports diplomatic, legal, and military
operations against terrorism. It
can include such things as how terrorist groups are organized, who their
leaders are, what their objectives are, what weapons and tactics they use,
and whether they receive support from state sponsors of terrorism.
Such information is collected through various means. Signals intelligence
can be collected through intercepted communications, radar, and telemetry
signals. Imagery intelligence can be derived from visual photography,
infrared sensors, lasers, and electro- optics. Human intelligence is
collected directly from human sources, sometimes through clandestine
collection operations. Open source intelligence is gathered from media
sources open to the public, such as foreign newspapers or trade journals.
A considerable volume of intelligence information has been produced by the
current military campaign in Afghanistan. According to the CIA, this
information has provided policymakers with a better understanding of al
Qaeda*s leadership, structure, and capabilities.
Raw intelligence on terrorist groups, such as the previous example, is
combined and analyzed by various agencies, but most notably by staff of
the Counterterrorist Center within the CIA. Dissemination of finished
intelligence occurs through various intelligence community products,
including periodicals, daily reports, daily briefings, and warning
memorandums. The products are delivered to national- level policymakers
including the President, Cabinet- and sub- Cabinet- level officers,
Members of Congress, U. S. military commands, and law enforcement
agencies. Some products are short- range, such as the President*s daily
intelligence brief, while more long- range forecasts are made through
National Intelligence Estimates.
FBI Has Key Role in In addition to law enforcement functions, the FBI is
designated as an
Collection and Analysis of intelligence agency by Executive Order 12333. 1
As such, according to the
Foreign Intelligence from FBI, it has the primary responsibility for the
collection of foreign
Domestic Sources intelligence and counterintelligence information within
the United States.
In this role, the FBI monitors the activities of terrorist groups
(including those of foreign origin) operating within the United States.
Within FBI, these activities are coordinated through the FBI*s
Counterterrorism Division. Intelligence information collected by the FBI*s
Counterterrorism Division is used to protect against international
terrorism by identifying terrorist groups, their members, their plans, and
the means by which they communicate and conceal their activities. The FBI
gathers this information through Foreign Intelligence Surveillance Act
investigations, recruited sources, double agents, and undercover
operations. The FBI also monitors the activities of terrorist groups
operating outside the United States. For example, FBI Legal Attaches
overseas acquire and disseminate information on terrorists through liaison
with foreign services. In addition
to using FBI intelligence, the Counterterrorism Division utilizes
intelligence information from other agencies such as the CIA, the Defense
Intelligence Agency, National Security Agency, and the State Department.
Eighteen federal agencies are represented in the division, including the
CIA, the U. S. Secret Service, and the Department of State. The FBI*s
Threat Assessment/ Prevention Unit also assists international terrorism
personnel with assessing the potential threats existing in the short- and
long- term environments. In addition, the FBI*s Office of Intelligence
supports counterterrorism and counterintelligence programs through
strategic and tactical intelligence capacity.
Information from these various sources is collected, analyzed, and shared
with policymakers and investigators. Raw intelligence collected by the
intelligence community also is compared with investigative data
accumulated by the FBI to determine the feasibility and credibility of
threat information received in various venues. The Counterintelligence
Division coordinates investigative matters concerning foreign
counterintelligence, including activities related to investigations into
espionage, overseas
homicide, protection of foreign officials and guests, and nuclear
extortion. The FBI*s goal in these intelligence activities is to assemble
a picture of the threats posed by international terrorist groups and
provide a basis for neutralizing those groups before they commit acts of
terrorism.
1 Executive Order 12333, United States Intelligence Activities, Dec. 4,
1981.
Other Agencies also Have The State Department also has a major role in
gathering, analyzing, and
Important Intelligence Roles disseminating intelligence on terrorist
groups. The department*s Bureau for
Intelligence and Research prepares intelligence reports and related policy
guidance for the Secretary of State and other department officials. In
addition, this bureau provides intelligence products, such as threat
information, to ambassadors at U. S. embassies. This bureau also conducts
foreign public opinion surveys related to terrorism. For example, it
conducted surveys in several Arab countries to gauge public reaction to
the September 11, 2001, terrorist attacks and public perceptions of Osama
bin Laden. The department*s Bureau of Diplomatic Security gathers
information through its contacts with foreign police, security, and
intelligence officials. Through these contacts and related investigations,
this bureau*s regional security officers* located at U. S. embassies* may
be the first to recognize potential terrorist activities and threats. The
bureau
also analyzes terrorist and related threats and publishes their results in
Significant Incidents of Political Violence Against Americans, and
Terrorist Tactics and Security Practices: Lessons Learned and Issues in
Global Crime. In addition, the departments* Coordinator for
Counterterrorism, in conjunction with the intelligence community, studies
terrorist groups and state sponsors of terrorism, and provides a review of
the international terrorism situation in the annual publication Patterns
of Global Terrorism. 2 These publications are disseminated to, among
others, department offices and U. S. embassies for their use in developing
policies and programs to combat terrorism.
DOD also plays a significant role in intelligence collection and analysis.
The Defense Intelligence Agency provides military intelligence to
warfighters, policymakers, and force planners involved in combating
terrorism. The National Security Agency collects and processes foreign
signals intelligence for national leadership and warfighters. The National
Reconnaissance Office coordinates collection and analysis of information
from space and airborne reconnaissance by the CIA and the military
services. In addition, the Army, the Navy, the Air Force, and the Marine
Corps intelligence agencies each collect and process intelligence relevant
to their particular service*s needs. Regional command officials told us
that DOD*s combined intelligence activities are increasingly focused on
protecting deployed military forces, supporting military operations
against
2 The State Department prepares this annual publication for the Congress
as required by 22 U. S. C. S: 2656f (2002).
terrorists, and providing intelligence to other federal agencies that
combat terrorism overseas.
The Department of Homeland Security also has a role in analysis of
information related to terrorism threats because the nation*s critical
cyber and physical infrastructures are vulnerable to attack from
international sources. According to the Homeland Security Act, the
Department of Homeland Security*s Information Analysis and Infrastructure
Protection Directorate is responsible for accessing, receiving, and
analyzing law enforcement information, intelligence information, and other
threat and incident information from respective agencies of federal,
state, and local governments and the private sector and for combining and
analyzing such information to identify and assess the nature and scope of
terrorist threats. 3 The directorate also is tasked with coordinating with
other federal agencies
to administer the Homeland Security Advisory System to provide specific
warning information along with advice on appropriate protective measures
and countermeasures.
Threat Assessments Threat assessments and warnings play a crucial role in
the dissemination
Allow Government to effort, helping to inform and prioritize security
planning. When the threat of
Take Preemptive or terrorism becomes pronounced, warnings are issued to
the public and Preventive Actions
policy community. One of the more visible threat assessments by the
intelligence community is the Homeland Security Advisory System. The
warning function for the counterterrorism community is housed within the
Community Counterterrorism Board, which produces Terrorist Alerts and
Advisories on a need- to- know basis for a wide government audience.
*Strategic warning* is used to describe instances in which the
intelligence community has very broad indications that an attack may occur
but does not have the specifics as to where, when, or how the attack will
be carried out. Strategic warning enables policymakers and government
decision makers to take steps to strengthen anti- terrorist defenses and
initiate other counterterrorist actions. Strategic warnings could include,
for example, the Department of Homeland Security adjusting its threat
levels and DOD adjusting its Force Protection Conditions. *Tactical
warnings* may be issued when the intelligence community has more detailed
information on where, when, or how an attack might be carried out.
3 Section 201, P. L. 107- 296, Nov. 25, 2002.
Tactical warnings can lead to immediate, direct preventive action against
specific individuals who may be involved in the planned attack and to
implement appropriate protective action for specific targets. For
instance, in early September 2002, the State Department was able to act on
credible and specific threat information by closing many U. S. embassies
in Asia and
reviewing their security postures. Intelligence Supports
Intelligence information supports the efforts of other agencies involved
in Diplomatic, Law
combating terrorism overseas. It enhances the diplomatic efforts of the
Enforcement, and
Department of State, for example, by providing essential information to
the Military Actions
TIPOFF database intended to prevent terrorists from obtaining entry visas
into the United States. Intelligence information also augments the
security of U. S. military facilities abroad, for instance through the
CIA*s Counterterrorist Center. The center maintains a liaison staff to
provide military commands worldwide with up- to- date information on the
modus operandi of terrorist groups in their geographic areas of
responsibility. Investigations by the FBI and other law- enforcement
agencies also derive support from intelligence information. Finally,
military operations against
terrorist organizations often rely on intelligence information. For
example, the 1998 cruise missile attack against an al Qaeda training camp
in Afghanistan relied on data from the intelligence community.
Actions undertaken by the U. S. diplomatic, law enforcement, financial,
military, and intelligence communities supported by intelligence
information are discussed further in chapter 4.
Efforts to Reduce Before September 11, 2001, much information sharing was
handled through
Barriers to Information staff detailed to other agencies and interagency
liaison. For example, in
Sharing Within the early 2001, 10 percent of the CIA Counterterrorist
Center*s staff
Federal Government complement had been detailed from outside agencies.
Recent efforts to improve data sharing have focused primarily on data
access and
availability. According to recent testimony by the Director of Central
Intelligence, the State Department currently is working with the CIA to
renovate the current TIPOFF all- source watchlist into a National
Watchlist Center that will serve as a base for all watchlists in the U. S.
government. 4 In
4 Written Statement for the Record of the Director of Central Intelligence
before the Joint Inquiry Committee, Oct. 17, 2002.
the interim, the Community Counterterrorism Board is providing secure
access to State*s current watchlist database via a secure system known as
*CT Link.* Furthermore, the CIA currently is developing a multi- agency,
common repository for classified and unclassified information accessible
to the entire intelligence community as well as to state and local law
enforcement.
To improve intelligence sharing both within and among agencies,
intelligence agencies are reevaluating their own internal data management
procedures. The FBI plans to fully convert to a new data management system
by December 2003 and currently is in the process of consolidating its
various databases. The CIA also is attempting to improve its database
procedures. These improvements include: consolidating terrorist identity
information, lowering the threshold for nominating individuals for
watchlist status, lowering the threshold for dissemination of information
previously regarded as *operational,* and increasing managerial oversight
through periodic reviews of the system. Efforts also are under way to
improve information sharing between members of the intelligence community
and the law enforcement community. The FBI*s Criminal Division develops
evidence for possible prosecution, while the CIA and other intelligence
agencies develop intelligence to assess and counter threats. The
collection and use of intelligence information on individuals for domestic
law enforcement purposes is constrained by the application of
constitutional protections, statutory controls, and rules of evidence. For
instance, to obtain a search warrant in a criminal investigation, the
government, in general, is required to establish probable cause to believe
that an individual has committed, is committing, or is about to commit a
particular predicate offense. 5 The rules are different for domestic
collection of foreign intelligence. In general, the Foreign Intelligence
Surveillance Act of 1978 (FISA) requires that a FISA Court judge find
probable cause to believe that a suspect target is a foreign power or an
agent of a foreign power, and that the places at which the surveillance is
directed are being used, or are about to be used, by a foreign
5 Title III of the Omnibus Crime Control and Safe Streets Act of 1968 (P.
L. 90- 351), Jun. 19, 1968, as amended.
power or an agent of a foreign power. 6 As a result of these different
standards, there are situations in which it is possible to obtain a
foreign intelligence surveillance order that would not satisfy the
standards for a criminal search warrant or electronic surveillance order.
7 FISA has been interpreted as requiring a separation or *wall* that
limits coordination between domestic law enforcement and foreign
intelligence investigations and the use of information collected by
foreign intelligence agents in criminal prosecutions. 8 Various provisions
of the USA PATRIOT Act seek to
improve the sharing of information between the intelligence and law
enforcement communities. 9 For example, the USA PATRIOT Act amended FISA
to provide more flexibility to federal investigators in sharing
information obtained under FISA. 10
International Intelligence U. S. intelligence operations also are
augmented by the efforts of
Sharing and Cooperation U. S. friends and allies. Historically, the United
States often has participated
in beneficial bilateral intelligence cooperation with other countries. The
Director of Central Intelligence formulates policy governing the liaison,
coordination of relationships, and cooperative intelligence arrangements
between members of the intelligence community and the intelligence or
security branches of foreign governments. These relationships can take the
form of reciprocating collection and analysis activities, joint collection
operations, exchange of analysts or technicians, or even training
furnished by the United States in return for services rendered by the
foreign intelligence service. In one such training program, the CIA*s
Counterterrorist Center is involved in training foreign agencies to better
prevent terrorist attacks. According the Director of Central Intelligence,
6 P. L. 95- 511, Oct. 25, 1978, as amended. 7 See U. S. General Accounting
Office, FBI Intelligence Investigations: Coordination Within Justice on
Counterintelligence Criminal Matters Is Limited, GAO- 01- 780 (Washington,
D. C.: July 16, 2001).
8 A second type of *wall* continues to limit the use of foreign
intelligence information in criminal prosecutions. In this respect,
intelligence analysts are concerned that primary sources and methods could
be disclosed, namely in criminal court. This may cause them to release
intelligence information to the FBI for lead purposes only, rather than
fully share
information that could be used for evidentiary purposes. 9 P. L. 107- 56.
For example, see sections 203, 218, and 504.
10 Also see the recent decision of the United States Foreign Intelligence
Surveillance Court of Review In re: Sealed Case No. 02- 001, Nov. 18,
2002, which addresses these issues.
these foreign security services arrest terrorists on the basis of U. S.
intelligence. For example, terrorist groups planning attacks on American
and local interests in Europe were identified and disrupted
through cooperation between the CIA and various European governments.
Intelligence liaison has also greatly augmented U. S. efforts against al
Qaeda.
Coordination Mechanisms Executive responsibility for coordination and
information sharing among
for Intelligence Activities the intelligence community agencies lies with
the Director of Central
Intelligence. 11 The Director serves as the President*s principal
intelligence advisor and serves as both head of the CIA and the greater U.
S. intelligence community. The Director*s coordination duties include
being the intelligence community*s spokesman to the Congress, establishing
services of common concern within the intelligence community, and
promoting common administrative practices* most notably on classification
issues. The Director also has full responsibility for the production,
interagency sharing, and timely dissemination of foreign intelligence
information, and carries the authority to assign specific analytical tasks
to specific intelligence community member agencies. The Director also
governs requirements and priorities for the collection of foreign
intelligence.
Interagency Intelligence The lead forum for coordination of intelligence
activities across agencies is Committee on Terrorism
the Interagency Intelligence Committee on Terrorism. The committee,
established in 1990, advises and assists the Director of Central
Intelligence in coordinating the intelligence community over the long
term. It facilitates the Director*s use of intelligence resources to
resolve long- term policy coordination issues in combating terrorism. It
is composed of representatives of the intelligence, law enforcement, and
regulatory communities, and it also oversees several subcommittees. These
subcommittees conduct research and develop solutions to intelligence
issues, including Intelligence Requirements, Information Handling,
Technical Countermeasures, Training, Warning, and Unconventional Weapons.
Leadership within the committee is provided by the Community
Counterterrorism Board, which serves as the committee*s executive
secretariat. The board also manages *CT Link,* a secure network for
counterterrorism research, coordination, and communication available on 11
See Executive Order 12333, United States Intelligence Activities, Dec. 4,
1981.
the individual desktops of all member agencies. Committee members assess
indications of terrorist threats and share information on the activities
of terrorist groups and countries that sponsor terrorism. Table 5 shows
selected members of the Interagency Intelligence Committee on Terrori sm.
Tabl e 5: Selected Members of the Interagency Intelligence Committee on
Terrorism Organization Organization
Central Intelligence Agency Department of State Department of Defense
Department of Justice Office of the Secretary of Defense
Criminal Division Defense Intelligence Agency
Federal Bureau of Investigation National Security Agency
Bureau of Alcohol, Tobacco, Firearms and Explosives National
Reconnaissance Office
Drug Enforcement Administration National Imagery and Mapping Agency
U. S. Marshals Service Defense Information Systems Agency
Department of Transportation Defense Threat Reduction Agency
Federal Aviation Administration Defense Advanced Research Projects
Agency
White House Communications Agency Department of Homeland Security
White House Military Office U. S. Secret Service
Joint Chiefs of Staff U. S. Coast Guard
Unified Commands Bureau of Immigration and Customs Enforcement
U. S. Army Bureau of Customs and Border Protection
U. S. Air Force Federal Emergency Management Agency
U. S. Marine Corps Environmental Protection Agency
U. S. Navy Executive Office of the President Chemical, Biological
Incident Response Force
National Security Council Office of Homeland Security Executive
Office of the Vice President
U. S. Postal Service Federal Reserve Board National Communications System
Nuclear Regulatory Commission Department of Commerce U. S. Capitol Police
Department of Energy Department of Health and Human Services Source: CIA.
Counterterrorist Center at CIA The primary link between the long- term
interagency coordination needs of the Interagency Intelligence Committee
on Terrorism and the more immediate coordination needs of intelligence
operations is the Director of Central Intelligence*s Counterterrorist
Center. The center was established at CIA Headquarters in 1986 to
coordinate intelligence operations across agencies. Many agencies
represented in the center are also members of the Interagency Intelligence
Committee on Terrorism. All information on terrorists is channeled to the
center. This intelligence collection is fused with analysis and
operational capabilities to give the center the speed to seize fleeting
opportunities. The center is, therefore, somewhat unique among
intelligence *centers,* in that it combines intelligence analysis,
planning, operational support, and also serves as a general platform for
carrying out general U. S. counterterrorism policy.
The interagency coordination managed by the Counterterrorist Center is
intended to support U. S. efforts to penetrate, preempt, disrupt, and
ultimately destroy terrorist organizations worldwide. The center carries
out a number of responsibilities against terrorism: analysis, warning, and
activities in support of diplomatic, legal, and military operations
against terrorism. For example, it often plays a key role in the tracking
and rendition of terrorist suspects, usually in concert with the FBI or
foreign law enforcement agencies. The center also prepares intelligence
reports on terrorist groups and countries that support terrorism that are
made available to other intelligence and law enforcement agencies. For
example, the center issues a monthly, classified review of international
terrorism developments and provides other analysis on terrorist groups,
capabilities, or incidents as needed. Smaller units within the center
develop specialized intelligence on specific terrorist groups. As
mentioned earlier, the center makes extensive use of personnel exchanges
to facilitate greater coordination. Counterterrorist Center staff work
closely with other agency counterparts in Washington, D. C., and with
intelligence assets in the field.
Beyond the operational coordination of the Counterterrorist Center and the
long- term coordination initiatives of the Interagency Intelligence
Committee on Terrorism, the intelligence community uses no overarching
strategic plan to coordinate its efforts. There are, however, operational
plans for intelligence campaigns against specific targets, such as Osama
bin Laden.
New Terrorist Threat In January 2003, the President announced the creation
of a Terrorist Threat
Integration Center Integration Center to coordinate intelligence
activities across agencies. The
President instructed the leaders of the FBI, CIA, and Departments of
Defense and Homeland Security to develop the center to merge and analyze
all threat information in a single location. The center is to have access
to all terrorist threat information available to the U. S. government and
will seek to minimize any seams between analysis of terrorism intelligence
collected overseas and in the United States. It is to conduct threat
analysis, institutionalize information sharing across agency lines, and
provide comprehensive threat assessments. The center also is intended to
play a
lead role in tasking the intelligence community to gather intelligence and
it will maintain an up- to- date database of known and suspected
terrorists. It will not conduct intelligence collection or operations. The
Terrorist Threat Integration Center will eventually be collocated with the
Director of Central Intelligence's Counterterrorist Center and the FBI's
Counterterrorism Division to improve collaboration among agencies. However
the Director of Central Intelligence's Counterterrorist Center and the
FBI's Counterterrorism Division will retain their distinctive operational
capabilities. The head of the center will report to the Director of
Central Intelligence. The Director of Central Intelligence will appoint
the head of the center in consultation with the Attorney General, the
Secretaries of Defense and Homeland Security, and the Director of the FBI.
In February 2003, the President announced a plan for implementing the new
center, starting in May 2003.
Protecting The National Strategy for Combating Terrorism includes an
objective to
U. S. Government integrate measures to protect U. S. citizens abroad.
According to the
strategy, the Department of State will take the lead and, in conjunction
with Facilities and
appropriate agencies, partner with industry to establish cost- effective
best Americans Abroad
practices and standards to maximize security. Toward this objective, the
Department of State conducts multifaceted activities in its effort to
prevent terrorist attacks on Americans abroad. For example, to protect U.
S. officials, property, and information abroad, State operates programs
that include local guards for U. S. missions, armored vehicles for embassy
personnel, U. S. Marine security guards to protect sensitive information,
and plans to evacuate Americans in emergencies. DOD has similar programs
to protect its military forces against terrorist attacks. The U. S. Secret
Service and State*s Bureau of Diplomatic Security protect senior U. S.
government officials when traveling overseas. For Americans traveling and
living abroad, State issues public travel warnings and public
announcements and operates warning systems to convey terrorism- related
information. For U. S. businesses and universities operating overseas,
State uses the Overseas Security Advisory Councils* voluntary partnerships
between the State Department and the U. S. private sector* to foster the
exchange of security and threat information, implement security programs,
and provide a forum to address security concerns. These efforts are
coordinated both at the headquarters level in Washington, D. C., and at
individual U. S. missions abroad. U. S. Mission Security The Department of
State*s Bureau of Diplomatic Security is responsible
for providing a secure environment worldwide for the conduct of American
diplomacy. The bureau manages a broad range of programs to create and
maintain appropriate levels of security for more than 50, 000 U. S.
government personnel, staff, and dependents, who work and live at 260
embassies, consulates, and other U. S. missions overseas. The bureau can
dispatch Diplomatic Security teams to threatened overseas missions. At
each U. S. mission, the regional security officer is responsible for
implementing Diplomatic Security measures and coordinating protection with
host government authorities.
The Bureau of Diplomatic Security also reviews standards and risk
management. It develops, evaluates, and applies security standards for a
broad range of categories. These include (1) physical protection for
office and residential buildings, (2) access to communication equipment,
(3) intrusion detection devices, (4) secure conference rooms, and (5)
armored vehicles. These standards are intended to allow the bureau to
identify and address threats posed by terrorism, political violence, human
intelligence, and technical intelligence penetration of facilities.
The bureau uses these elements to target resource allocations to
identified threats at each mission or location. The bureau is required to
provide to the Congress each year a ranking of the U. S. missions abroad
most vulnerable to terrorist attack. 12 These standards also help target
additional security funding to the highest threat missions, as in the case
of Emergency Security
12 See U. S. General Accounting Office, Embassy Construction: Better Long-
Term Planning Will Enhance Program Decision- Making, GAO- 01- 11
(Washington, D. C.: Jan. 22, 2001). In this report, we note that the
Department of State has ranked the more than 180 facilities that it
proposes to replace and/ or provide with major security enhancements into
groups or *bands* of 20 in order from the most vulnerable to the least
vulnerable to terrorist attack.
The ranking, which is provided to the Congress annually, is intended to
serve as a guide for which embassies and consulates State would replace
first.
Supplemental and Worldwide Security Upgrade funds to meet the most
pressing security needs.
The State Department conducts multifaceted activities in an effort to
prevent terrorist attacks against U. S. missions. Following the August
1998 bombings of the U. S. Embassies in Nairobi, Kenya, and Dar es-
Salaam, Tanzania, State upgraded security for all of its missions. As we
have
reported previously, there are a number of U. S. embassy security programs
and activities to prevent terrorism overseas, which generally are managed
by State*s Bureau of Diplomatic Security. 13
Embassy threat assessments This Bureau of Diplomatic Security program
helps the Bureau of Overseas Buildings Operations develop embassy security
measures. The Bureau of Diplomatic Security develops, with other elements
in State, threat assessments that State uses to prioritize which U. S.
missions are most in need of new, safer embassy buildings.
Embassy construction program This Bureau of Overseas Buildings Operations
program is attempting to replace State Department*s less secure facilities
on an accelerated basis with new, secure embassies and consulates that
meet current security standards, such as having a 100- foot setback from
streets surrounding
embassies. State has a 6- year Long- Range Overseas Buildings Plan, which
includes both new construction and the major renovation and rehabilitation
of existing facilities.
Worldwide Security The Bureau of Diplomatic Security and Bureau of
Overseas Buildings
Upgrade Program Operations jointly are responsible for the Worldwide
Security Upgrade Program, which provides a physically secure environment
for all
U. S. government personnel under the jurisdiction of the chief of mission.
The Bureau of Diplomatic Security, through its physical security program,
strengthens building exteriors, lobby entrances, and the walls and fences
around embassies and consulates. 14 Inside an embassy or consulate,
closed- circuit television monitors, explosive- detection devices, walk-
through metal detectors, and hard- line walls and security doors
provide protection. These are intermediate measures* only new embassies
will address all security concerns.
13 See U. S. General Accounting Office, Combating Terrorism: Department of
State Programs to Combat Terrorism Abroad, GAO- 02- 1021 (Washington, D.
C.: Sept. 6, 2002).
Residential Security program The Residential Security program provides for
security upgrades to the residences of U. S. employees assigned to
overseas diplomatic and consular missions. Prior to occupancy, all newly
acquired residential facilities are
equipped with appropriate security features, such as locks, alarms,
shatterresistant window film, and reinforced doors, based on the level of
the threats.
Overseas Protection of The Overseas Protection of Information program
implements a
Information program comprehensive set of information protection programs.
These programs
are intended to protect national security information discussed at
meetings in secure conference rooms or on secure telephones, processed and
stored on computers, and preserved and communicated on paper documents.
This program includes (1) personnel investigations for security
clearances,
(2) courier protection for diplomatic pouches, (3) construction security
and access control equipment, (4) U. S. Marine security guards controlling
access to embassies at 130 U. S. missions overseas, (5) locks for
containers holding classified material, (6) secure conference rooms, (7)
detection and containment of emanations from processing equipment, (8)
counterintelligence investigations and briefings, and
(9) computer security. Surveillance Detection Program The Surveillance
Detection Program utilizes plainclothes security agents
to provide surveillance detection measures around U. S. embassies,
consulates, and residences of embassy employees. The program is used to
identity suspicious activity, such as terrorists* casing embassy
facilities or personnel, and includes capabilities intended to resolve all
suspicious activity.
Local Guard Services Local Guard Services augment host government
resources for protecting overseas diplomatic and consular office
facilities and residences of U. S. government employees and dependents of
all agencies under the chief of mission.
14 The USAID Overseas Management Office is responsible for ensuring
security at all USAID facilities that are not collocated with U. S.
missions (approximately 58 of 95, as of January 2002), although it
coordinates these security arrangements with the Bureau of Diplomatic
Security in Washington and with the regional security officers in country.
Additionally, the Office of Security handles USAID building construction
issues, coordinating extensively with State*s Bureau of Overseas Buildings
Operations, which
constructs buildings for USAID*s tenancy.
Overseas Protective Vehicles The Overseas Protective Vehicles program
provides light and heavy armor vehicles to protect embassy personnel.
Currently, all chief- of- mission vehicles have been ordered and are being
armored and 94 percent of these vehicles already have been delivered to
missions.
Host Nation Security Support Host nations also provide critical support in
preventing terrorist attacks against U. S. missions. Based on its
capabilities* and sometimes willingness* host nation security support
could include, for example, sharing intelligence about threats with the
regional security officer, providing bodyguards for U. S. officials,
stationing local police guards
outside of a U. S. mission, closing roads adjacent to a U. S. mission,
controlling crowds, responding first to a terrorist incident, and
conducting an investigation of a terrorist attack. Figure 8 shows how a
host government provides perimeter security for a U. S. embassy.
Figure 8: Host Nation Police Use Buses to Cordon off a U. S. Embassy
during a Heightened Threat Period
Military Force The threat of terrorism is one of the most pervasive
challenges facing DOD,
Protection Efforts making the protection of U. S. forces against terrorist
attacks a top priority
for the department. 15 The June 1996 truck bombing of the al- Khobar
Towers military housing facility near Dhahran, Saudi Arabia, killing 19
Americans and wounding hundreds of others prompted DOD to reexamine its
programs to protect both its forces and installations overseas. However,
U. S. forces remained vulnerable to terrorist attacks as demonstrated by
the
October 2000 al Qaeda bombing of the USS Cole in Yemen that killed 17 U.
S. sailors.
Overall Management at DOD, The Office of the Assistant Secretary of
Defense for Special Operations and
Joint Staff, and Service Levels Low- Intensity Conflict is responsible for
developing antiterrorism
guidance, providing policy oversight, and ensuring compliance with these
policies. In June 2001, the Principal Deputy Assistant Secretary of
Defense for Special Operations and Low- Intensity Conflict established
standards addressing antiterrorism planning, training requirements,
physical security measures, and related issues. 16 This office had earlier
issued a handbook in
1993 containing detailed guidance on antiterrorism policies and practices,
including guidance on assessment methodology. 17
The Chairman of the Joint Chiefs of Staff and the Deputy Director for
Global Operations in the Joint Chiefs of Staff Directorate for Operations
(J- 3) help implement the policy of the Assistant Secretary by reviewing
services* budgets, developing standards, making vulnerability assessments,
and representing regional commands on force protection issues. The Joint
Staff issued an installation- planning template to help installations
prepare their antiterrorism plans in July 1998 and currently manages the
Integrated Vulnerability Assessment Program. This program has teams, also
consisting
of staff from the Defense Threat Reduction Agency, that travel to military
15 For a more detailed discussion and our evaluation of DOD force
protection efforts, see U. S. General Accounting Office, Combating
Terrorism: Actions Taken but Considerable Risks Remain for Forces
Overseas, GAO/ NSIAD- 00- 181 (Washington, D. C.: July 19, 2000);
Combating Terrorism: Actions Needed to Improve DOD Antiterrorism Program
Implementation and Management, GAO- 01- 909 (Washington, D. C.: Sept. 19,
2001); and
Combating Terrorism: Actions Needed to Guide Services* Antiterrorism
Efforts at Installations, GAO- 03- 14 (Washington, D. C.: Nov. 1, 2002).
16 DOD Instruction 2000.16, DOD Antiterrorism Standards, June 14, 2001. 17
DOD Handbook O- 2000.12- H, Protection of DOD Personnel and Activities
Against Acts of Terrorism and Political Turbulence, Feb. 19, 1993.
installations (including those overseas) to conduct vulnerability
assessments and support installation commanders and local anti- terrorism/
force protection managers in writing force protection and WMD response
plans.
Each military service headquarters is responsible for implementing the DOD
antiterrorism program with assistance from the Joint Staff. Although
regional commands and installations directly implement force protection
policy, service headquarters control funding and personnel resources for
individual installations overseas. The services base their final funding
and staffing decisions on a review of the antiterrorism priorities and
requirements submitted by each combatant commander. The majority of
funding for force protection activities is for personnel, operations, and
maintenance appropriations for each service. The Chairman of the Joint
Chiefs of Staff*s Combating Terrorism Readiness Initiative Fund provides
additional funding. This fund is managed by the Joint Staff and supports
emergency or other unforeseen high- priority combating terrorism needs.
The services also issue regulations, orders and instructions to establish
their own specific antiterrorism policies and standards.
Regional and Installation Regional commands merge and prioritize the
antiterrorism requirements
Commander Responsibilities submitted by their respective installation
commanders. They use this
information to develop general antiterrorism policy for installations in
their geographic areas of responsibility. Such guidance takes precedence
over broader DOD or service guidance from Washington. They also determine
the type of threats their forces face, identifying the money and manpower
needed to achieve sufficient force protection, and work with the services
to provide the necessary resources.
Local installation commanders assume primary responsibility for the
protection of the forces, assets, and installations under their command
from terrorist attacks. They combine, adapt, and implement the force
protection standards established by DOD, combatant commanders, and the
service headquarters into an installation antiterrorism plan. Local
installation commanders, in concert with the installation*s designated
anti- terrorism/ force protection manager, compose a prioritized list of
antiterrorism requirements that they submit to their respective major
commands.
DOD Uses Risk When making these plans and listing their requirements,
installation
Management Approach commanders employ a *risk management* approach. 18
This approach is a
systematic, analytical process to determine the likelihood that a threat
will negatively impact physical assets, individuals, or operations and
identify actions to reduce risk and mitigate the consequences of an
attack. The principles of risk management acknowledge that although risk
generally cannot be eliminated, it can be significantly reduced by
enhancing protection from known or potential threats. Installation
commanders also rely on annual DOD assessments of threat, vulnerability,
and criticality of assets.
Threat Assessment. This identifies and evaluates potential terrorist
threats on the basis of such factors as threats* capabilities, intentions,
and past activities. It represents a systematic approach to identify
potential threats before they materialize. It is performed by the
services*
investigative and intelligence agencies, which compile and examine all
available information concerning potential terrorist groups and criminal
activity that could affect the installation. The threat assessment may not
adequately capture all emerging threats, even in cases where the
assessment is frequently updated. The risk management approach, therefore,
uses vulnerability and criticality assessments as additional inputs to the
risk management decision- making process.
Vulnerability Assessment. This identifies weaknesses that may be
exploited by terrorists and suggests options that address those
weaknesses. Teams of multidisciplinary experts in such areas as structural
engineering, physical security, and installation preparedness review the
installation*s antiterrorism program, including antiterrorism plans,
counterintelligence, law enforcement liaison, physical security, and
incident response measures.
Criticality Assessment. This evaluates and prioritizes assets and
functions to identify which assets and missions are relatively more
important to protect from attack. They might consider a number of factors,
such as importance to the military mission, significance as a target,
accessibility by terrorists, construction, ease of reconstruction, and
monetary value.
18 See GAO- 03- 14.
The risk management approach and these annual assessments form the
foundation of each installation*s antiterrorism plan and support
decisionmaking to improve resource allocations. DOD Personnel at
Some DOD personnel overseas do not fall under the direct command of the
Diplomatic Posts
regional commands. For example, DOD personnel assigned to diplomatic post
would be protected as part of U. S. mission security (discussed in the
previous section). To clarify who is responsible for the protection of
these military personnel, DOD and State have signed a Memorandum of
Understanding, and regional commands have signed over 146 country- level
Memorandums of Agreement with their local U. S. ambassadors.
U. S. Programs and Activities Federal agencies also have programs to
protect senior- level officials from
to Protect Senior- Level terrorism during international travel. The U. S.
Secret Service, which
Officials recently transferred from the Department of the Treasury to the
Department of Homeland Security, provides protection to a limited number
of senior- level U. S. officials (for example, the President) at all
times, which includes travel overseas. In addition, the Secret Service
protects official
representatives of the United States performing special missions abroad.
19 The U. S. Secret Service has advance teams that work with host
countries to coordinate security of these U. S. officials that travel
overseas. In addition, if a protected person attends a special event
abroad, such as a bilateral or multilateral political or athletic event,
then the U. S. Secret Service works with the event security coordinators.
Even in cases where the President is not necessarily going to attend but a
number of other U. S. citizens will, the U. S. Secret Service also
provides consulting to help host nations provide for event security. For
example, the U. S. Secret Service, working with the State Department*s
Bureau of Diplomatic Security, is assisting the Greek and Chinese
governments in preparing for upcoming Olympic Summer Games in Athens in
2004 and Beijing in 2008, respectively. To support this protective
mission, as well as other missions, the U. S. Secret Service maintains 18
offices overseas.
19 The U. S. Secret Service is authorized under 18 U. S. C. S: 3056( a) to
protect the President, Vice President, their immediate families, former
Presidents, visiting heads of state, and other distinguished foreign
visitors as directed by the President, among others.
The U. S. Secret Service also provides security for heads of foreign
governments and other foreign distinguished guests while visiting the
United States. In addition, the U. S. Secret Service provides security for
foreign visitors when they attend certain international events in the
United States. 20 An example would be the 50th anniversary NATO summit
held in Washington, D. C., in April 1999, which included foreign heads of
state, ministers, and military leaders. For this one event, there were
over 1,000 escorts for dignitary motorcades. The U. S. Secret Service,
through its Uniformed Division*s Foreign Mission Branch, provides exterior
security for over 400 foreign diplomatic facilities (embassies,
chanceries, consulates, and ambassador residences) in the Washington, D.
C., area. To support its protective mission, the U. S. Secret Service has
an Intelligence
Division that oversees the identification, assessment, and management of
threats in support of domestic and foreign protectee visits and events of
national significance.
The State Department*s Bureau of Diplomatic Security also provides
protection to senior- level officials during international travel. These
officials are less senior than those protected by the U. S. Secret Service
and include the Secretary of State, Deputy Secretary, selected
ambassadors, and others U. S. officials overseas. Diplomatic Security
agents provide protection to other foreign dignitaries (other than heads
of state and certain others protected by the U. S. Secret Service) when
they visit the United States. These agents participate in more than 150
foreign and domestic dignitary details each year, protecting such diverse
individuals as
the Secretary General of NATO, President of the Palestine National
Authority, and the Dalai Lama. Also, the bureau provides security to
selected foreign officials residing in the United States. These protective
details are based upon the level of threat. The bureau also provides for
security in special international events in the United States. For the
50th anniversary NATO summit (discussed above), the bureau*s Dignitary
Protective Division was part of the security preparations and provided 48
protective details. For the 1996 Olympic Summer Games in Atlanta, the
bureau protected 14 foreign individuals from Israel, India, and Saudi
Arabia.
20 PDD 62 established a process to designate certain special events as
National Security Special Events, which warrant greater federal planning
and protection than other special events. This designation is based upon
the nomination of the National Security Council and certified by the
Attorney General and the Secretary of Homeland Security. In these events,
the U. S. Secret Service, the FBI, and Federal Emergency Management Agency
have specific roles for preventing and responding to a terrorist incident.
According to State Department officials, the Bureau of Diplomatic Security
is providing protective assistance to two heads of government in their own
countries* President Hamid Karzai in Afghanistan and President Alvaro
Uribe Velez in Colombia. According to bureau officials, they are providing
security and/ or advisors and training to these leaders because of the
extreme threat of assassination from terrorist groups and the relatively
weak capabilities for senior official protection in each country.
Protecting American The Department of State has several programs to help
warn Americans
Civilians Living, Working, living and traveling abroad against potential
threats, including those posed
and Traveling Abroad by terrorists. State*s Bureau of Consular Affairs
provides travel warnings,
public announcements, and Consular Information Sheets to American
civilians who are living, working, and traveling abroad. The bureau seeks
to provide important threat warnings and security information to U. S.
citizens and assets abroad in a timely and effective manner based on the
*No Double Standard* policy on dissemination of specific, credible
terrorist
threat information that has not or cannot be countered (i. e., it is the
policy of the U. S. government that official Americans cannot benefit from
receipt of information that might equally apply to the public, but is not
available to the public).
In fiscal year 2001, for example, the bureau issued 64 travel warnings,
134 public announcements, and 189 Consular Information Sheets. The
bureau*s Internet Web site received 117.9 million inquiries, 30.7 million
more than in fiscal year 2000. According to bureau data, 90 percent of the
users found the information helpful. The bureau also held 69 briefings for
stakeholder groups, including international student program participants,
travel agents, and others.
The bureau also maintains a warden system for notifying Americans who have
registered with the U. S. embassy or consulate of potential terrorist
threats. Warden networks consist of telephone- calling trees, e- mails,
fax systems, and other systems, as appropriate. The warden system covers
both U. S. embassy and consulate personnel and other registered Americans.
The system usually works by alerting major employers or compounds with
high concentrations of Americans. It is used for a variety of
communications purposes, from passing out voter information to notifying
wardens and their wards of U. S. embassy evacuations.
The Bureau of Diplomatic Security manages the Overseas Security Advisory
Councils, which provide security support to U. S. businesses and
private- sector organizations worldwide. The councils are a joint effort
between State and the private sector. They foster exchange of security and
threat information, implement security programs, and provide a forum to
address security concerns. Embassy regional security officers coordinate
with council headquarters in Washington, D. C., to set up, develop, and
maintain councils in country. Presently, councils are active in 47
countries worldwide.
Coordination Mechanisms The Department of State is responsible for
maintaining an effective
for Protecting security program at U. S. diplomatic missions worldwide and
for
U. S. Government Facilities coordinating all federal agencies* efforts to
protect U. S. government
and Americans Abroad facilities and Americans abroad. At U. S. missions,
the country team is the
primary coordinating mechanism. It typically consists of the ambassador,
deputy chief of mission, and key functional personnel, including
representatives from other federal agencies represented at the U. S.
mission. The regional security officer has primary coordinating
responsibility for security programs and activities at U. S. missions.
In addition, the Bureau of Diplomatic Security provides security liaison
officers to DOD*s regional military commands: the U. S. Central Command at
MacDill Air Force Base, Florida; U. S. European Command in
StuttgartVaihingen, Germany; U. S. Pacific Command at Camp H. M. Smith,
Hawaii; and U. S. Southern Command in Miami, Florida. These officers
coordinate with the commands on theater threat assessments, contingency
planning, and implementation of Department of State and DOD agreements on
overseas security support.
In Washington, D. C., the Overseas Security Policy Board considers,
develops, coordinates, and promotes standards and agreements in overseas
security operations, programs, and projects, which affect all federal
agencies under an ambassador*s authority abroad. The board, which is
chaired by the Director of State*s Bureau of Diplomatic Security, consists
of representatives from the Departments of Agriculture, Commerce, Defense,
Justice, State, Transportation, and the Treasury; USAID; the CIA;
Peace Corps; Federal Aviation Administration; and OMB. Since 1990, the
board has issued 37 standards for U. S. missions overseas. The standards
address the full spectrum of security programs pertaining to terrorism and
other threats. These standards range from armored vehicles and protective
details for ambassadors to emergency plans and exercises and
residential security.
Public Diplomacy The National Security Strategy of the United States of
America and the
Builds International
National Strategy for Combating Terrorism call for the United States to
wage a *War of Ideas* against international terrorism, through effective
Support for
public diplomacy. Toward these objectives, the State Department and U. S.
Foreign Policy Broadcasting Board of Governors conduct efforts to improve
the image of the United States and support U. S. foreign policy. For
example, to forestall
possible negative perceptions of the United States and foster greater
understanding of U. S. policy for key international audiences, State
conducts public diplomacy through various media. Similarly, the
Broadcasting Board of Governors conducts international broadcasts to
worldwide audiences to help support U. S. strategic interests.
State Department The State Department helps build and influence
international opinion in Programs Promote
support of U. S. foreign policy objectives. Since the terrorist attacks on
the Anti- Terrorism Support
United States on September 11, 2001, State has encouraged international
support for efforts to combat terrorism overseas. For example, its
programs have generated over 240 newspaper, 100 radio, and 150 television
interviews, and over 300 opinion- editorial articles in newspapers either
signed or prepared for U. S. ambassadors. Almost 60 U. S. speakers have
traveled abroad on State- funded programs addressing September 11, 2001-
related issues. U. S. embassies have sponsored over 100 panel discussions
and over 220 speeches on combating terrorism. In addition,
Network of Terrorism, a department- produced print and electronic
pamphlet, is available in 36 languages and 1.3 million print copies are in
circulation.
Broadcasting Board of The Congress passed the United States International
Broadcasting Act of
Governors Promotes 1994 with the goal of reorganizing and consolidating U.
S. international
broadcast efforts. 21 The act created a bipartisan Broadcasting Board of
U. S. Foreign Policy on
Governors (the Board) to oversee and coordinate the efforts of all
Combating Terrorism nonmilitary international broadcasting. The Board
manages the operations of three federal broadcast entities* the Voice of
America, WORLDNET Television and Film Service, and the Office of Cuba
Broadcasting. The board also has supervisory authority over two non-
profit corporations* Radio Free Europe/ Radio Liberty and Radio Free Asia.
These broadcast
21 Title III, P. L. 103- 236, Apr. 30, 1994.
entities reach more than 125 markets worldwide in 65 different languages.
With a fiscal year 2003 appropriated budget of $514 million, the Board
employs 3,400 journalists, producers, technicians, and support personnel
in Washington, D. C., and throughout 90 news bureaus and offices
worldwide.
The Board*s over- arching goal is to reach significant audiences worldwide
in areas of strategic interest to the United States where freedom of the
press does not fully exist. The board*s strategic plan includes an
objective to *pioneer anti- terrorism broadcasting* to counter terrorists
use of media coverage that inflict fear and panic in the public. 22 One
project supporting anti- terrorism is the Middle East Radio Network (known
as *Radio Sawa* in the region) that broadcasts and analyzes news and
explains U. S. policies. Other recent initiatives in the region include
the Afghanistan Radio Network and a service targeted at young adults in
Iran called Radio Farda. Finally, the Congress has approved an initial
round of
funding for a new Middle East Television Network, which is expected to
launch later in 2003.
Coordination of Public The newly created Office of Global Communications
was designed to Diplomacy Activities
coordinate public diplomacy activities, including those related to
terrorism. The Office was established under Executive Order 13283 on
January 21, 2003, and will advise the President, heads of offices within
the Executive Office of the President, and senior government officials on
the most effective means of promoting the interests of the United States
abroad. According to the Executive Order, the office will coordinate
messages that
reflect the strategic communications framework and priorities of the
United States. The office is designed to facilitate the development of a
strategy among federal agencies to help communicate such messages. The
office will coordinate the deployment of *information teams* worldwide in
areas of high global interest and media attention. These teams are
intended to disseminate information to the on- site news media and assist
media
personnel in obtaining access to information, individuals, and events.
Prior to any deployments abroad, the office is to consult with the
Departments of State and Defense and notify the NSC.
22 Marrying the Mission to the Market: Strategic Plan 2002- 2007,
Broadcasting Board of Governors.
Visa and Border Visa and border controls are additional tools that are
designed to help
Controls Are Intended detect and prevent terrorism by keeping terrorists
and their materials out
of the United States. The National Strategy for Homeland Security has an
to Prevent Terrorists
objective to ensure the integrity of borders and prevent the entry of and
Their Materials unwanted persons. It also has an objective to increase the
security of from Entering the international shipping containers. According
to the strategy, of the annual 500 million people who enter the United
States legally, 330 million are not
United States citizens. 23 Some of these non- citizens need visas to enter
the United States.
The Department of State uses various tools to screen visa applicants to
identify potential terrorists. Intelligence and law enforcement agencies
support this visa screening process by maintaining databases and watch
lists of suspected terrorists and making that information available to the
State Department. Factors such as a visa applicant*s country of origin can
affect the level of scrutiny they receive. Visitors from certain countries
(known as visa waiver countries) are not required to have visas because
the Departments of State and Homeland Security have determined that they
represent a low risk. State investigates visa and passport fraud to help
maintain the integrity of travel documents and thus prevent terrorists
from receiving visas or entering the country under false names. Further,
the United States shares a 5, 525- mile border with Canada, a 1,989- mile
border with Mexico, and possesses 95,000 miles of shoreline. The
Department of Homeland Security guards the borders at and between almost
400 ports of entry, seeking to interdict terrorists and their materials at
the border. Finally, international cooperation is an important factor in
strengthening international visa and border controls. For example, the
State Department shares information on suspected terrorists with other
countries to enhance their border controls.
23 The actual number of different travelers into the United States is
unknown because some people enter the country many times a year.
Visa Controls Designed State*s Bureau of Consular Affairs, provides
overall supervision to consular to Keep Terrorists Out of the
officers at U. S. missions overseas. Consular officers adjudicate visa
applications from foreign citizens who wish to visit the United States. 24
United States These consular officers aim to facilitate travel for those
eligible to receive visas and deny visas to those who are ineligible. For
the most common categories of nonimmigrant visas, an applicant must
demonstrate that they (1) have a residence abroad, which they do not
intend to abandon, (2) intend to leave the United States after a limited
period of time, and
(3) intend to engage in legitimate activities related to that nonimmigrant
category. The most common nonimmigrant visas are those for temporary stays
for business or pleasure (79 percent), special worker visas (4.6 percent),
student visas (4.2 percent), and exchange visas (4 percent).
All applicant information is entered into the Consular Consolidated
Database before it is reviewed. The Bureau of Consular Affairs manages
this database. After being entered into the database, applicant
information is reviewed by a consular officer at a U. S. embassy or
consulate. At that point, the consular officer may call the applicant in
for an interview. The consular officer will conduct a name check on all
applicants who ultimately receive a visa. In addition, some applicants may
undergo a special security review if they fall into one of many special
categories of visa applicants. A visa can be refused at any stage after it
is entered into the database.
Besides supporting the bureau*s visa mission, the Consular Consolidated
Database also supports the work of law enforcement agencies. In fiscal
year 2002, for example, the bureau performed numerous searches of
nonimmigrant visa records at the request of federal law enforcement task
forces investigating the terrorist attacks on September 11, 2001. In
addition, the bureau*s Passport Services office provided law enforcement
with 305 records. The bureau used facial recognition software to compare
the photographs on the visa applications of the September 11, 2001,
hijackers in the database against other visa photographs. 24 A visa
enables a person to apply at a port of entry to enter the United States,
but it does not guarantee that a person will be able to enter the United
States. For a more detailed discussion of the nonimmigrant visa
application process, see U. S. General Accounting Office, Border Security:
Visa Process Should Be Strengthened as an Antiterrorism Tool,
GAO- 03- 132NI (Washington, D. C.: Oct. 21, 2002). This report evaluates
the visa process before September 11, 2001, and what changes have been
made since then. It makes several recommendations to strengthen the visa
process.
Various Databases Are Used to The Consular Lookout and Support System
(CLASS) name check system
Screen for Terrorists is the primary means through which consular officers
determine if a visa applicant is suspected of being a terrorist or could
pose other security
risks. Sources for information in CLASS include the State Department*s
database of visa refusals, the State Department*s interagency watch list
for terrorists, known as TIPOFF, and several other law enforcement and
intelligence sources. CLASS also uses Arabic and Russian/ Slavic language
algorithms to help increase the likelihood that the name check will find a
person*s name if it is in the database. Consular officers must run an
applicant*s name through CLASS before issuing a visa.
The CLASS name check system includes information from the TIPOFF terrorist
watch list, which is managed by State*s Bureau of Intelligence and
Research. This list contains declassified biographical information, such
as name, birth date, or passport number on thousands of suspected
terrorists. This information is drawn from sensitive all- source
intelligence and law
enforcement data provided by the FBI, the CIA, and other intelligence
community agencies. When a consular officer using CLASS receives a TIPOFF
*hit* on an applicant*s name, the officer refers the case to the TIPOFF
staff at the Department of State. The TIPOFF staff will then make
available the classified information supporting the TIPOFF entry to
authorized consular and legal experts within the Department of State, who
then determine whether the evidence is sufficient to deny the visa
request. The consular officer may not issue a visa until the Bureau of
Consular Affairs has responded with its security advisory opinion. TIPOFF
*hits* through the CLASS system are coordinated with the FBI and other
agencies. Foreknowledge of pending terrorist travel has, in the past,
enabled authorities to arrest terrorist suspects at ports of entry, or to
conduct surveillance of them inside the United States.
The Secretary of State, in consultation with the Attorney General, also
updated the Terrorist Exclusion List and the Foreign Terrorist
Organization lists, which designate groups as terrorist organizations.
Members or supporters of these organizations are to be denied entrance at
U. S. ports of entry and deported if found within the United States.
The State Department also strengthened its oversight over visa operations
by instituting new inspection measures. An embassy*s nonimmigrant visa
chief, the visa chief, or the consular section chief is now required to
periodically conduct spot checks of approved visa applications, in
addition to the spot checks for CLASS name check compliance that are
already in place. 25
Level of Visa Screening Varies by Depending on their nationality, a visa
applicant may require a special
Risk Level of Country of Origin security review. Special clearance
procedures and interagency name
checks for visa applicants from certain countries were originally designed
during the Cold War to screen out individuals who could pose a threat to
U. S. interests, primarily through espionage. After the September 11,
2001, terrorist attacks, the Departments of State and Justice revised
these procedures. As a result, all male visa applicants aged 16 through 45
from certain national groups received a 20- day computerized hold on their
applications, during which a visa physically could not be issued. The
application information was then electronically submitted to the FBI for
the actual name check. Once 20 days had passed, the computer unlocked the
applicant case. If a negative response had not been received from either
the State Department or the FBI by this time, then the consular officer
was permitted to issue a visa. This 20- day computerized hold requirement
ended in October 2002, when another program* the Visa Condor program*
became fully functional.
The Visa Condor program is a name check procedure that is initiated when
an applicant fulfills certain classified criteria. To help the consular
officer determine whether Visas Condor criteria have been met, the State
Department, in January 2002, began to require all 16- to 45- year old
males from certain national groups to fill out a supplemental visa
application form. This new form provides additional information such as an
applicant*s travel and educational history, employment information, and
military service. Under the Visas Condor process, the post sends an
applicant*s information to the FBI National Name Check Program, where it
is run against FBI databases. Some of the information in these databases
comes from the FBI*s Foreign Terrorist Tracking Task Force. 26 In the
event of a possible match, the information is sent back to the State
Department. The consular officer cannot issue a visa to an applicant
meeting Visas Condor criteria without an affirmative response from the
Department of State. In
25 See GAO- 03- 132NI.
July 2002, the Visas Condor procedure became mandatory for all applicants
over the age of 16 from countries listed as state sponsors of terrorism.
Visitors from Selected Countries The Visa Waiver Program allows persons to
enter the United States for
Do Not Need Visas tourism or business for 90 days or less without applying
for a visa if they
are a citizen from one of 27 participating countries. 27 Citizens from
participating countries would still be required to have a passport from
their home country and, upon arrival, pass through standard border
controls (discussed below). This program was created to improve U. S.
foreign relations and encourage foreign travel to the United States
without posing a threat to national security. 28 It also allowed the State
Department to perform greater visa screening in high- risk countries,
while scaling back its visa operations in low- risk countries. Country
participation is contingent upon a Department of Homeland Security and
Department of State review of the country*s political, social, and
economic situation; the quality and security of its passport system; its
border controls and immigration laws; its law enforcement policies and
practices; as well as other relevant matters. (Prior to March 1, 2003, the
Department of Justice performed this review with State.) Visa waiver
countries also must have a low
nonimmigrant visa refusal rate for their citizens, the ability to supply
machine- readable passports, and must offer visa- free travel for U. S.
citizens and nationals. The Secretary of Homeland Security, in
consultation with the Secretary of State, may terminate a country*s
participation in the program in the event of an emergency that threatens
U. S. security or law enforcement interests, such as severe economic
26 The FBI Foreign Terrorist Tracking Task Force is composed of personnel
from a range of agencies, including the Department of Justice*s FBI and
the Department of Homeland Security*s Bureau of Immigration and Customs
Enforcement. It coordinates a multi- agency effort to identify, locate,
and deny entry to or remove terrorists and their supporters from the
United States.
27 The 27 countries are Andorra, Australia, Austria, Belgium, Brunei,
Denmark, France, Finland, Germany, Iceland, Ireland, Italy, Japan,
Liechtenstein, Luxembourg, Monaco, the Netherlands, New Zealand, Norway,
Portugal, San Marino, Singapore, Slovenia, Spain, Sweden, Switzerland, and
the United Kingdom.
28 For a more detailed discussion and our evaluation of this program, see
U. S. General Accounting Office, Border Security: Implications of
Eliminating the Visa Waiver Program, GAO- 03- 38 (Washington, D. C.: Nov.
22, 2002). We reported on the process used to assess countries*
eligibility to participate in the Visa Waiver Program and the implications
in
eliminating the program. Such implications could affect U. S. relations
with other countries, U. S. tourism, and State Department resources
abroad; however, the impact on national security is unclear.
collapse or a breakdown of the rule of law within a country. 29
Previously, the Attorney General, in consultation with the Secretary of
State, had this authority. While the Justice Department has not
systematically collected data on how frequently potential terrorists and
other criminals have entered the United States, anecdotal information
indicates that such individuals have entered the United States under the
Visa Waiver Program
as well as with valid U. S. visas. Participating countries must certify by
October 26, 2004, that they have a program to issue tamper- resistant,
machine- readable passports that contain biometric and document
authentication identifiers. 30 This is required by the Enhanced Border
Security Act of 2002, which also conditioned participation on a country*s
timely reporting of its stolen blank passports to the United States. 31
State Department The National Strategy for Homeland Security has an
objective to combat
Investigates Visa and fraudulent travel documents. Toward this objective,
the State Department Passport Fraud
attempts to impede terrorist entry into the United States through its
investigations of visa and passport fraud. The Bureau of Diplomatic
Security investigates more than 3, 500 passport and visa fraud cases
annually, resulting in more than 500 arrests each year. A number of
suspects have been linked to terrorism. The bureau has 450 special agents
in over 160 countries and approximately 700 special agents assigned
throughout the United States. State*s Office of the Inspector General also
conducts visa and passport investigations.
29 GAO- 03- 38. 30 For a more detailed description and evaluation of
biometrics in this context, see U. S. General Accounting Office,
Technology Assessment: Using Biometrics for Border Security, GAO- 03- 174
(Washington, D. C.: Nov. 15, 2002). In this report, we identified
important policy trade- offs between increasing security and the impact on
areas such as privacy, economy, traveler convenience, and international
relations. Also, we reported that biometric technology can play a role in
associating a person with travel documents such as visas and passports.
When used at a border inspection, biometrics can help determine
whether to admit a traveler into the United States. 31 Enhanced Border
Security and Visa Entry Reform Act of 2002 (P. L. 107- 173), May 14, 2002.
Border Controls Attempt to Border controls staffed by officers from the
Department of Homeland
Deter Entry of Terrorists Security also play a role in deterring
terrorists and their materials from
and Their Materials entering the United States. All visitors, whether they
have visas or are
seeking to enter the United States under the Visa Waiver Program, are to
undergo inspections at U. S. ports of entry. The Border Patrol and U. S.
Coast Guard work between U. S. ports of entry to detect and prevent
terrorists and their materials from entering the United States. On March
1, 2003, the Immigration and Naturalization Service, Border Patrol, U. S.
Customs Service and U. S. Coast Guard became part of the new Department of
Homeland Security.
Immigration Controls Department of Homeland Security immigration
inspectors are to conduct a primary inspection of travelers arriving at a
U. S. port of entry. During these inspections, the immigration inspector
observes the applicant, examines their passport, and utilizes automated
databases to judge admissibility. The inspector should either permit
travelers to enter or refer them to secondary inspection, where a more
detailed examination of travel documents or further questioning can be
conducted. People may be refused entry for the same reasons they may be
refused a visa. Immigration inspectors use the Interagency Border
Inspection System* a multi- agency database of lookout information that
alerts inspectors of conditions that may make travelers inadmissible to
the United States. It also provides information about warrants for U. S.
citizens who may be wanted by U. S. law enforcement. Data sharing between
this system and the TIPOFF database began in 1991 and, since then, it has
enabled immigration inspectors to intercept 290 terrorists from 82
countries at 84 different ports of entry. In fiscal year 2001, immigration
inspectors using TIPOFF through the Interagency Border Inspection System
had 86 matches from the terrorism database at ports of entry. Of these, 38
were denied entry and 1 was arrested. During primary inspection, the tools
used by immigration inspectors differ according to type of entry.
Air Ports of Entry. At the 155 air ports of entry, commercial airline
carriers are required to transmit passenger and crew manifests to
immigration inspectors through the Advance Passenger Information System
for flights into the United States. This information includes a
passenger*s name, date of birth, nationality, and passport number. With
this information, immigration inspectors can analyze intelligence on
passengers before flights arrive and identify passengers who will require
referral to secondary inspection. Immigration inspectors at air ports of
entry have access to the Interagency Border Inspection System.
Sea Ports of Entry. At the 86 sea ports of entry, primary inspection at
stations equipped with the Interagency Border Inspection System functions
much the same as airports. Where this system is not available, immigration
inspectors board ships with the Portable Automated Lookout System. This
system contains lookout information, which immigration inspectors use to
conduct name checks and examine documents of all aliens aboard a vessel.
Land Ports of Entry. At the 154 land ports of entry, immigration
inspectors can query the Interagency Border Inspection System with a
traveler*s name, passport, or license plate number. Documents and names of
a vehicle*s driver are checked randomly or when an inspector suspects that
something is wrong.
An immigration inspector can refer a traveler to secondary inspection at
any port of entry. In secondary inspection, inspectors are to review a
traveler*s documents for accuracy and validity and check various databases
for any information that could affect the traveler*s entry, including
criminal history information from the FBI and non- immigrant visa issuance
data
from State Department. An immigration inspector conducting a secondary
inspection can also utilize a fingerprint identification system to
determine whether a traveler has been previously apprehended for an
immigration offense or is wanted by U. S. law enforcement. As mentioned
above, a traveler may be refused entry for the same reasons they can be
denied a visa. 32
A number of new immigration initiatives were started after September 11,
2001. The predominant focus of these initiatives has been to establish
relationships with other countries to coordinate with their border, law
enforcement, and intelligence officials on immigration matters.
Operation Global Shield. For this operation, the former Immigration and
Naturalization Service deployed *immigration control officers* to a number
of overseas transit points around the world to push out the
32 For a more detailed discussion and our evaluation of INS border
security processes, see GAO- 03- 174 and U. S. General Accounting Office,
Illegal Aliens: INS* Processes for Denying Aliens Entry into the United
States, GAO- 02- 220T (Washington, D. C.: Nov. 13, 2001). In this
testimony, we discussed INS* processes for denying aliens entry at land
and airports of entry, including the expedited removal and credible fear
processes. In addition, see our testimony Weaknesses in Screening Entrants
into the United States, GAO- 03- 438T (Washington, D. C.: Jan. 30, 2003).
U. S. line of defenses against illegal immigration related to terrorism.
These officers, who have no law enforcement authority in these foreign
countries, have an advisory and consultative role. The specific functions
of Operation Global Shield are to disrupt and deter the smuggling of
select aliens, prevent the movement of persons who are security risks,
provide advance notice of passengers warranting closer inspection upon
arrival, collect law enforcement intelligence, cooperate on apprehensions
and prosecutions, and provide training on fraudulent
travel documents. Operation Southern Focus. For this operation, the
former Immigration
and Naturalization Service deployed special agents and intelligence
analysts abroad to target key smuggling organizations in Latin America and
the Caribbean. These U. S. personnel have been working with authorities in
Mexico, Guatemala, Panama, and the Dominican Republic, as well as other U.
S. personnel stationed overseas to identify, investigate, and prosecute
regional smuggling organizations. According
to officials, undercover operations are ongoing in several areas to
capture key smugglers and return them to the United States.
Customs Controls At ports of entry, Department of Homeland Security
customs inspectors look for illegal materials, such as drugs, currency,
and explosives, whether or not the contraband is intended for terrorism.
While most of the customs inspection equipment was developed and acquired
to detect drugs, the majority of this equipment does not detect specific
substances but detects anomalies in general. For example, X- ray machines
may alert an inspector to something unusual about an item being examined
and, therefore, the possible concealment of materials. 33
The Department of Homeland Security also utilizes export controls to
prevent illegal exporters, terrorist groups, and international criminal
organizations from (1) trafficking in weapons of mass destruction and
their components; (2) obtaining and illegally exporting controlled
commodities, technologies, conventional munitions, and firearms; (3)
exporting stolen property from the United States; and (4) engaging in
financial and other
33 For a more detailed description and evaluation of these efforts, see U.
S. General Accounting Office, Container Security: Current Efforts to
Detect Nuclear Materials, New Initiatives and Challenges, GAO- 03- 297T
(Washington, D. C.: Nov. 18, 2002). In this
testimony, we reported that programs in place to detect certain terrorist
materials were limited in a number of respects and rely heavily on the
availability of quality information for targeting those cargoes posing the
greatest risk.
transactions that support these activities or that violate U. S. sanctions
and embargoes.
A number of new customs initiatives were started after September 11, 2001.
The predominant focus of these initiatives has been to establish
additional lines of security in the supply chain of international
commerce. Examples of these initiatives are below.
Container Security Initiative. This program, initiated by the former U.
S. Customs Service, seeks to extend customs inspections beyond U. S. ports
of entry rather than waiting for these goods to arrive in U. S. ports for
screening and inspection. Begun in January 2002, its goal is to place U.
S. customs personnel at ports of origin or transit to screen cargo
containers and select high- risk containers for inspection by the host
country*s customs administration. As one of its first steps, the United
States entered into negotiations with governments of the top 20 *mega-
ports* that handle 66 percent of the containers destined for the United
States. As of the end of January 2003, 11 governments representing 16 of
the top 20 mega- ports have signed arrangements, and the United States has
placed customs officers in 2 of these ports. 34 The United States also has
placed customs officers at 3 ports in Canada,
which are not among the top 20 mega- ports. Other elements of the
Container Security Initiative include improving security criteria to
identify high- risk containers, expanding the use of technology in the
United States and foreign ports to examine high- risk containers, and
developing the use of smart and secure containers.
Customs Trade Partnership Against Terrorism. This program, also
initiated by the former U. S. Customs Service, focuses on efforts by
importers and others to enhance security procedures along their supply
chains in exchange for certain benefits, such as reduced likelihood of
inspections. As part of this initiative, which began in April 2002,
importing businesses, freight forwarders, carriers, and other logistics
providers enter into agreements with the United States to voluntarily
undertake measures that will reduce security vulnerabilities. 34 The 11
governments and their ports are Belgium (port of Antwerp), France (port of
Le Havre), Germany (ports of Bremerhaven and Hamburg), China (port of Hong
Kong), Italy (ports of Genoa and La Spezia), Japan (ports of Tokyo,
Nagoya, Kobe, and Yokahama), the Netherlands (port of Rotterdam),
Singapore, South Korea (port of Pusan), Spain (port of Algeciras), and
United Kingdom (port of Felixstowe). As of January 2003, the Department of
Homeland Security had placed customs officers at the ports of Rotterdam
and Le Havre.
Project Shield America. This industry outreach program was launched by
the former U. S. Customs Service in December 2001 and seeks the
cooperation of companies involved in the manufacture, sale, and/ or export
of U. S.- origin technology and munitions items in identifying suspicious
or unusual inquiries or orders. Customs agents have visited over 5,000
companies since the inception of Project Shield America and
have initiated dozens of criminal investigations based on information
gathered during these visits.
Border Patrol Between Ports Between U. S. ports of entry, the Department
of Homeland Security*s of Entry
Border Patrol has the mission to detect and apprehend illegal aliens and
smugglers (including potential terrorists). The Border Patrol, formerly
part of the Immigration and Naturalization Service, has a workforce of
about
9,500 agents and is responsible for patrolling about 6,000 miles of
Mexican and Canadian international land borders and 2, 000 miles of
coastal waters surrounding the Florida Peninsula and the island of Puerto
Rico. Agents patrol these borders utilizing various vehicles, including
aircraft, marine vessels, all- terrain vehicles, and horse units. Border
Patrol agents also conduct traffic checks on selected major highways
leading away from the border. They also maintain bike patrols in some
urban areas near ports of entry. In fiscal year 2002, Border Patrol agents
made nearly 1 million apprehensions of aliens attempting to enter or
reside in the country illegally.
Maritime Controls Outside Ports The U. S. Coast Guard, which transferred
from the Department of of Entry
Transportation to the Department of Homeland Security in March 2003,
participates in efforts to detect terrorists and their materials outside
maritime ports of entry. Shortly after the September 11, 2001, terrorist
attacks, the U. S. Coast Guard modified its ship arrival notification
requirements as part of its screening process for identifying and boarding
vessels of special interest or concern. The modification requires all
vessels over 300 gross tons to contact the U. S. Coast Guard 96 hours* up
from 24 hours* before they are scheduled to arrive at a U. S. port. Each
vessel
must provide information on its destination, its scheduled arrival, the
cargo it is carrying, and a roster of its crew. This information, which is
processed and reviewed by the U. S. Coast Guard*s National Vessel Movement
Center,
is used in conjunction with intelligence data to identify *high interest*
vessels. Decisions on appropriate actions to be taken with respect to such
vessels, such as whether to board, escort, or deny entry are based upon
established criteria and procedures.
International Cooperation International cooperation is an essential tool
in restricting terrorist
Efforts to Strengthen Visa movements around the globe. State*s Office of
the Coordinator for
and Border Controls Counterterrorism uses the Terrorist Interdiction
Program to enhance
border security by providing participating foreign governments with a
computerized database that allows border control officials to identify and
detain or track individuals of interest. The program currently is
installed in 2 foreign countries, with another 60 countries under
consideration. State plans to install the program in up to five new
countries per year. Additionally, the USA PATRIOT Act authorizes the
Secretary of State to share sensitive visa information with foreign
government officials where appropriate.
International cooperation is also important in preventing terrorist
materials from entering the United States. As mentioned, the Department of
Homeland Security is working with other countries to place its customs
agents overseas as part of the Container Security Initiative. In addition,
the United States is working with several international organizations in
setting standards and procedures for cargo security.
International Maritime The International Maritime Organization is
responsible for improving
Organization maritime safety, including combating acts of violence or
crimes at sea. Following the September 11, 2001, terrorist attacks, the
organization
started drafting new regulations needed to enhance ship and port security
and to prevent shipping from becoming a target of international terrorism.
The International Maritime Organization adopted port and ship security
measures in December 2002 at its conference of the parties to the
International Convention for the Safety of Life at Sea. 35
World Customs Organization The World Customs Organization is an
independent, intergovernmental body whose mission is to enhance the
effectiveness and efficiency of
35 The International Convention for the Safety of Life at Sea amendments
and its accompanying International Ship and Port Facility Security Code
include a number of measures, such as (1) shipboard automatic identifier
systems; (2) ship- to- shore alert systems; (3) port state control over
ships; (4) continuous maintenance of ship registry, ownership, and
operational control information; and (5) clear responsibilities for threat
assessments and security plans. In November 2002, the President signed the
Maritime Transportation Security Act of 2002 (P. L. 107- 295), Nov. 25,
2002, that, according to the State
Department, tracks very closely with these international measures. The U.
S. Coast Guard currently is developing regulations to implement the
International Convention for the Safety of Life at Sea, International Ship
and Port Facility Security Code, and the Maritime Transportation Security
Act.
customs administrations. In September 2002, the organization established a
task force to develop new guidelines for supply chain security. U. S.
customs agents are participants in this task force, which is scheduled
to complete its work in June 2003. The task force will examine numerous
security related topics, including enhancing in- transit controls,
improving technology, and better data for selecting which cargoes to
inspect.
International Organization The International Organization for
Standardization is another important
for Standardization international body involved in improving supply chain
security. It is a
worldwide nongovernmental federation of national standard bodies from more
than 140 countries that attempts to standardize various activities and
products related to international trade. The organization currently is
participating in a pilot project dealing with electronic seals on cargo
containers.
International Labor Organization The International Labor Organization is a
United Nations (UN) agency that sets requirements for seafarer
identification documents. Such documents are important for checking on the
background of crewmembers who are transporting cargo destined for the
United States. Since February 2002, this organization and the
International Maritime Organization have been working on the issue of
seafarer documents.
UN Subcommittee of Experts on The UN Subcommittee of Experts on
Transportation of Dangerous
Transportation of Materials provides advice on international regulations
concerning the
Dangerous Materials transport of dangerous materials. U. S. Department of
Transportation
delegates to the subcommittee have worked collaboratively with other
governments to develop a consensus on new security requirements.
International Civil The International Civil Aviation Organization is
working to set improved
Aviation Organization security standards for travel documents, such as
passports and visas.
Coordination Mechanisms Border security is an issue that crosses both
homeland security and Related to Border Security
combating terrorism overseas. The Office of Homeland Security (the
domestic equivalent of the NSC with respect to terrorism) coordinates
issues across agencies through a number of policy coordination committees.
The office has a specific policy coordination committee for Key Asset,
Border, Territorial Waters, and Airspace Security. In addition, the
overall strategy for border security is described in the National
Strategy for Homeland Security and includes ensuring the integrity of
borders and preventing the entry of unwanted persons. In addition, the new
Department of Homeland Security serves a coordination role by
consolidating several agencies that were formerly under separate
departments including the Immigration and Naturalization Service,
U. S. Border Patrol, U. S. Customs Service, and U. S. Coast Guard. The new
department has a Directorate of Border and Transportation Security charged
with preventing the entry of terrorists and securing the borders:
territorial waters; ports; terminals; waterways; and air, land, and sea
transportation systems of the United States.
Agencies also attempt to coordinate border security activities by sharing
selected information on their various watch lists. Nine federal agencies
develop and maintain 12 watch lists of suspected and known criminals and
terrorists. 36 As mentioned above, the Department of State provides
information from CLASS to the Interagency Border Inspection System. This
enables State, law enforcement and intelligence agencies, and immigration
officials to share information on individuals who should not receive U. S.
visas. State also provides information on lost and stolen U. S. passports
to the Department of Homeland Security.
Efforts to prevent terrorist materials from entering the United States are
coordinated through an Interagency Container Working Group. This group is
co- chaired by the Departments of Transportation and the Treasury. The
Secretary of Transportation established this group to address the security
issues surrounding the movement of marine cargo containers through the
international transportation system. For example, the group has made
recommendations to improve the security of container transportation. These
recommendations include such measures as improving the coordination of
government and business container security activities, enhancing cargo
data collection, and improving the physical security of containers.
36 For a more detailed description and evaluation of these watch lists,
see U. S. General Accounting Office, Information Technology: Terrorist
Watch Lists Should Be Consolidated to Promote Better Integration and
Sharing, GAO- 03- 322 (Washington, D. C.: Apr. 15, 2003). We reported that
the federal government*s
approach to using watch lists in performing its border security mission is
decentralized and nonstandard and recommended that the Secretary of the
Department of Homeland Security, in collaboration with the heads of other
agencies that have and use watch lists, lead an effort to consolidate and
standardize the federal government*s watch list structures and policies.
Coalition Capabilities One of the enduring policy principles that guides
U. S. strategies to combat
Are Enhanced through terrorism overseas is bolstering the counterterrorist
capabilities of those
countries that work with the United States and require assistance. The
Bilateral Programs
National Security Strategy of the United States of America calls for and
Activities
ensuring that other nations have the political, law enforcement,
financial, and military tools to combat terrorism within their borders. In
addition, the National Strategy for Homeland Security calls for the United
States to help foreign nations combat terrorism. These efforts to improve
other countries* capabilities are another part of preventing terrorism led
by the Department of State. The department has overall leadership of
bilateral relations, including programs to assist foreign nations. Such
programs consist of training, equipment, and other assistance to improve
foreign police and
military capabilities. While State has the overall lead, many of these
assistance programs are implemented in conjunction with the Departments of
Defense, Justice, and the Treasury. For example, the Antiterrorism
Assistance program is managed by State while some training is provided by
other agencies, such as the FBI, Drug Enforcement Administration, and U.
S. Secret Service. Such training by other agencies is provided under the
direction and oversight of the Bureau of Diplomatic Security*s
Antiterrorism Assistance program. These assistance efforts seek to not
only prevent terrorist attacks, but also improve the capabilities of other
countries to disrupt and destroy terrorists and to respond to terrorist
incidents.
Training to Improve Other Many U. S. coalition partners that want to
eliminate terrorism in their own
Countries* Law countries do not have the capability to combat terrorism
effectively in the
Enforcement Capabilities to areas of law enforcement and security. Many
are developing countries
Combat Terrorism that lack human and other resources needed to establish
and maintain an
effective antiterrorism program and infrastructure. U. S. law enforcement
training programs and facilities help build the capacity of coalition
partner nations to combat terrorism overseas and augment their existing
capabilities by providing training, relevant support equipment, and
technical advice. These programs and facilities include the (1)
Antiterrorism Assistance program, (2) International Criminal
Investigative Training Assistance Program (ICITAP), (3) Office of Overseas
Prosecutorial Development, Assistance and Training (OPDAT), (4) Countering
Terrorist Financing, (5) FLETC, and (6) International Law Enforcement
Academies (ILEA).
Antiterrorism Assistance The Bureau of Diplomatic Security*s Office of
Antiterrorism Assistance
Program designs, manages, implements, provides oversight, and evaluates
the
Antiterrorism Assistance program. The program provides training to
approved foreign national participants in five areas: (1) law enforcement,
(2) protection of national leadership, (3) control of borders, (4)
protection of critical infrastructure, and (5) crisis management. Since
its inception in 1983 as a major initiative against international
terrorism, the program through fiscal year 2001 has trained more than
28,000 foreign law enforcement and security personnel representing 124
countries in crisis management, dignitary protection, bomb detection,
airport security, border control, kidnap intervention, terrorist
financing, pipeline security, and response to incidents involving weapons
of mass destruction. These foreign law enforcement and security personnel
can help protect Americans living, working, and traveling abroad, because
they are responsible for taking offensive action against international
terrorist cells and networks that target Americans overseas and in the
United States. They also have the primary responsibility for responding to
and mitigating the impact of terrorist attacks* including those directed
against U. S. targets* that occur in their home countries.
State*s Office of the Coordinator for Counterterrorism provides policy
guidance to the program and ensures that the training assistance reflects
U. S. national objectives and priorities. According to State*s Office of
the Coordinator for Counterterrorism, antiterrorism assistance is
considered on a priority basis for countries that meet one or more of the
following criteria: (1) the country is categorized as a critical or high-
threat for terrorism and cannot adequately protect U. S. facilities and
personnel in the country with their own resources, (2) a substantial U. S.
presence exists in the country, (3) the country is served by a U. S. air
carrier or is the last point of departure for airline flights to the
United States, (4) important bilateral policy interests are at stake, and/
or (5) the country is not in violation of
human rights legislation. Training may be initiated by the U. S.
government or requested by the potential participant government. Once
State makes a policy determination that antiterrorism assistance is
needed, the U. S. mission in that country determines if such assistance is
feasible. A Bureau of Diplomatic Security- led team of experts assesses
the country*s civil police antiterrorism capabilities and identifies
specific training needs.
The team considers five basic areas that are fundamental in any nation*s
defense against terrorism. Collectively, they establish the framework for
determining a country*s ability to deter and/ or respond to terrorist
threats. The team assesses the host government*s ability to (1) enforce
the law, preserve the peace, and protect life and property; (2) protect
its national
leadership, the seat and functions of government, and the resident
diplomatic corps; (3) control its international borders; (4) protect its
critical infrastructure; and (5) manage crises having national
implications.
Finally, State*s Bureau of Democracy, Human Rights, and Labor helps
determine a country*s eligibility to participate in the program based on
the country*s human rights record. U. S. missions abroad screen each
training candidate to ensure that no human rights abusers or foreign
officials involved in corrupt practices are included.
Most of the antiterrorism assistance involves U. S.- based training,
technical consultations, seminars, in- country training, exercises, and
program reviews. Training is tailored to meet a country*s specific needs
in various police and internal security disciplines. While the program
does not provide basic police training, it does provide courses designed
to improve functional police skills, mid- level supervisory skills, and
senior- level management and leadership skills. Training is provided at
various federal, state, local, and private contractor venues in the United
States. In addition, the Antiterrorism Assistance program proposes to
build a Center for
Antiterrorism and Security Training at the U. S. Army*s Aberdeen Proving
Ground, Maryland, which would be a consolidated state- of- the- art
facility for training in antiterrorism disciplines. In addition to meeting
the program*s growing demands for classroom space, the facility, if
approved by the Congress, would include shooting and explosives ranges, a
tactical driving track, and an extensive urban tactical training complex.
Overseas training is conducted in the participant country to help sustain
program effectiveness. Training is done by a variety of federal agencies.
For example, the ATF supports the Antiterrorism Assistance program through
its explosives enforcement officers, who have traveled to more than
43 countries to evaluate foreign governments explosives incidents
countermeasures and response capabilities, and ability to neutralize
explosives threats.
The program also provides non- standard assistance* if there is a
compelling need. Courses, consultations, or advisory assistance to address
significant security threats can include police administration,
management, and organizational effectiveness; police instructor training;
police academy development; judicial security; interview and investigative
techniques; and integrated exercises. Recent technical consultations, for
example, focused with Egypt on explosive detector dogs, with Greece on
security preparations for the 2004 Olympic Summer Games in Athens, and
with Yemen on investigations.
The Antiterrorism Assistance program also provides participant countries
with grants to purchase equipment directly related to the training. For
example, grants might be used to procure airport passenger and baggage
screening equipment, crime scene investigation kits, bomb render- safe
tools, and tactical and communication equipment. To provide control over
the transfer of such equipment, the regional security officer at the U. S.
mission provides the equipment to the appropriate foreign government end-
user( s). Once a participant country has received a significant amount of
assistance and has had sufficient opportunity to incorporate it into its
security operations, State conducts a program review to determine if the
assistance should be expanded, refocused, or curtailed.
The effectiveness of the Antiterrorism Assistance program, according to
the Department of State, rests in its ability to reduce the threat of
terrorism toward U. S. facilities overseas and U. S. personnel living,
working, and traveling abroad. U. S. missions operating in participant
countries experience a close working relationship with the host nation*s
law enforcement and security forces. The program also is intended to
provide the participant country police and security forces with a cadre of
trained officers, familiar with American values and thinking, with whom
the regional security officer and other U. S. mission personnel can rely
on during a crisis. For example, in preparation for the 2004 Olympic
Summer
Games in Athens, Greek law enforcement officials have used the
Antiterrorism Training program and equipment grants to improve their
security preparations by participating in explosive ordnance and vital
installation security training. Antiterrorism Assistance program- trained
explosive detection dogs also are being requested from surrounding
countries to assist the Greek police. These K- 9 units have the potential
to assist with the protection of U. S. interests during the 2004 Olympic
Summer Games.
Mobile Emergency After the terrorist attacks of September 11, 2001,
Antiterrorism Assistance Training Team
program officials realized that key *front line* states in the war on
terrorism often did not have adequate personnel to send anyone to the
United States for training at the program*s U. S.- based facilities.
Pakistan, for example, declined all Antiterrorism Assistance training
offers for months for that reason. In response to the urgency surrounding
training support requirements of *front line* countries, program officials
decided to forego the U. S. training experience and provide more in-
country training, because participants may have to be withdrawn to handle
operational crises. Thus, the program established the Mobile Emergency
Training Team that can be airborne on 72 hours notice to provide this
training in the
participant country. Instructors will be trained in four key disciplines:
VIP protection, critical response team (special weapons and tactics)
operations, bomb disposal operations, and high- risk police patrol/
firearms instructor training.
International Criminal The purpose of ICITAP, which is located in
Justice*s Criminal Division, is to
Investigative Training provide training and development assistance to
foreign police agencies
Assistance Program worldwide in the form of technical advice, training,
mentoring, equipment
donation, and internships with criminal justice organizations. The mission
of ICITAP is to support U. S. foreign policy and criminal justice goals by
helping foreign governments develop the capacity to provide modern
professional law enforcement services based on democratic principles and
respect for human rights. ICITAP also has direct antiterrorism
applications,
which are discussed below. Specific ICITAP activities or projects are
initiated at the request of the NSC, Department of State, and/ or USAID in
agreement with the foreign governments requesting the assistance. Priority
is to be given to countries in transition to democracy, where unique
opportunities exist for major restructuring and refocusing of police and
investigative resources toward establishment of the rule of law.
Currently, ICITAP is managing programs in 18 countries and a regional
program in the Newly Independent States. 37
Although focused primarily on supporting U. S. criminal justice goals
internationally, according to the Department of Justice, ICITAP also has a
number of direct antiterrorism applications to include: (1) infrastructure
development training and technical assistance, (2) criminal investigator
training, (3) training academy development, (4) information acquisition,
management, and analysis, (5) forensics technical assistance and training,
(6) professional responsibility, (7) border control, (8) civil disorder
management and control, and (9) managing significant events.
37 ICITAP*s Newly Independent States Regional Assistance Program includes
Belarus, Georgia, Moldova, Kazakhstan, Kyrgyzstan, Turkmenistan, Ukraine,
and Uzbekistan.
Office of Overseas Prosecutorial Created in 1991, OPDAT provides justice-
sector institution- building
Development, Assistance assistance, including training of foreign judges
and prosecutors in and Training
coordination with various government agencies and U. S. embassies.
Although part of Justice*s Criminal Division, OPDAT programs are funded
principally by the Department of State and USAID. 38
OPDAT programs take place in South America, the Caribbean, Central and
Eastern Europe, Russia, the new independent states of the former Soviet
Union, Africa, the Middle East, Asia, and the Pacific region. In many of
these countries, OPDAT has placed resident legal advisors. The advisors
are experienced prosecutors who are intended to interact with local
justice- sector officials and direct OPDAT assistance projects. These
projects seek to strengthen the legislative and regulatory criminal
justice infrastructure within the host country, and enhance the capacity
of that
country to investigate and prosecute crime more effectively, consistent
with the rule of law. USAID*s Center for Democracy and Governance has an
agreement with Justice that allows USAID missions around the world to
access OPDAT for help in activities such as conducting justice sector
assessments, reviewing laws and legislation, designing rule of law
programs, and providing other technical assistance.
In response to the August 1998 terrorist bombings of the two U. S.
embassies in East Africa* and at the suggestion of State*s Office of the
Coordinator for Counterterrorism, the Bureau of Diplomatic Security*s
Antiterrorism Assistance program sponsored (in cooperation with OPDAT,
Justice*s Counterterrorism Section, and the FBI) the development of the
Financial Underpinnings of Terrorism Program specifically to assist U. S.
coalition partners in identifying and attacking terrorism*s financial
aspects. Because the motive behind terrorist crimes is often political or
ideological rather than financial, terrorists* revenues, expenditures, and
methods of moving funds differ from profit- oriented organized crime
networks. Thus, this program takes a somewhat different approach to
combating money laundering and organized criminal activity. The program
conducts one session for senior policy level officials and a second
session 38 USAID also supports programs to train foreign law enforcement,
prosecutors, and judges
and to assist in rewriting legislation and criminal sentencing guidelines.
USAID missions and State*s Bureau for Democracy, Conflict, and
Humanitarian Assistance have rule- of- law and governance programs in
about 60 of the 85 countries where USAID has a presence.
for front- line investigators, analysts, judges, and prosecutors. Senior
officials receive training on the methods of financing terrorism,
financial investigation as a means of combating terrorism, and legal and
operational
impediments, while the front- line officials conduct practical exercises
and receive training focused on developing best practices for
investigating and prosecuting those engaged in providing financial support
to terrorists. According to OPDAT, sessions to date, for example, have
helped strengthen Philippine money- laundering laws, which enhance the
Philippine*s ability to detect and disrupt terrorist financing; provided
assistance to Azerbaijan on counter- terrorist legislation; and helped
State conduct a counterterrorism assessment in Pakistan.
Working with the State Department*s Office of the Coordinator for
Counterterrorism and the Antiterrorism Assistance program, OPDAT organized
a series of seven seminars in Washington, D. C., to help provide
guidelines to countries in strengthening their counterterrorism
legislation and regulations and in complying with UN Security Council
Resolution 1373. U. S. government experts, as well as presenters from the
United Nations, Australia, Canada, Germany, and the United Kingdom,
conducted the seminars for 36 participating countries. The Office of the
Coordinator
for Counterterrorism and OPDAT also provided a similar seminar in Botswana
in March 2003 to southern African countries.
A key element in protecting Americans against the threat of terrorism is
U. S. assistance to its coalition partners in strengthening their capacity
to investigate terrorist activity and prosecute and adjudicate overseas
terrorist criminal acts, consistent with the rule of law. OPDAT*s
CounterTerrorism Project takes a comprehensive, institution- building
approach seeking to strengthen a country*s capability to investigate,
prosecute, and adjudicate terrorist activity. To meet that goal, OPDAT*s
Counter- Terrorism Project tries to (1) assist the host country in
building or strengthening the legislative and regulatory infrastructure
necessary to address threats from terrorist activity; (2) enhance, through
development of relevant skills, the
capacity 39 of host country officials to counter terrorist groups; (3)
strengthen the capacity of host country to prevent, investigate, and
prosecute terrorist groups through team building, cooperative and regional
39 The term *capacity* means the potential of the host country*s justice
sector human resources* its prosecutors and judges, police and other
investigative personnel, and court and penal system officials.
approaches; and (4) sustain results achieved through the development of
permanent structures.
Countering Terrorist Financing State*s Office of the Coordinator for
Counterterrorism and Bureau for International Narcotics and Law
Enforcement Affairs, along with the Departments of Justice and the
Treasury, have a program called Countering Terrorist Financing. This
program provides training and assistance to foreign governments to
strengthen their financial and regulatory regimes to
reduce terrorist financing. Federal Law Enforcement
The Department of Homeland Security*s FLETC, headquartered in Glynn
Training Center
County (* Glynco*), Georgia, serves as an interagency law enforcement
training organization for federal law enforcement agencies. The center
also provides services to state and local and international law
enforcement agencies. FLETC offers selected, specialized training programs
for foreign law enforcement personnel through its International Programs
Division. These offerings are designed to meet training needs not
generally available to these agencies and to enhance networking and
cooperation throughout the law enforcement community. The Department of
Homeland Security supervises FLETC*s administrative and financial
activities, while FLETC*s partner organizations 40 have considerable input
regarding training issues and operational and functional aspects of the
center. Representatives from these agencies take part in regular
curriculum review and development
conferences as well as the development of FLETC policies and directives.
As administered under FLETC*s International Programs Division, training is
provided at the center through State*s Antiterrorism Assistance program
and overseas through the U. S. government*s Law and Democracy Program and
the International Law Enforcement Academies. To date, law enforcement
officials from the Middle East, Africa, Central and South
America, and Asia have attended antiterrorism courses at the center.
However, since September 11, 2001, the center has placed its emphasis on
training U. S. law enforcement officials at its Glynco, Georgia, facility.
Since that time, training of foreign law enforcement officials is
conducted
primarily overseas through the Law and Democracy Program, 40 Federal
partner organizations are made up of 31 departments and independent
agencies. Selected partner organizations include the Departments of
Defense, Energy, Health and Human Services, Justice, State, and the
Treasury; the CIA; and the Federal Emergency Management Agency, among
others.
Antiterrorism Assistance program, and the International Law Enforcement
Academies.
International Law Much of the technical assistance that the United States
provides to other
Enforcement Academies nations for fighting international crime* including
terrorism* involves
training at law enforcement academies established abroad. International
Law Enforcement Academies provide law enforcement training to foreign
governments. State*s Bureau for International Narcotics and Law
Enforcement Affairs funds and manages the U. S. government*s interagency
regional ILEAs in Europe (in Budapest, Hungary), Southeast Asia (in
Bangkok, Thailand), and Southern Africa (in Gaborone, Botswana) and a
graduate- level ILEA (in Roswell, New Mexico), in a cooperative effort
with the Departments of the Treasury and Justice, including the FBI. In
addition, the bureau plans to establish another regional ILEA in the
Western Hemisphere (in San Jose, Costa Rica). In fiscal year 2003, the
bureau is scheduled to provide law enforcement training to some 12,000
officials,
doubling the number trained in fiscal year 2001. The National Strategy for
Combating Terrorism calls for broadening the scope and strength of the
ILEAs.
To achieve overall coordination of the ILEAs domestically, a Policy Board
was established that is comprised of members from each department and
appointed by the Secretary of State, the Attorney General, and the
Secretary of the Treasury. The mission of these academies has been to
support emerging democracies; help protect U. S. interests through
international cooperation; and promote social, political, and economic
stability by combating crime. ILEAs also are to encourage strong
partnerships among regional countries to address common problems
associated with criminal activities. ILEA Europe. In 1995, the United
States and the Government of Hungary
cooperated to create the first ILEA in Budapest, Hungary, under FBI
leadership. ILEA Budapest*s purpose is to train law enforcement officers
from Central Europe and the newly independent states of the former Soviet
Union. The academy offers two categories of courses. An 8- week core
course* a personal and professional development program*
focuses on leadership, personnel and financial management issues, ethics,
the rule of law, and management of the investigative process. According to
the State Department, approximately 250 to 300 mid- level police officers
and managers receive this training annually, which is provided by various
U. S. agencies and Hungarian and Western European law enforcement
agencies. Specialized short- term courses provide law
enforcement officers with training on combating various types of crime,
such as organized crime, financial crime, corruption, nuclear smuggling,
illegal migration, and terrorism* including training on prosecuting
criminal cases. According to the State Department, about 850 police,
prosecutors, immigration specialists, and others participate in these
courses annually.
ILEA Southeast Asia. ILEA Southeast Asia* located in Bangkok, Thailand*
opened in March 1999 under Drug Enforcement Administration leadership.
Like the ILEA Budapest program, the purpose of ILEA Bangkok is to
strengthen regional law enforcement cooperation and improve performance.
According to the State Department, this academy*s curriculum and structure
are similar to those of ILEA Budapest, with the exception of a shorter
core course (6 weeks). In 1999, over 700 law enforcement personnel
representing 10 countries participated in courses at the academy.
ILEA Southern Africa. In July 2000, the State Department announced an
agreement with the Government of Botswana to establish the ILEA for
Southern Africa in Gaborone, under the leadership of FLETC. Similar in
overall format to the other academies, ILEA Gaborone is to follow the
model developed for ILEAs in Budapest and Bangkok by providing courses on
a wide range of law enforcement skills, including police survival,
forensics, basic case management, fighting organized crime, supervisory
police training, police strategy, narcotics identification and evidence
handling, customs interdiction, illegal migration, and public corruption.
ILEA Gaborone*s curriculum also addresses special topics, such as stolen
vehicles, money laundering, crimes against women, domestic violence,
terrorism, and other critical topics such as human
rights and policing. ILEA Roswell, New Mexico. In September 2001, State
opened a new
ILEA in Roswell, New Mexico. This new facility, which will be open to
graduates of the regional ILEAs, will offer shorter- term (4 weeks versus
8 weeks) advanced training with a greater focus on an academic versus
practical or operational curriculum. ILEA Western Hemisphere. Tailored
to the regional needs of officials
from Central and South America and the Dominican Republic, pilot courses
of a new Western Hemisphere ILEA already have been conducted at a
temporary site in Panama. However, activities were
suspended until a permanent location could be selected. State plans to
establish ILEA San Jose in Costa Rica.
U. S. Assistance to The National Strategy to Combat Weapons of Mass
Destruction calls for
Other Countries to active nonproliferation diplomacy. It also discusses
the importance of
Detect Weapons of international cooperation in reducing threats and
controlling nuclear
Mass Destruction materials. Toward these efforts, the United States has a
number of
programs that provide assistance to other countries to prevent the
proliferation of weapons of mass destruction. These nonproliferation
programs are intended to, among other things, keep terrorists from
acquiring and using weapons of mass destruction. Currently, these programs
are divided among several federal agencies including the Departments of
State, Defense, Energy, Homeland Security, and Justice. U. S. assistance
began in the mid- 1990s under DOD*s Cooperative Threat Reduction program
and then expanded to the Departments of State and Energy and other DOD
programs.
The agencies have provided a range of assistance, including installing
security equipment around nuclear facilities, conducting research and
development on nonproliferation and verification technologies, as well as
providing conventional equipment and training. DOE has been leading many
of these efforts. For example, over the last 7 years, Energy has worked
cooperatively with Russia to install modern nuclear security systems at
Russia's nuclear material sites. These security upgrades consist of (1)
physical protection systems, such as fences and metal doors; (2) material
control systems, such as seals attached to nuclear material containers and
badge systems that only allow authorized personnel into areas containing
nuclear material; and (3) material accounting systems, such as inventories
of nuclear material and computerized databases. In addition, Energy*s
National Nuclear Security Administration has been conducting research and
development on new technologies that are
intended to improve U. S. capabilities in nuclear explosion monitoring,
proliferation detection, and response to chemical or biological attacks.
Furthermore, as part of their nonproliferation assistance programs, Energy
and the other five agencies have been providing equipment and training to
Russia and other countries* mostly in Central and Eastern Europe.
Radiation detection equipment is one of the many types of assistance that
the U. S. agencies are providing. Other equipment ranges from simple hand
tools for taking apart and searching different compartments of a vehicle
for
hidden contraband to boats and vehicles for conducting patrols. Similarly,
training ranges from hands- on instruction in using the equipment and
conducting searches to high- level technical exchanges on establishing the
legal and regulatory basis for preventing illicit trafficking and trade in
sensitive goods and materials that terrorists could use in a nuclear
weapon. 41
While the Departments of Defense, Energy, and State receive their own
funding for their assistance programs, the Departments of Homeland
Security and Justice receive their funding from State and/ or DOD. Energy
also receives part of its funding from State. Table 6 lists each specific
U. S. nonproliferation assistance program and activity.
41 For a more detailed discussion and an evaluation of these programs, see
U. S. General Accounting Office, Nonproliferation R & D: NNSA's Program
Develops Successful Technologies, but Project Management Can Be
Strengthened, GAO- 02- 904 (Washington,
D. C.: Aug. 23, 2002). We reported that research areas of the
Nonproliferation and Verification Research and Development Program lack a
formal process to identify users* needs. See U. S. General Accounting
Office, Nuclear Nonproliferation: U. S. Efforts to Help Other Countries
Combat Nuclear Smuggling Need Strengthened Coordination and Planning, GAO-
02- 426 (Washington, D. C.: May 16, 2002). We reported that U. S.
assistance is
not effectively coordinated and lacks an overall governmentwide plan to
guide it, because agencies do not always coordinate their efforts through
an interagency group chaired by the Department of State. U. S. General
Accounting Office, Nuclear Nonproliferation: Security of Russia*s Nuclear
Material Improving; Further Enhancements Needed, GAO- 01- 312 (Washington,
D. C.: Feb. 28, 2001). We reported that hundreds of metric tons of nuclear
material continue to lack improved security systems and no mechanism is in
place to monitor the effectiveness of the systems once they are installed.
Tabl e 6: U. S. Nonproliferation Assistance Programs Agency Program
Activity description
Department of Energy Material Protection, Control, and Accounting Installs
improved security systems for nuclear material at civilian program nuclear
sites, naval fuel sites, and nuclear weapons laboratories
throughout Russia. These security upgrades have consisted of (1) physical
protection systems, such as fences and metal doors; (2) material control
systems, such as seals attached to nuclear material containers and badge
systems that only allow authorized personnel into areas containing nuclear
material; and (3) material accounting systems, such as computerized
databases. In addition, Energy is providing sites with long- term
assistance through equipment warranties, operating procedure development,
and training.
Second Line of Defense program Provides and installs radiation detection
equipment, such as portal monitors, at Russian border crossings, including
a Moscow airport. Energy may expand the program beyond Russia to
include countries of the former Soviet Union. International Export Control
program Provides funds to help countries of the former Soviet Union
control the export of goods and technologies that could be used in the
development of nuclear weapons. The program provides assistance to prevent
legitimate enterprises, such as businesses that were affiliated with the
Soviet Union's nuclear weapons complex, from intentionally or
unintentionally engaging in illicit trade in such goods and technologies.
Nonproliferation and Verification Research Manages projects that cover a
wide spectrum of activities to and Development program improve U. S.
capabilities in the areas of nuclear explosion
monitoring, proliferation detection, and chemical and biological response.
Projects range from manufacturing specialized satellitebased sensors that
detect nuclear explosions to developing and delivering sensor technologies
that detect the spread of nuclear, chemical, and biological weapons,
materials, and technologies
worldwide. Installs radiation detection equipment in countries of the
former Soviet Union (other than Russia) and Central and Eastern Europe.
Department of State Nonproliferation and Disarmament Fund Provides
radiation detection equipment and other assistance for interdicting
nuclear smuggling to the former Soviet Union and Central and Eastern
Europe.
Export Control and Related Border Security Provides radiation detection
equipment, such as vans equipped Assistance program with radiation
detectors, and other assistance for interdicting nuclear smuggling to
countries of the former Soviet Union and Central and Eastern Europe. (The
program took over
Nonproliferation and Disarmament Fund radiation detection assistance
beginning in fiscal year 2002.) Republic of Georgia Border Security and
Provides a wide range of assistance to the Republic of Georgia's Law
Enforcement program border guards and customs service to interdict nuclear
smuggling;
fight other crimes, such as drug smuggling; and develop border
infrastructure.
(Continued From Previous Page)
Agency Program Activity description
Department of Cooperative Threat Reduction program Provides funds to
various countries for the (1) purchase of Defense radiation detection
equipment, such as pedestrian portal monitors
to screen people and (2) handheld radiation detection monitors and other
equipment to enable the countries to better patrol their borders, conduct
searches for smuggled contraband, and equip their border posts.
International Counterproliferation program Provides funds to the
Department of Homeland Security and the FBI for training and equipment for
countries of the former Soviet Union and Central and Eastern Europe.
Department of Homeland Security, Bureau of Customs and Border With funding
provided by the Departments of Defense and State, Protection (formerly run
by the U. S. Customs Service under the provides training and equipment to
customs agencies and border Department of the Treasury)
guards in other countries. The equipment includes radiation pagers (small
detectors that can be worn on a belt to continuously monitor radiation
levels or used as a handheld device to pinpoint the location of
radioactive material detected by a portal monitor) as well as a variety of
other high- and low- technology tools to conduct searches and detect
sensitive goods and materials. Training includes assistance in operating
the x- ray vans equipped
with radiation detectors and providing hands- on instruction in using
equipment to detect nuclear smuggling. Department of Homeland Security, U.
S. Coast Guard Through funding provide by the State Department's Export
Control and Related Border Security Assistance program,
provides assistance for maritime interception of nuclear smuggling to
countries of the former Soviet Union. Assistance provided has included
boats with spare parts and the stationing of an in- country U. S. Coast
Guard advisor.
Department of Justice, Federal Bureau of Investigation Through DOD's
International Counterproliferation program, trains and equips foreign law
enforcement agencies to investigate and respond to actual seizures of
smuggled nuclear or other material. Training has included seminars for
high- level officials and courses on conducting investigations and
managing a crime scene where a seizure has taken place. Equipment provided
as part of the training has included hazardous material suits to make
handling of seized material safer, evidence collection and sampling kits,
and chemical detection equipment.
Source: Departments of Defense, Energy, and State; U. S. Coast Guard; and
the FBI.
U. S. Security and Economic U. S. security and economic assistance
programs, which are managed by
Assistance Seeks to the Department of State, can enhance the capabilities
of coalition partners
Enhance in combating terrorism overseas. Long- standing U. S. security and
Coalition Capabilities economic assistance programs have attempted to
support the *global war
on terrorism* in general and Operation Enduring Freedom in particular.
They include the following:
Foreign Military Financing The Foreign Military Financing program provides
financial grants through the Department of State to foreign governments to
purchase U. S.- made weapons and military training. It is intended to
promote U. S. national security interests by contributing to global and
regional stability, strengthening military support for democratically
elected governments,
and containing transnational threats, including terrorism. As such, the
program can be a key economic assistance tool in supporting U. S.
coalition partners in combating terrorism overseas. The Department of
State provides grants for the acquisition of U. S. defense equipment,
services, and training that enable key allies and friends to improve their
defense capabilities. Improved capabilities are expected to (1) strengthen
multilateral coalitions with the United States and its allies, (2) improve
bilateral military relationships between the United States and the
recipient nations, and (3) allow U. S. friends and allies increased
interoperability with U. S. forces. Many of the grants during fiscal year
2003 will be used to help combat terrorism overseas. For example, grants
will be used to (1) target security requirements linked to the *war on
terrorism* in Jordan, Oman, and Yemen; (2) assist Colombia*s effort to
defend its economy by supporting a brigade to protect its oil pipeline;
(3) support India and Pakistan in their efforts in the war on terrorism;
(4) continue efforts to integrate recent NATO members and sustain support
for Partnership for
Peace countries in Central Europe, the Baltics, the Caucasus (especially
Georgia), and in the Central Asian countries; and (5) sustain the
Philippine*s military capability, particularly in its effort to address
the terrorist threat.
Foreign Military Sales The Foreign Military Sales program is used by the
United States to sell weapons, weapons systems, and military equipment to
foreign countries to maintain close ties with neighbors and key allies,
maintain stable and secure regional partners, and ensure regional
stability. Additionally, State*s Bureau of Political- Military Affairs,
through FMS and other security assistance, helps new members of NATO
upgrade their military capabilities and achieve greater interoperability
with U. S. and other alliance forces and helps to strengthen the security
and defense capabilities of key Central
Asian and Caucasus partners, whose support is crucial to combating
terrorism.
International Military Education The International Military Education and
Training program was established
and Training in 1976 as a low- cost security assistance program intended
to foster the
development of more professional militaries around the world through
training and education of foreign military and civilian personnel. 42 The
program provides training on a grant basis to some 10,000 students
annually from 133 allied and friendly countries. Formal instruction is
provided through more than 2,000 courses taught at about 150 U. S.
military schools and installations. In many of these countries, it is the
only military engagement tool available to the United States. According to
the Department of State, the program advances U. S. interests in
furthering regional stability by enhancing military alliances, building
coalitions, and strengthening efforts to combat terrorism abroad. State
determines the political advisability of providing training to individual
countries and funds the program through its International Affairs budget.
DOD plans and manages the program through its Defense Security and
Cooperation Agency, which works with the various military departments and
unified military commands to implement the program. Coordination of the
program overseas is handled by DOD*s security assistance offices located
in U. S. embassies around the world, which field requests from their host
countries to participate in the program. All foreign applicants are
screened before being admitted to the program. Enhancing military
professionalism is intended to make militaries more efficient, effective,
and interoperable with U. S. and NATO forces as well as regional
coalitions. Also, it seeks to foster a better understanding of democratic
values, including civilian rule of the military, belief in the rule of
law, and respect for internationally recognized civil and human rights.
Finally, the program*s development of professional and personal military-
to- military relationships provide
U. S. access and influence to a critical sector of society that can help
support U. S. access to foreign military bases and facilities* a critical
component in efforts to combat terrorism overseas.
Economic Support Funds Economic Support Funds are used to promote security
and stability overseas, particularly in emergency situations, where the
United States has vested interests. The funds are provided to foreign
nations in grant form, 42 The International Military Education and
Training program was established as part of the
International Security Assistance and Arms Export Control Act of 1976 (22
U. S. C. S: 2751 et seq.), Jun. 30, 1976.
often without restrictions on the money*s use. Though not intended for
military use, the money allows foreign governments to free up other funds
for military use or other purposes. The Economic Support Fund is intended
to promote the economic and political foreign policy interests of the
United States by providing assistance to allies and countries in
transition to democracy, supporting the Middle East peace negotiations,
and financing
economic stabilization programs, frequently in a multi- donor context.
USAID, with overall foreign policy guidance from the Department of State,
implements most Economic Support Fund programs. By promoting economic
growth, good governance, and strong democratic institutions, the Economic
Support Fund is intended to eradicate the economic and political disparity
that often underlies social tension and can lead to radical, violent
reactions against government institutions. Thus, these
economic assistance programs focus on mitigating the root causes of
terrorism.
Peacekeeping Operations In addition to its contributions to UN
peacekeeping operations, the United States maintains a Peacekeeping
Operations program of its own that is designed to promote increased
involvement of regional organizations and some individual countries in
regional and international peacekeeping operations. Peacekeeping
operations support U. S. national interests by promoting human rights,
democracy, and regional security. They facilitate humanitarian responses
to crisis situations. Also, they support the increased involvement of
regional organizations in conflict resolution, multilateral peace
operations, and sanctions enforcement through provision of logistics
support, peacekeeping training, and peacekeeping equipment. The United
States has a strong interest in enhancing the ability of other nations to
lead or participate in voluntary peacekeeping and humanitarian operations
in order to reduce the burden on the United States. Finally, peacekeeping
operations can help address the root causes of terrorism by reducing the
likelihood of hostile interventions by other powers, preventing the
proliferation of small conflicts, facilitating the stability necessary for
the establishment and growth of new market economies, containing the cost
of humanitarian emergencies, and limiting refugee flows. This is
accomplished through the separation of adversaries; facilitation of the
delivery of humanitarian relief; repatriation of refugees and displaced
persons; demobilization, disarmament, and reconciliation of combatants;
and creation of conditions under which political reconciliation may occur
and democratic elections may be held.
Additional Assistance In addition to the security and economic assistance
programs mentioned, through Military- to- Military
DOD provides military- to- military training to other countries to improve
Training
their abilities to prevent and detect terrorism and, if necessary, disrupt
and destroy terrorist organizations. These bilateral programs are part of
the regional commands* Theater Security Cooperation Plans to improve U. S.
allies* capabilities to combat terrorism.
Joint Combined Exchange DOD*s Joint Combined Exchange and Training program
provides
and Training U. S. special operations forces opportunities to develop and
maintain their
skills and to train foreign militaries and other groups to combat
terrorism overseas, among other missions. U. S. special operations forces
generally are organized into small units for military action focused on
strategic or
operational goals. They are tasked with a variety of missions ranging from
training, advising, and organizing foreign groups for unconventional
warfare to training coalition forces for multinational military
operations, including combating terrorism overseas. These missions require
special skills that conventional forces do not have, such as the ability
to speak foreign languages, understand regional cultural and environmental
characteristics, and quickly deploy and operate unsupported in sometimes
hostile or politically sensitive areas. The U. S. Special Operations
Command believes that the best way its forces can train for these types of
missions is to train with the people in the places where they may have to
operate.
In 1991, the Congress clarified DOD*s authority to spend training funds in
connection with special operations forces training overseas with friendly
foreign forces, as long as the primary purpose was to train U. S. forces.
43 Since the enactment of this legislation, such training has commonly
been
referred to as Joint Combined Exchange Training. 44 Special operations
forces are charged with nine principal missions and, on the basis of their
unique capabilities, conduct a variety of other activities. The principal
missions are to (1) train and otherwise assist foreign militaries to
combat insurgency and other threats to stability (foreign internal
defense);
43 National Defense Authorization Act for Fiscal Years 1992 and 1993 (P.
L. 102- 190), Dec. 5, 1991. 44 For a more detailed description and GAO*s
evaluation of the JCET program, see U. S. General Accounting Office,
Military Training: Management and Oversight of Joint Combined Exchange
Training, GAO/ NSIAD- 99- 173 (Washington, D. C.: July 23, 1999). We
reported that DOD had complied with the statutory requirement for
conducting JCETs.
However, DOD had not accurately reported to the Congress the number of
JCETs that were conducted, their costs, or their relationship to
counternarcotics and counterterrorism.
(2) train, advise, and otherwise assist local forces for guerilla warfare
(unconventional warfare); (3) protect against and prevent the spread of
nuclear, chemical, and biological weapons (counterproliferation); (4) use
offensive and defensive measures to prevent or resolve terrorist incidents
(combating terrorism); (5) obtain information concerning capabilities and
activities of actual or potential adversaries (special reconnaissance);
(6) inflict damage on an adversary or recover personnel or material
(direct action); (7) target an adversary*s information system while
defending U. S. systems (information operations); (8) establish, maintain,
or strengthen relations between U. S. and allied governments to facilitate
military operations (civil affairs); and (9) influence attitudes of
foreign audiences (psychological operations). Specific Joint Combined
Exchange and Training operations and activities are classified.
U. S. Special Operations The U. S. European Command initiated the Georgia
Train and Equip
Forces Training for the Republic Program to enhance Georgia*s counter-
terrorism capabilities. The
of Georgia program*s goal is to build strong effective staff organizations
capable of
creating and sustaining standardized operating procedures, training plans,
operational plans, and a property accounting system. The curriculum
consists of performance- oriented training and exercises. The time- phased
training will be conducted by U. S. Special Forces to build upon the
military- to- military relationship developed between the two countries.
The program will consist of command center staff training for members of
the Georgian Ministry of Defense as well as training for units of the Land
Forces Command. Border Guards and other Georgian security agencies will be
included to ensure interoperability among Georgia*s security forces.
Almost 200 Georgians have completed the staff- training phase and about
500 Georgians are completing the light- infantry tactics training.
Military equipment to be provided will include uniform items, small arms
and ammunition, communications gear, training gear, medical gear, fuel,
and construction material.
Figure 9 shows members of 2nd Company, Georgian Commando Battalion,
performing a combat off load at a training range at Krtsanisi, Republic of
Georgia. The U. S. Army*s 10th Special Forces Group (Airborne) is in
Georgia conducting the Georgia Train and Equip Program, which will enhance
Georgian soldiers' abilities in various battlefield techniques.
Figure 9: 2nd Company, Georgian Commando Battalion, Perform a Combat Off
Load With Members of the U. S. Army*s 10th Special Forces Group (Airborne)
at a Training Range at Krtsanisi, Republic of Georgia
U. S. Special Operations Forces The U. S. Pacific Command is assisting the
Republic of the Philippines in
Training for the Philippines developing a counter- terrorist capability
within their armed forces through
the Foreign Military Financing program. The U. S. Pacific Command deployed
a Joint Task Force advisory team to the southern Philippines to begin
preparations. The Joint Task Force advisory team, composed of U. S.
Special Operations personnel is providing training at the command level at
headquarters down through the company level in the field. The
training emphasizes joint operations and tactics to help eliminate
terrorist threats. Training includes counter- terrorism campaign planning,
intelligence fusion, psychological operations, civil- military operations,
and field tactics. U. S. Special Operations personnel completed training
with 25 field companies and provided equipment that included aircraft, U.
S. Coast Guard cutters, and helicopters.
Figure 10 shows a U. S. Special Forces soldier demonstrating to a Filipino
soldier how to adjust the sights on his M- 16 rifle during marksmanship
training in Tipo- Tipo Town, Basilan Island, Philippines. U. S. forces
currently are in the Philippines participating in joint combating-
terrorism training with their Filipino counterparts.
Figure 10: U. S. Special Forces Soldier Shows a Filipino Soldier How to
Adjust the Sights on His M- 16 Rifle during Marksmanship Training in Tipo-
Tipo Town, Basilan Island, Philippines
Source: Jason Carter of the Pacific Stars and Stripes. (c) 2003 Stars and
Stripes.
Assisting Other Countries Some special events overseas, such as
presidential summit meetings with International
and the Olympic games, have international significance and thus may
Security Events
attract terrorist attacks. These international special events receive U.
S. security protection, whether through the U. S. Secret Service providing
protective security to senior U. S. officials, Diplomatic Security
protecting U. S. personnel and facilities, or the military standing by to
respond, if needed, to terrorist incidents involving weapons of mass
destruction or to evacuate Americans.
Unlike domestic special security events, there is no process to coordinate
federal agencies* roles and responsibilities for special security events
held outside of the United States. 45 Nevertheless, the United States can
provide
assistance to other countries for special security events. For example,
the Department of State coordinated and managed federal agencies*
assistance for the 1992 Olympic Summer Games in Barcelona, Spain; the 1994
Olympic Winter Games in Lillehammer, Norway; and the 1994 Commonwealth
Games in Victoria, British Columbia, Canada. For the upcoming 2004 Olympic
Summer Games in Athens, Greece, the Department of State is coordinating
federal agencies* assistance at the headquarters level in
Washington, D. C., and at the U. S. Embassy in Athens, Greece. In
Washington, D. C., the State Department*s Office of the Coordinator for
Counterterrorism and Bureau of Diplomatic Security established an
interagency group and at the U. S. Embassy in Athens, the bureau
established an Olympic Security Coordinator and an Olympic Security
Advisory Team to coordinate federal assistance. The advisory team is
composed of agency officials from DOD, the FBI, the CIA, and the Federal
Aviation Administration. As discussed earlier in this chapter, one
initiative includes counterterrorism training for Greek law enforcement
authorities through State*s Antiterrorism Assistance program.
Security planning for the 2004 Olympic Summer Games in Athens is a
multilateral effort. The Government of Greece requested Olympic security
expertise from seven countries: the United States, the United Kingdom,
France, Spain, Israel, Germany, and Australia. These countries make up the
Olympic Security Advisory Group, which reports to the Greek Minister of
Public Order on security issues at the strategic level. The group also
provides advice on technical support issues at the operational level. The
range of issues includes intelligence, planning, training and exercises,
technology, command and control coordination, and venue security.
45 For domestic situations, PDD 62 created a category of special events
called National Special Security Events, which are events of such
significance that they warrant greater federal planning and protection
than other special events. For these events, the directive reaffirmed the
FBI*s lead federal agency role for crisis management and designated the U.
S. Secret Service as lead federal agency for security design, planning,
and implementation. The directive also reaffirmed the Federal Emergency
Management Agency as responsible for consequence management.
Coordination Mechanisms Programs to assist other countries are coordinated
through a variety of
for Assistance to Enhance forums. For those aimed at improving other
countries* capabilities to
Coalition Capabilities combat terrorism, coordination across agencies is
done in working groups
under the NSC*s Counterterrorism Security Group (discussed in chapter 2).
Specifically, the State Department chairs a Training and Assistance
SubGroup that coordinates the different programs to provide terrorism-
related training and assistance to foreign governments and their
officials. The
group works to prioritize countries that should receive assistance. The
group reviews assistance programs of the various agencies to ensure they
are properly sequenced, avoid duplication, and ensure that they are
implemented in collaboration with or reinforce other efforts as
appropriate. This group has a subordinate group, also chaired by the
Department of State, called the Counterterrorism Finance Training and
Technical Assistance Working Group. This group focuses on providing
related finance training and technical assistance to a set of priority
countries and attempts to ensure that the delivery of such assistance by
different agencies does not conflict and is used effectively and
efficiently. Within the State Department, the Bureau of Diplomatic
Security and the
Office of the Coordinator for Counterterrorism work with other agencies to
decide how to spend Antiterrorism Training Assistance funds. In the field,
the embassy country teams are also involved in coordinating programs
from the various agencies with headquarters and negotiating the assistance
packages with the foreign government. Agency Comments and
The Departments of Defense, Justice, and State and the former Our
Evaluation
Immigration and Naturalization Service provided technical comments on the
matters covered throughout this chapter. Based upon these comments, we
made revisions, as appropriate. We also made revisions (primarily to the
section on border security) based upon the creation of the Department of
Homeland Security and the transfer of various agencies and functions from
other departments into that department.
Federal Efforts to Disrupt and Destroy
Chapt 4 er Terrorist Organizations Federal agencies attempt to disrupt and
destroy terrorist organizations through diplomatic initiatives, law
enforcement efforts, financial operations to freeze assets, military
operations, and covert action. Diplomatic initiatives, led by the
Department of State, strengthen international cooperation and capabilities
through bilateral and multilateral agreements. The State Department*s
diplomatic leadership and agreements allow other agencies to cooperate
more closely with
foreign countries on specific types of efforts. Other multilateral
agreements, including UN resolutions and conventions, also help to
strengthen international cooperation. Law enforcement efforts, led by the
Department of Justice, disrupt terrorist organizations through
investigations, arrests, and prosecutions of terrorists. As a principal
investigative agency of the federal government, the FBI conducts
investigations on acts of terrorism against U. S. persons and property
overseas. Operations to identify and freeze terrorists* financial assets
are conducted by the Departments of the Treasury, Justice, and State and
involve tracking monies, accounts, and wire transfers of terrorist
organizations. Military operations, led by DOD, destroy terrorist
organizations and complement other methods* diplomatic, legal, and
economic* to prevent or disrupt terrorist organizations. DOD and its
coalition partners are conducting Operation Enduring Freedom in
Afghanistan and surrounding regions to destroy al Qaeda and the Taliban
regime. Captured combatants* who are not considered prisoners of war by
the U. S. government* have been detained and interrogated to provide
intelligence information. Finally, covert actions, led by the CIA, have
been used to disrupt and destroy terrorist organizations. This chapter
describes the relevant federal programs in place and is not an evaluation
of their effectiveness.
Diplomatic Initiatives The National Strategy for Combating Terrorism
includes an objective to
Strengthen strengthen and sustain international efforts to combat
terrorism. There is
also an objective to establish and maintain an international standard of
International accountability with regard to combating terrorism. The
strategy also gives
Cooperation the Department of State the lead in developing specific
regional strategies
for combating terrorism overseas, as well as policy action plans to deal
with state sponsors of terrorism. Diplomatic initiatives, led by the
Department of State, are key to achieving these objectives. Such
diplomatic efforts help strengthen international cooperation in the effort
to disrupt and destroy terrorists and their organizations. State helps to
orchestrate other nations* bilateral support to assist the United States
in conducting law enforcement cooperation, financial operations, and
military
operations. State negotiated a number of bilateral and multilateral
agreements with foreign countries to support these operations. State also
solicited international cooperation by actively trying to enlist
multilateral organizations in the fight against terrorism. These efforts
include multilateral agreements and conventions, resolutions, and
international summits involving the United Nations and other international
organizations. Various State Department offices, bureaus, and missions
overseas* in conjunction with other federal agencies* coordinate these
diplomatic initiatives.
U. S. officials, from several agencies at both the headquarters and
overseas, told us that bilateral agreements with individual nations are
the most productive type of cooperation. However, they noted that
multilateral agreements provide an important framework that, in the eyes
of other countries, legitimizes their bilateral cooperation with the
United States.
Bilateral Cooperation The Department of State strengthens international
cooperation through
Supports Variety of agreements, consultations, and negotiations with other
countries to assist
Activities by U. S. other U. S. government agencies in their efforts to
enforce laws, deny Government Agencies
terrorist financing, and carry out military operations against terrorists
and their organizations. The Department of State leads periodic U. S.
delegations* consisting of a number of U. S. agencies* that meet with
other nations to discuss and cooperate on terrorism issues of mutual
bilateral concern. For example, State Department*s Coordinator for
Counterterrorism recently led one of these U. S. delegations to meet with
French officials. Through its diplomacy, the department facilitates
cooperation in a variety of areas.
Law enforcement The Department of State negotiates formal bilateral
agreements to strengthen law enforcement cooperation with other individual
countries. For example, there are a number of law enforcement- related
treaties negotiated by the Department of State, in conjunction with the
Department of Justice, related to legal assistance and extradition. These
agreements
promote increased cooperation with foreign law enforcement authorities for
the exchange of evidence and apprehension of terrorist suspects.
Terrorist financing The Departments of State and the Treasury have worked
with a number of countries on a bilateral basis to strengthen measures to
deny terrorists access to financial support. Since September 11, 2001, the
United States, in conjunction with other countries, designated a number of
individuals and
organizations as sponsors of terrorism. At individual embassies, State
Department economic officers work with their counterparts to improve joint
efforts to disrupt terrorist financing.
Military operations The State Department worked to negotiate a number of
bilateral agreements for military cooperation to combat terrorism. In the
wake of the September 11, 2001, attacks, State worked with DOD to
establish bilateral agreements to support military operations in
Afghanistan and surrounding regions. Ultimately, 89 countries agreed to
provide over- flight rights for U. S. military aircraft and 76 agreed to
provide landing and/ or
bed- down rights for U. S. military aircraft. In addition, 23 countries
agreed to host U. S. and coalition forces involved in military operations
in Afghanistan. These later agreements, reached with neighboring
countries, such as Pakistan and the Central Asian republics, were
particularly significant in that they provided secure staging areas for U.
S. and coalition military forces to carry out their missions. These
bilateral agreements are in addition to other countries actually
conducting military operations with the United States.
Multilateral Cooperation The Department of State works with international
organizations to
through the UN Provides enhance multilateral support to disrupt and
destroy terrorists and their
Political Support for organizations. Foremost of these organizations is
the United Nations. Its
Coalition Efforts Counterterrorism Committee reviews international efforts
to combat
terrorism. The State Department works with the United Nations and its
member states to establish a broad array of resolutions and conventions to
create a multilateral framework for combating international terrorism.
This UN- based multilateral framework falls into three broad categories of
documents or agreements (as described below). Appendix VI provides a
listing of protocols, conventions, and resolutions that the United Nations
has identified as related to terrorism. 1 UN Conventions and Protocols
There are 10 UN conventions and 2 protocols dating back to 1963 that
are related to terrorism. An example of these is the 1997 International
Convention for the Suppression of Terrorist Bombings. The State
1 In addition to those listed in appendix VI, there are other UN efforts
indirectly related to terrorism. According to ATF, these include efforts
to combat illicit trafficking in firearms, ammunition, and explosives used
not only by common criminals but also terrorists. UN efforts include the
UN Protocol Against the Illicit Manufacturing of and Trafficking in
Firearms and the UN Programme of Action on Small Arms and Light Weapons.
Department, through its diplomatic efforts in Washington and around the
world, has urged countries to agree to these conventions and protocols.
Before September 11, 2001, only 2 countries were parties to all 12
instruments. As of November 2002, 16 countries, including the United
States, are a party to each of the 12 conventions and protocols.
UN Security Council Resolutions The UN Security Council consists of 5
permanent members with veto authority (China, France, Russia, the United
States, and the United Kingdom) and 10 rotating members. 2 Under Chapter
VII of the UN Charter, mandatory provisions in resolutions adopted by the
UN Security Council form a legal basis for taking actions against
terrorists. There are numerous UN Security Council Resolutions dating back
to 1970 that are related to terrorism. For example, UN Security Council
1373, which is a wide- ranging measure calling for international
cooperation against terrorist financing. Among other things, this
resolution calls for member nations to report back
on their activities to combat terrorism. According to the National
Strategy for Combating Terrorism, UN Security Council Resolution 1373 is
one example of the United States enlisting the international community to
establish and maintain an international standard of accountability with
regard to combating terrorism.
Figure 11 shows the UN Security Council voting on a terrorism- related
resolution in the aftermath of the terrorist attacks against the United
States on September 11, 2001.
2 The current 10 rotating members of the UN Security Council are Angola,
Bulgaria, Cameroon, Chile, Germany, Guinea, Mexico, Pakistan, Spain, and
Syria.
Figure 11: UN Security Council Unanimously Adopts Resolution 1373, Calling
for Wide- Ranging International Cooperation to Combat Terrorism
UN General Assembly The UN General Assembly consists of the entire
membership, currently
Resolutions numbering 189 nations. Resolutions from the General Assembly
are
adopted based upon the votes of the entire UN membership but, unlike UN
Security Council Resolutions, are not binding. There are numerous UN
General Assembly resolutions dating back to 1972 related to terrorism. An
example of these is UN General Assembly Resolution 39/ 159 from 1984,
which condemned all policies and practices of terrorism between states as
a method of dealing with other states.
State Department Works In addition to the United Nations, the State
Department is working with
With Variety of Other a number of other international organizations to
promote multilateral
International Multilateral cooperation to combat terrorism. The
memberships of these other
Organizations international organizations overlap, with several nations
(including
the United States) belonging to several of them. Examples of these
international organizations and some of their related activities are as
follows.
North Atlantic Treaty The North Atlantic Treaty Organization is a
political and security alliance
Organization of 19 nations from North America and Europe. 3 In the wake of
the
September 11, 2001, terrorist attacks, NATO members invoked Article V* a
collective defense provision of the 1949 Washington Treaty. The provision,
invoked for the first time in NATO*s history, states that an armed attack
on any ally is considered an attack against all. NATO approved eight
measures to expand its options in the campaign against terrorism,
including the deployment of its Standing Naval Forces to the Eastern
Mediterranean Sea and its Airborne Early Warning force.
European Union The European Union is a group of 15 countries forming a
political and economic union. The European Union has taken steps to
improve cooperation between European and U. S. law enforcement officials,
coordination of the freezing of terrorist assets, and to provide a
framework for cooperation on border security issues. The Group of Eight
The Group of Eight (G- 8) is a group of major industrialized democracies
that meet periodically on a number of political, economic, and security
issues. 4 The G- 8 has been an active forum for supporting measures
against terrorists and their organizations. Several of the group*s summits
have resulted in joint declarations that condemn terrorism and pledge to
improve member countries individual and collective efforts to combat
terrorism, including endorsing international recommendations to combat
terrorist financing. The Organization for Security
The Organization for Security and Cooperation in Europe consists of and
Cooperation in Europe
55 nations from Europe, Central Asia, and North America that discuss human
rights, economic development, and security issues. The organization has
incorporated combating terrorism financing into its work plan and agenda,
urging its members to implement certain recommendations to combat
terrorist financing.
3 NATO*s current membership includes Belgium, Canada, the Czech Republic,
Denmark, Estonia, France, Germany, Greece, Hungary, Iceland, Italy,
Luxembourg, the Netherlands, Norway, Poland, Portugal, Spain, Turkey, the
United Kingdom, and the United States. In addition, Bulgaria, Estonia,
Latvia, Lithuania, Romania, Slovakia, and Slovenia have been invited to
begin accession talks to join NATO in May 2004.
4 G- 8 members include Canada, France, Germany, Italy, Japan, Russia, the
United Kingdom, and the United States.
The Organization of American The Organization of American States consists
of 35 nations from the
States Western Hemisphere. The organization adopted the Inter- American
Convention against Terrorism requiring, among other things, that each
signatory state establish a legal and regulatory regime to combat the
financing of terrorism. Parties also agreed to improve controls at banks
and other financial institutions.
Other international groups Other international groups provide collective
support to specific functions related to terrorism. These include the
Financial Action Task Force and the Egmont Group, which both are involved
in disrupting terrorist financing. The membership of these groups overlaps
with many of the other groups
mentioned above. In addition, the State Department has sponsored and/ or
attended a number of international meetings to discuss terrorism outside
the forums described above. An example includes terrorism summits at Sharm
el- Sheikh, Egypt, in 1994. These international summits resulted in
declarations of support for national and international efforts to combat
terrorism.
Coordination Mechanisms The State Department generally is in charge of
efforts to coordinate
for Bilateral and Multilateral diplomatic initiatives related to combating
terrorism overseas. Overall, the
Diplomacy department*s Coordinator for Counterterrorism coordinates both
bilateral
and multilateral initiatives. Within the coordinator*s office, officers
are assigned specific regional areas to coordinate activities. The
department*s regional and functional bureaus also are involved in
coordination of
diplomatic initiatives, as are other federal agencies, as appropriate. For
bilateral diplomatic initiatives, the department*s regional bureaus,
functional bureaus, country desks, and U. S. embassies play a major role
in coordination. For example, U. S. efforts with the Philippines to combat
terrorism would involve the Coordinator for Counterterrorism, the Bureau
of East Asian Affairs, the Bureau of Political Military Affairs, the
Philippines country desk, and the U. S. Embassy in Manila. Other federal
agencies with specific programs would also be involved in coordination,
such as DOD in the case of military assistance to the Philippines related
to combating terrorism. Another example would the Department of Justice*s
involvement in negotiations of bilateral agreements related to mutual
legal assistance or extradition, which is discussed later in this chapter.
For multilateral diplomatic initiatives, the department*s Bureau of
International Organization Affairs, working with the Coordinator for
Counterterrorism, has the lead in coordinating activities with
international
organizations. Similar to regional bureaus, the bureau has individual
desks for individual international organizations. Similar to U. S.
embassies, the United States maintains diplomatic missions to
international organizations, such as the U. S. Mission to the United
Nations in New York; the U. S.
Mission to NATO in Brussels, Belgium; and the U. S. Mission to the
European Union, also in Brussels, Belgium. The department*s Bureau of
International Narcotics and Law Enforcement coordinates multilateral law
enforcement programs, such as the International Law Enforcement Academies.
Again, other federal agencies with specific programs also are involved in
coordination, such as the Department of the Treasury*s programs to disrupt
terrorist financing and DOD*s European Command
involvement in the case of NATO naval support to maritime operations in
the Mediterranean. The State Department also participates in multilateral
negotiations of treaties and other agreements relating to terrorism.
Law Enforcement One of the enduring policy principles that guides U. S.
strategies to combat
Efforts to Disrupt terrorism overseas is to bring terrorists to justice
for their crimes. The National Strategy for Combating Terrorism has an
objective to destroy
Terrorist Organizations terrorists and their organizations, in part, by
expanding law enforcement
efforts to capture, detain, and prosecute known and suspected terrorists.
In addition, the National Strategy for Homeland Security has an objective
to intensify international law enforcement cooperation.
Such law enforcement efforts are led by the Department of Justice and
attempt to disrupt and destroy terrorist organizations overseas. The
Department of Justice, working with the Department of State, will expand,
where appropriate, its law enforcement presence abroad to further
counterterrorism interdiction, investigation, and prosecution. The
Department of State coordinates U. S. efforts to improve international
counterterrorism cooperation, including the diplomatic aspects of law
enforcement. United States law enforcement efforts overseas involve
investigating terrorism- related crimes and the apprehension and
prosecution of terrorists. The Department of Justice, through the FBI,
leads U. S. investigations of terrorist incidents overseas. Such
investigations, although conducted by FBI, are done under the authority of
the ambassador at the relevant U. S. embassy. Depending upon the nature of
the terrorist incident, other federal agencies, such as the State
Department and its embassies, also may participate in or support terrorism
investigations. The Department of Justice, in conjunction with the State
Department, leads the federal government*s efforts to apprehend terrorists
overseas for prosecution. Suspected terrorists who are apprehended
overseas are
brought back to the United States for prosecution through extraditions and
renditions. Foreign governments, through both bilateral and multilateral
devices, provide key assistance with investigations, arrests, and
prosecutions of terrorists. The Department of Justice coordinates its
efforts to combat terrorism overseas through various mechanisms, including
its legal attaches located in U. S. missions overseas, Joint Terrorism
Task Forces, and Anti- Terrorism Task Forces. Efforts to identify,
disrupt, and freeze terrorist assets are a related law enforcement
activity and are covered in more detail in the next section.
Investigations of Terrorist As a principal investigative agency of the
federal government for terrorism
Incidents Overseas Are Led matters, the FBI is responsible for detecting
and investigating acts of
by the FBI terrorism committed against U. S. citizens and property
overseas.
According to the FBI, extraterritorial jurisdiction is the principle that
allows the bureau to expand its investigative authority outside U. S.
borders and deploy FBI personnel to work in conjunction with host
government law enforcement agencies to make arrests and prosecutions. The
FBI undertakes these investigations under the authority of the ambassador
at
the relevant U. S. embassy abroad. According to the FBI, its role in
investigating terrorist crimes overseas was expanded through a series of
congressional acts in the mid- 1980s. For example, the FBI cited the
Comprehensive Crime Control Act of 1984 5 and the Omnibus Diplomatic
Security and Antiterrorist Act of 1986, 6 which expanded the federal
jurisdiction of the United States to terrorist crimes, including hostage
taking, homicide, conspiracy to commit homicide, or physical violence
committed against U. S. national or interest anywhere in the world. The
FBI also noted that the Antiterrorism and Effective Death Penalty Act of
1996 7 granted authority to designate foreign terrorist organizations,
prohibits the providing of material support or resources to a foreign
terrorist organization, and makes it a federal crime to participate in
certain international terrorism activities. These changes were the result
of concerns that terrorists who committed the attacks against U. S.
nationals
5 P. L. 98- 473, Oct. 12, 1984. 6 P. L. 99- 399, Aug. 27, 1986. 7 P. L.
104- 132, Apr. 24, 1996, as amended.
overseas would escape justice and flee to countries that oppose the United
States.
Other Federal Law Depending upon the nature of a terrorist incident, other
federal agencies
Enforcement Agencies also may participate in or support terrorism
investigations overseas. For
Support Terrorism example, several agencies in the Department of the
Treasury might support
Investigations the FBI in conducting overseas investigations and in
combating terrorism. Table 7 shows key federal investigative agencies that
have a role in investigating acts of terrorism overseas.
Table 7: Federal Agencies* Roles in Investigating Terrorist- Related
Incidents Overseas Federal agency Agency role
Department of Justice Leads law enforcement and criminal matters related
to terrorism both domestically and overseas. Responsible for
investigating, indicting, and prosecuting terrorists.
Department of Justice, Federal Bureau of Leads efforts to investigate
terrorist crimes domestically and overseas. Responsible Investigation for
the apprehension, extradition, and rendition of foreign terrorists who are
suspected of violating U. S. statutes. Department of Justice, Bureau of
Alcohol,
Investigates terrorist bombings and explosive blasts overseas using its
International Tobacco, Firearms and Explosives (formerly under
Response Team and explosive experts. Special agents with post- blast
expertise, the Department of the Treasury)
forensic chemists, and bomb technicians are used to overcome difficulties
inherent in investigations of large- scale fire or explosives crime
scenes.
Department of State, Bureau of Diplomatic Leads investigations of selected
incidents involving U. S. diplomatic facilities and/ or Security
personnel. Participates in investigations of terrorist incidents against
U. S. diplomatic
personnel and other persons under its protection. Also investigates
passport and visa fraud. Department of the Treasury, Financial Crimes
Supports lead investigative agencies in determining actual or suspected
terrorist Enforcement Network financial transactions and money laundering.
Department of Homeland Security, Bureau of Investigates suspected
terrorists or materials crossing U. S. borders, including illegal Customs
and Border Protection (includes parts of
movement of arms, munitions, and WMD components. Also investigates
violations former U. S. Customs Service under the of economic sanctions,
embargoes, and money laundering related to financing Department of the
Treasury)
designated international terrorist organizations. Department of Homeland
Security, Bureau of
Investigates cases of terrorists crossing U. S. borders. Also, it
investigates cases of Immigration and Customs Enforcement (includes
terrorists using transnational smuggling organizations, using illicit
document parts of former Immigration and Naturalization
vendors, and entering the United States illegally. Has officers stationed
intermittently Service under the Department of Justice) for flexible
periods of time at key choke point airports to disrupt the smuggling and
trafficking of persons, including terrorists, to the United States.
(Continued From Previous Page)
Federal agency Agency role
Department of Homeland Security, United States Investigates terrorists'
threats against officials under its protective mission overseas, Secret
Service (formerly under the Department of
including the President and Vice President. the Treasury)
Department of Defense Investigates acts of terrorism committed against DOD
personnel or facilities overseas. Source: Departments of Defense, Justice,
State, and the Treasury.
Note: GAO analysis of agency documents.
United States Works With In conducting terrorist investigations, the
United States works with other
Other Countries in countries to gather or share evidence. Much information
and evidence are
Conducting Investigations exchanged informally through law enforcement
channels. When a formal request for assistance is necessary, and where
there is no bilateral treaty, executive agreement, or applicable
multilateral convention with another
country, the United States often must rely upon letters rogatory to obtain
international assistance. A letter rogatory is a request from a judicial
official in one country to a judicial official in another country seeking
assistance. Letters rogatory usually include background on the nature and
targets of the criminal investigation, relevant facts about the case or
investigation, the type of assistance needed, statutes alleged to have
been
violated, and a promise of reciprocity. Department of Justice officials
said that they prefer to use the more modern, more reliable, and more
expeditious Mutual Legal Assistance Treaty process than the more
cumbersome letters rogatory process. Mutual Legal Assistance Treaties
strengthen law enforcement by permitting direct communication between
appropriate executive branch law enforcement officials in the United
States and foreign countries rather than relying upon
the letters rogatory process with its judge- to- judge communications
transmitted through the diplomatic channel. Mutual Legal Assistance
Treaties provide for the exchange of valuable evidence, often in a form
that is admissible at trial. They enable the Justice Department to obtain
foreign
financial records, obtain statements or testimony of foreign witnesses,
conduct search and seizure of foreign evidence, and in some cases, freeze
and recover the forfeiture of proceeds of U. S. crimes committed abroad.
The Department of State, in conjunction with the Department of Justice, is
responsible for negotiating the treaties. Once a Mutual Legal Assistance
Treaty is in force, the Department of Justice is responsible for making
specific requests to other countries for assistance under the treaty. As
of January 2003, the United States had bilateral Mutual Legal Assistance
Treaties covering 47 foreign jurisdictions. In addition, many modern
multilateral law enforcement conventions, including those dealing with
terrorism and terrorist financing, contain broad mutual legal assistance
articles.
Return of Overseas The Department of Justice, in coordination with the
Department of State,
Terrorists via Extraditions is responsible for obtaining the arrest and
return of accused persons who
and Renditions commit acts of terrorism against U. S. persons and property
overseas. The
United States sometimes uses extradition treaties to obtain custody of
accused terrorists. Extradition treaties provide for the request by one
party to the treaty to the other party for the arrest and surrender of a
person accused or convicted of a crime in the country making the request.
The Department of Justice is currently working with the Department of
State to renegotiate a number of extradition treaties to further broaden
their coverage of terrorist- related crimes. Modern extradition treaties
contain a *dual criminality* clause, which makes any offense considered a
crime in both countries extraditable under the treaty. Thus, such modern
treaties provide for growth and development in the criminal law, so that
when countries criminalize new activity (including terrorist activity),
those new crimes will be extraditable without the need to renegotiate the
existing treaty. Often, before an alleged terrorist can be formally
extradited to the United States, a number of factors must exist.
Specifically:
An extradition treaty must usually be in force between the United States
and the country in which the fugitive terrorist is located.
The extradition treaty must cover the crime or crimes for which the
terrorist is wanted in the United States (either because it is an offense
*listed* in the treaty, or because it meets the *dual criminality*
requirement set out in the treaty; i. e., it is considered a crime in both
countries).
All requirements of the applicable extradition treaty must have been met
(for example, the quantum of evidence required by the treaty has been
provided in the formal extradition documents).
The fugitive terrorist is otherwise extraditable (e. g., a national of a
third country).
Once the extradition proceedings in the foreign country are complete and
the fugitive terrorist is ready for surrender, the Justice Department
sends escort agents, usually from the United States Marshals Service, to
collect
and return the fugitive to the United States. As shown below in table 8,
the U. S. government has obtained the extradition of six terrorists
operating overseas since 1987, one of the most recent being an accused
terrorist who was extradited from Germany in December 1998 for his role in
the August 1998 U. S. Embassy bombings in East Africa. As of January 2002,
the United States had extradition treaties in force with more than 100
foreign jurisdictions.
The United States also can obtain custody of an individual without the
formalities of an extradition treaty by agreeing to have the host nation
render the individual to the United States for trial or deport the
individual out of the country. The United States used renditions in 11
cases since 1987 to obtain custody of suspected terrorists operating
overseas. As shown in table 8, the most recent reported rendition used by
the United States to
apprehend a suspected terrorist was in September 2001 when a terrorist
suspect was taken into custody from an undisclosed country for
perpetrating the hijacking of Pan American flight 73 in Karachi, Pakistan.
That individual will stand trial in the United States for the terrorist
attack in which 22 persons, including two U. S. citizens, were killed and
at least 100 persons were injured. Table 8 shows reported extraditions and
renditions of terrorist suspects to the United States over the last 15
years, as reported by the State Department and the FBI.
Table 8: Reported Extraditions and Renditions of Terrorists to the United
States, 1987- 2001 Extradition or Month and year Name and crime( s)
rendition Country
September 1987 Viken Tcharkhutian Extradition Greece (May 1982 bombing of
an Air Canada aircraft) September 1987 Fawaz Younis
Rendition Cyprus (June 1985 hijacking of a Royal Jordanian Airlines
aircraft)
January 1991 Khalid al Jawary Extradition Italy (March 1973 bombing of
three vehicles in New York City) March 1993 Mahmoud Abu Halima
Extradition Egypt (February 1993 bombing of the World Trade Center in New
York City)
July 1993 Mohammed Ali Rezaq Rendition Nigeria (November 1985 hijacking of
Egyptair flight 648)
(Continued From Previous Page)
Extradition or Month and year Name and crime( s) rendition Country
February 1995 Ramzi Ahmed Yousef Extradition Pakistan (January 1995 Far
East bomb U. S. airlines plot; February 1993 bombing of the World Trade
Center in New York City)
April 1995 Abdul Hakim Murad Rendition Philippines (January 1995 Far East
U. S. airlines bomb plot) August 1995 Eyad Mahmoud Ismail Najim
Extradition Jordan (February 1993 bombing of the World Trade Center in New
York City)
December 1995 Wali Khan Amin Shah Rendition Country not disclosed (January
1995 Far East U. S. airlines bomb plot) September 1996 Tsutomu Shirosaki
Rendition Country not disclosed (May 1986 attack on the U. S. Embassy in
Jakarta, Indonesia)
June 1997 Mir Aimal Kansi Rendition Country not disclosed (January 1993
shooting at CIA headquarters in Langley, Virginia)
June 1998 Mohammed Rashid Rendition Country not disclosed (August 1982
bombing of a Pan American aircraft) August 1998 Mohamed Rashed Daoud al-
Owhali Rendition Kenya
(August 1998 bombing of the U. S. Embassy in Nairobi, Kenya)
August 1998 Mohamed Sedeek Odeh Rendition Kenya (August 1998 bombing of
the U. S. Embassy in Nairobi, Kenya)
December 1998 Mamdouh Mahmud Salim Extradition Germany (August 1998
bombing of the U. S. Embassy in Nairobi, Kenya)
October 1999 Khalfan Khamis Mohamed Rendition South Africa (August 1998
bombing of the U. S. Embassy in Dar es- Salaam, Tanzania)
September 2001 Zayd Hassan Abd al- Latif Masud al- Safarini Rendition
Country not disclosed (1986 hijacking of Pan American flight 73 in
Karachi, Pakistan) Source: Patterns of Global Terrorism 2001, Department
of State, May 2002 and Terrorism in the United States, 1999, the FBI,
1999. There may be additional renditions since September 11, 2001, that
have not been reported because they are classified.
INTERPOL is a multilateral organization that, among other things,
facilitates the arrest of terrorist suspects to bring them to the United
States (or elsewhere) for trial. INTERPOL was established to promote
international police cooperation to help officers from different police
forces, countries, languages, and cultures work with each other to solve
crimes. Although INTERPOL has a world headquarters in Lyon, France, every
member country has its own INTERPOL office called a National
Central Bureau. This bureau is the single point- of- contact for foreign
governments requiring assistance with overseas investigations. Each member
country employs its own officers to operate on its own territory in
accordance with its own national laws. INTERPOL provides criminal
intelligence with its member countries and plays a number of roles in
information exchange, such as encouraging member countries to use shared
automated systems and issuing international wanted notices for fugitives.
When the whereabouts of a suspected terrorist is unknown or the United
States seeks an immediate arrest of a terrorist suspect, the Department of
Justice can request their arrest through a *Red Notice.* These notices are
issued through INTERPOL with the intent to follow up
with an extradition. While law enforcement authorities in some countries
are authorized to make an immediate arrest of a suspected terrorist based
on a Red Notice, other countries require an official provisional arrest or
formal extradition request.
Rewards for Justice The State Department*s Rewards for Justice Program
provides a tool to law
Program Leads to Arrests enforcement for arresting and prosecuting
terrorist suspects. The program was established under the 1984 Act to
Combat International Terrorism 8 and
and Prosecutions is administered by the Department of State*s Bureau of
Diplomatic Security.
The program generally offers rewards up to $5 million for information that
leads to the arrest or conviction in any country of any individual for
conspiring, aiding, abetting, or committing an act of international
terrorism against U. S. persons or property or the prevention,
frustration, or favorable resolution of such an act. The USA PATRIOT Act
of 2001 authorizes the Secretary of State to offer or pay rewards of
greater than $5 million if the Secretary determines that a greater amount
is necessary to combat terrorism or to defend the United States against
terrorist acts. The Secretary authorized a reward of up to $25 million for
information leading to the capture of Osama bin Laden and other key al
Qaeda leaders.
Information provided through the Rewards for Justice Program has been used
to apprehend and arrest suspected terrorists. In the past 7 years, the
United States has paid over $9.5 million to 23 individuals who provided
credible information leading to the arrest of international terrorists.
The program played a significant role in the arrest of a suspected
terrorist in February 1995 for the bombing of the World Trade Center in
1993. In
8 P. L. 98- 533, Oct. 19, 1984.
addition, the program provided key information about a planned terrorist
attack against airline ticket counters. As a result, the United States and
the host nation prevented the terrorist act from being carried out.
Department of Justice Suspected terrorists apprehended and arrested
overseas for crimes Prosecutes Suspected
committed against U. S. citizens or interests are prosecuted in the United
Terrorists
States by the Department of Justice. The U. S. Attorney for the District
of Columbia, together with the Department of Justice*s Counterterrorism
Section, ordinarily prosecute the offense. In some cases, the prosecutions
are led by other U. S. Attorneys. For example, on October 18, 2001, the
Department of Justice successfully prosecuted four al Qaeda members in the
Southern District of New York for their roles in the bombings of two U. S.
Embassies in Kenya and Tanzania, which killed 224 persons, including
12 U. S. citizens. The court sentenced the four suspects to life in
prison. Coordination Mechanisms
Investigations of terrorist incidents, including those related to
international for Law Enforcement terrorism, are coordinated through the
National Joint Terrorism Task Force. This task force serves as a
coordinating mechanism for sharing information on suspected terrorists,
including those of foreign origin. It
operates out of the FBI*s Strategic Information Operations Center in
Washington, D. C. In addition, such investigations also are coordinated
through the FBI*s 66 local Joint Terrorism Task Forces. The FBI
established
these task forces to coordinate law enforcement efforts among federal,
state, and local law enforcement agencies. Depending on the nature of
terrorist activities in each location, the task forces may include
representatives from other federal agencies such as the ATF, CIA, the
Department of Homeland Security (to include the U. S. Secret Service, U.
S. Coast Guard, the Bureau of Immigration and Customs Enforcement, and the
Bureau of Customs and Border Protection) and the State
Department*s Bureau of Diplomatic Security. One of the most robust Joint
Terrorism Task Forces is in Washington, D. C., which has representatives
from 15 federal agencies. These task forces serve as the coordinating
mechanisms that combine the international and national investigative
resources of the federal government with the street- level expertise of
local
law enforcement agencies. This *cop- to- cop* relationship enables law
enforcement agencies to share information on suspected terrorists,
including those of foreign origin.
To coordinate strategic long- term planning and policy in areas related to
national security efforts to combat terrorism, the Department of Justice
established the National Security Coordination Council. 9 In areas related
to prosecutions, the Department of Justice also established Anti-
Terrorism Task Forces to integrate and coordinate the anti- terrorism
activities in each of the judicial districts within the United States. The
task forces are comprised of federal prosecutors from the U. S. Attorney*s
Office, members
of the federal law enforcement agencies, as well as the primary state and
local enforcement officials in each district. They are intended to serve
as a national network that coordinates closely with the Joint Terrorism
Task Forces in the collection, analysis, and dissemination of information.
The Anti- Terrorism Task Forces also are intended to develop the U. S.
investigative and prosecution strategy in terrorism cases. Overseas,
coordination within the federal government and with foreign governments is
led by the Department of Justice, in coordination with Justice officials
stationed at U. S. embassies. The FBI has legal attaches at overseas posts
that work closely with law enforcement agencies of the
host country on common crime problems. They also play a large role in
facilitating the international battle against terrorism by enlisting the
cooperation of foreign law enforcement, enabling the arrest of U. S.
terrorist suspects, and solving crimes against U. S. citizens. For
example, in the aftermath of the August 1998 bombings of two U. S.
embassies in
East Africa, the FBI was able to take immediate steps to initiate a joint
investigation with local law enforcement authorities and to preserve the
crime scene and critical evidence. The legal attaches also played a key
role in the investigation, in that they were the first FBI agents to
arrive in Nairobi, Kenya, and Dar es- Salaam, Tanzania, in the immediate
aftermath of the terrorist bombings. The legal attaches also assist in
coordinating investigations with federal law enforcement overseas by
disseminating information to key U. S. federal agencies stationed abroad.
They routinely share information on investigations with liaisons serving
with DOD components overseas. Currently, there are FBI legal attaches
stationed at 45 overseas posts, and additional positions have been
approved. They sometimes serve multiple countries in a region. For
example, the legal attache at the U. S. Embassy in Athens not only covers
Greece but also Turkey, Cyprus, Lebanon, Syria, and Jordan.
9 This is separate from the NSC, which is part of the Executive Office of
the President and was discussed in more detail in chapter 2.
The State Department*s regional security officers at U. S. embassies also
play a key role overseas in coordinating with federal law enforcement
agencies and with foreign governments. These officers, part of the
department*s Bureau of Diplomatic Security, are stationed at all U. S.
embassies. The regional security officers work with foreign law
enforcement officials at the national, regional, and local level. They
often serve as liaisons when other federal law enforcement agencies
request assistance with investigations. They play a particularly important
role at U. S. embassies not served by FBI legal attaches. They also work
with
foreign officials to monitor terrorist threats in the host country, and
take preemptive measures as appropriate. For example, if the threat level
increases against U. S. interests in a particular country, the regional
security officer could request that local police forces adopt a higher
threat posture around the U. S. embassy.
Identifying and The National Security Strategy of the United States of
America calls for
Freezing Terrorists* the United States to work with its allies to disrupt
the financing of
terrorism by identifying and blocking the sources of funding for
terrorists Financial Assets
and denying them access to the international financial system. In
addition, Disrupts Terrorist
the National Strategy for Combating Terrorism includes an objective to
Organizations interdict and disrupt material support for terrorists,
including their financial support. Moreover, one of the enduring policy
principles that guides U. S. strategies to combat terrorism overseas is
isolating and applying pressure on states that sponsor terrorism to force
them to change their behavior. The Departments of State, the Treasury,
Homeland Security,
and Justice conduct activities to deny terrorists and their sponsors
access to financial assets. In some cases, the federal government
designates terrorists and terrorist organization before the Departments of
the Treasury, Justice, and State attempt to deny them financing and
financial services. The United States also works with several
international organizations to disrupt terrorist financing. Coordination
occurs through interagency working groups or operations sponsored by the
NSC and various departments. As of November 2002, the government reported
that
over $113 million in terrorist related assets had been frozen, including
$35 million in the United States and $78 million in other countries.
Designation of Terrorist As a prelude to freezing terrorist assets, the U.
S. government can designate Organizations and Their
a terrorist organization as a Foreign Terrorist Organization and the
states, Sponsors and Supporters
organizations, and individuals that sponsor or support them as
Statesponsors Permits Action to Block
of terrorism, or organizations or individuals that support terrorism,
respectively. Different processes exist for designating such Assets
organizations and states and those who support them. Those processes and
related sanctions are described below.
Foreign Terrorist Organizations Under the authority provided by the
Antiterrorism and Effective Death Penalty Act of 1996, as amended by the
USA PATRIOT Act of 2001, the Secretary of State, in consultation with the
Attorney General and the Secretary of the Treasury, designates foreign
terrorist organizations. 10 The Secretary is authorized to designate an
organization as a foreign terrorist organization if it is (1) a foreign
organization, (2) the organization engages in terrorist activity or
retains the capability and intent to engage in terrorist activity or
terrorism, 11 and (3) the terrorist activity or terrorism of the
organization threatens the security of U. S. nationals or the national
security of the United States. Designating these organizations allows the
Treasury to block the assets of these organizations in U. S. financial
institutions. It also makes it a crime to knowingly provide funds and
other forms of material support to the designated groups and allows the
blocking of visas for their
members without having to show that the individual was involved in
specific terrorist activities. As of April 2003, 36 groups had been
designated as foreign terrorist organizations.
State Sponsors of Terrorism The Secretary of State designates a government
as a State Sponsor of Terrorism if that government has repeatedly provided
support for acts of international terrorism. The United States imposes
various sanctions on designated state sponsors of terrorism, such as (1) a
ban on defense- related exports and sales, (2) certain controls over
exports of dual use items, (3) restrictions on foreign assistance, and (4)
imposition of financial and
other restrictions, including U. S. opposition to loans by or other use of
funds by the World Bank and other international financial institutions and
amendments to the Foreign Sovereign Immunities Act to lift sovereign
immunity in civil litigation in U. S. courts. The Secretary of State has
10 P. L. 104- 132, Apr. 24, 1996, as amended. 11 For the purposes of this
designation, *terrorist activity* as defined in 8 U. S. C. 1182( a)( 3)(
B) (the Immigration and Nationality Act) or *terrorism* as defined in 22
U. S. C. 2656f( d)( 2).
designated seven countries as State Sponsors of Terrorism: Cuba, Iran,
Iraq, Libya, North Korea, Sudan, and Syria. All of these countries have
held such a designation for several years.
Organizations and Individuals Executive Order 13224 establishes policies
and procedures for designating
That Support Terrorism terrorists, their organizations, and others who
provide financial support or
other services to them. 12 The executive order authorizes the Department
of the Treasury, in consultation with the Department of State and the
Attorney General, to block assets of individuals and organizations
supporting terrorists in any financial institution in the United Sates or
assets held by any U. S. person. As of September 2002, provisions under
Executive Order 13224 had identified 236 organizations and individuals
that support terrorism.
Department of the Treasury Since PDD 39 in June 1995, the Secretary of the
Treasury has been Efforts to Identify, Track,
responsible for identifying and blocking terrorist financing. These
efforts and Block Terrorist
were stepped up after the terrorist attacks of September 11, 2001, when
the Financial Assets
President signed Executive Order 13224. This order directed the Secretary
of the Treasury, in consultation with the Secretary of State and the
Attorney General, to deny financing and financial services to terrorists
and terrorist organizations. The executive order authorizes the blocking
of assets of
those designated individuals and organizations linked to global terrorism.
It also prohibits transactions with designated terrorist groups, leaders,
and corporate and charitable fronts. The Department of the Treasury also
is
working with key federal agencies in implementing key statutory provisions
of the USA PATRIOT Act to permit more information sharing among law
enforcement entities and financial institutions. A number of organizations
within the Department of the Treasury are involved in these efforts.
12 Executive Order 13224 *Blocking Property and Prohibiting Transactions
with Persons Who Commit, Threaten to Commit, or Support Terrorism,* Sept.
23, 2001.
Executive Office for Terrorist The Executive Office for Terrorist
Financing and Financial Crimes was
Financing and Financial Crimes created in March 2003 and assumed selected
functions of the former Office
of Enforcement. 13 The office is charged with coordinating Treasury
Department*s efforts to combat terrorist financing both in the United
States and abroad. The new office is responsible for the following
specific duties: (1) developing and implementing U. S. government
strategies to combat terrorist financing domestically and internationally,
(2) developing and
implementing the National Money Laundering Strategy, (3) participating in
the department*s development and implementation of U. S. government
policies and regulations in support of the USA PATRIOT Act, (4) joining in
representation of the United States in international bodies dedicated to
fighting terrorist financing, and (5) developing U. S. government policies
related to financial crimes. The office will work with other Treasury
elements to include the International Affairs Task Force on Terrorism, the
Office of Foreign Assets Control, and the Financial Crimes Enforcement
Network (all described below).
International Affairs Terrorist The International Affairs Terrorist
Financing Task Force works with other
Financing Task Force countries in an effort to implement and improve
mechanisms for blocking
terrorist assets globally and thereby deny terrorists access to formal and
informal financial systems. The task force tracks global progress in
blocking terrorist assets and attempts to coordinate these efforts with
various international organizations. Office of Foreign Assets Control The
Office of Foreign Assets Control administers economic sanctions and
embargo programs against specific foreign countries or groups (including
designated terrorists, terrorist organizations, state sponsors, and
individuals supporting those organizations) to further U. S. foreign
policy and national security objectives. The office imposes control on
financial transactions and freezes foreign assets, denying the targeted
country, individual, or organization.
Financial Crimes Enforcement The Financial Crimes Enforcement Network
(FinCEN) has a mission is to
Network (1) support law enforcement investigative efforts and foster
interagency
and global cooperation against domestic and international financial crimes
13 The Department of the Treasury*s Office of Enforcement had been
responsible for the policy, development, guidance, and coordination of
Treasury*s law enforcement entities to combat money laundering, including
terrorists financing. The office had also been involved in negotiating
international agreements to engage in joint law enforcement operations and
exchange financial information and records.
and (2) provide U. S. policymakers with strategic analyses of domestic and
worldwide money- laundering developments, trends, and patterns. The
network supports law enforcement investigations to prevent and detect
terrorist financing, money laundering and other financial crimes.
Department of Homeland The new Department of Homeland Security also has a
role in tracking
Security Has Role Related to terrorist financing and conducting related
investigations. The department*s Terrorist Financing
Bureau of Immigration and Customs Enforcement and the U. S. Secret Service
are involved in these activities. Bureau of Immigration and
The Bureau of Immigration and Customs Enforcement, consisting in part of
Customs Enforcement
the former U. S. Customs Service, has a mission to target current
terrorist funding sources and identify possible future sources. The bureau
has a multi- agency entity called Operation Green Quest to bring together
federal agency expertise across departments and bureaus to identify
systems, individuals, and organizations that serve as sources of terrorist
funding. According to Operation Green Quest officials, their
investigations have resulted in a number of arrests, indictments,
convictions, and seizures. Operation Green Quest is working in tandem with
other federal law
enforcement agencies in pursuing several specific cases related to
terrorist financing. U. S. Secret Service The U. S. Secret Service is
responsible for enforcement of laws relating to
securities of the United States and financial crimes. Its efforts to
combat international terrorism rest primarily on the investigation of
counterfeiting of currency and securities.
Department of Justice and The Department of Justice and the FBI also have
efforts under way to
the FBI also Track and disrupt terrorist financing. According to the
department, the FBI has the
Investigate Terrorist Assets lead in law enforcement and criminal matters
related to terrorism, and
terrorist financing is one element of overall terrorist investigations and
prevention efforts. There are two major organizations within the
department that are involved in these efforts.
Terrorist Financing Task Force The Department of Justice established a
Terrorist Financing Task Force to coordinate the terrorist financing
enforcement efforts. Within Justice*s Criminal Division, the task force
works with prosecutors around the country as well as with the FBI*s
Foreign Terrorist Tracking Task Force and
Terrorist Financing Operation Section to disrupt groups and individuals
representing terrorist threats.
Terrorist Financing Operations In response to the events of September 11,
2001, the FBI established the
Section interagency Terrorist Financing Operations Section within its
Counterterrorism Division to work jointly with the law enforcement and
intelligence communities to identify, investigate, disrupt, dismantle, and
prosecute, as appropriate, terrorist- related financial and fund- raising
activities. With access to FBI and CIA intelligence and criminal databases
and connectivity to terrorism investigations, the section is a focal point
for efforts to identify and target terrorist financing. According to the
FBI, the Terrorist Financing Operations Section brings the bureau*s
financial expertise to bear in identifying terrorist financing methods and
movement of money into and out of the United States in support of
terrorist activity. The section works with other agencies and partners in
the law
enforcement, intelligence, financial, and international sectors. To help
prevent terrorist attacks, the section developed a centralized terrorist
financial database to identify potential terrorist- related activity in
the United States and abroad. This database is utilized in conjunction
with a number of initiatives, which include working with the financial
sector in developing predictive models and conducting data mining analysis
to
facilitate a proactive approach in identifying previously unknown
*sleeper* terrorist suspects. According to the FBI, information developed
by the section is shared within the law enforcement and intelligence
community.
International Cooperation The Departments of State, the Treasury, and
Justice work with other
to Identify and Freeze countries on a bilateral and multilateral basis to
identify and freeze
Terrorist Assets terrorist assets. At the State Department, the Office of
the Coordinator for
Counterterrorism and the Office of International Narcotics and Law
Enforcement have the lead in coordinating capacity building to combat
terrorist financing in other countries. Offices from other agencies lend
their expertise on a bilateral and multilateral basis to provide technical
assistance and training to countries to assist these countries in meeting
international standards to combat terrorist financing. For example, the
Treasury*s Office of International Affairs takes the lead in working with
other countries. Treasury*s Office of Technical Assistance is working with
a number of countries to assess their capabilities and provide technical
support to disrupt terrorist financing. In another example, the Department
of Justice*s Asset Forfeiture and Money Laundering Section provides
assistance to other countries in drafting money- laundering legislation.
Types of U. S. government technical assistance and training cover both the
legal aspects (from drafting laws and implementing regulations to training
prosecutors and judges) and financial aspects (from developing financial
intelligence units to conducting financial investigations). Additional
information on training and assistance was provided in chapter 3.
As of November 2002, 208 countries and jurisdictions have pledged their
support for the financial war on terrorism and 165 countries and
jurisdictions have issued orders in force to freeze terrorist assets.
Since
September 11, 2001, the international community has frozen millions of
dollars in terrorist- related assets under UN Security Council Resolutions
1267, 1390, 1373, and 1455. Other countries improved their legal and
regulatory systems to help block terrorist funds.
On a bilateral basis, U. S. embassy officials representing the Departments
of State, the Treasury, and Justice work with individual host countries on
matters of terrorist financing. State economic officers, Treasury
financial attaches, and FBI legal attaches all play roles in this type of
bilateral
cooperation. In 2002, the State Department required that each U. S.
embassy establish a Terrorist Financing Task Forces, an initiative to
further coordinate the activities of these agencies. The Department of
Homeland Security*s Bureau of Immigration and Customs Enforcement
(formerly
U. S. Customs Service) provides expertise on import/ export issues. The
Embassy*s Deputy Chief of Mission generally leads these task forces.
On a multilateral basis, the U. S. government works with several
international organizations, to increase international cooperation to
combat terrorist financing. Examples of these include:
United Nations Several UN Security Council Resolutions call on UN member
states to take actions against terrorist financing. Resolution 1373 is the
broadest of these and it, among other things, obligates member states to
prevent and suppress the financing of terrorist acts, freeze funds and
other financial assets or economic resources of persons who commit or
attempt to commit terrorist acts, and criminalize the collection or
provision of funds intended for use in carrying out terrorist acts. In
addition, UN Security Council Resolution 1455 requires member states to
continue sanctions against the Taliban, Osama bin Laden, and al Qaeda. It
requires states to implement sanctions to include freezing economic
resources, preventing the supply or sale of weapons, and preventing
members of al Qaeda or the Taliban from entering or traveling through
their territories.
Financial Action Task Force The Financial Action Task Force is another
international group that cooperates in efforts against terrorist financing
and support. The task force* consisting of 31 members* has served as the
preeminent multilateral organization to combat money laundering since
1989. The Financial Action Task Force established a Terrorist Financing
Working Group, which is co- chaired by Spain and the United States
(through the Department of the Treasury). The working group is to identify
members that will need assistance to come into compliance with the
recommendations on terrorist financing. The task force issued eight
special recommendations on terrorist financing, requiring all members to
(1) ratify the UN International Convention for the Suppression of the
Financing of Terrorism and implement relevant UN Security Council
Resolutions against terrorist financing; (2) criminalize the financing of
terrorism, terrorist acts, and terrorist organizations; (3) freeze and
confiscate terrorist assets; (4) require financial institutions to report
suspicious transactions linked to terrorism; (5) provide the widest
possible assistance to other countries* law enforcement and regulatory
authorities for terrorist financing investigations; (6) impose anti- money
laundering requirements on alternative remittance systems; (7) require
financial institutions to include accurate and meaningful originator
information in money transfers; and (8) ensure that non- profit
organizations cannot be misused to finance terrorism. The task force also
requires members to provide closer scrutiny of transactions with non-
cooperative countries and prohibits financial transactions with these
members* jurisdictions.
Egmont Group The Egmont Group is an international group that cooperates in
efforts against terrorist financing and support. There are 69 members,
with each member designating one of its agencies as its Financial
Intelligence Unit to act as a central resource for collecting information
and cooperating with the other Egmont members. For the United States, the
Department of the Treasury has designated FinCEN as the Financial
Intelligence Unit. The intelligence units work collectively to (1)
eliminate impediments to information exchange, (2) make terrorist
financing a form of suspicious activity to be reported by all financial
sectors to their respective intelligence unit, and (3) undertake joint
studies of money laundering vulnerabilities, especially those having some
bearing on terrorism. The intelligence units foster interagency global
cooperation in the efforts to combat international financial crimes. This
includes sharing information on training and expertise with foreign law
enforcement officials. FinCEN maintains country specific expertise of
financial crimes, promotes the development of Financial Intelligence Units
in other countries, and facilitates investigative exchanges with them.
International Organization of International cooperation related to money
laundering also occurs through
Supreme Audit Institutions the International Organization of Supreme Audit
Institutions, which
represents 184 UN member nations* top accountability organizations related
to government audit and oversight. The U. S. General Accounting Office and
its counterparts from all parts the world are working cooperatively to
improve their oversight capacity for government departments and regulatory
financial institutions. This work takes the
form of publishing and disseminating standards and guidelines in critical
areas such as auditing, internal control, financial reporting, information
technology, and public debt. In addition, the organization recently
established a task force charged with studying the national audit offices*
role in helping prevent and detect money laundering and sharing
information and experiences with each other. The organization also has
established partnerships with organizations such as the World Bank and the
International Federation of Accountants to strengthen its impact in these
areas.
Coordination Mechanisms At the strategy and policy level, interagency
coordination of U. S. for Efforts to Disrupt
government efforts to deny terrorists financing is intended to occur
Terrorist Financing and
through a NSC- sponsored working group chaired by the Department of the
Support
Treasury. The interagency group helps to coordinate operations to disrupt
terrorist networks by freezing terrorist accounts and seizing assets. The
interagency group also helps to develop strategies and activities to deny
terrorist financing with other countries. The highest- level interagency
planning document is the National Money Laundering Strategy. The
Departments of the Treasury and Justice jointly published this July 2002
strategy. The strategy sets forth an action plan for how law enforcement,
regulatory officials, the private sector, and the international community
could take steps to make it harder for criminals to launder money
generated from their illegal activities. In addition to addressing general
criminal financial activities, the 2002 strategy presents the government*s
plan to attack financing networks of terrorist entities. The strategy
discusses the need to adapt traditional methods of combating money
laundering to unconventional tools used by terrorist organizations to
finance their operations.
At the operations level, interagency coordination occurs through the
Department of Homeland Security*s Operation Green Quest and the FBI*s
Terrorist Financing Operations Section and Joint Terrorism Task Forces.
These organizations, particularly Operation Green Quest and the Terrorist
Financing Operations Section, were established to investigate and pursue
terrorist cells and networks, including the financing of such networks.
They act as both operational units and coordination mechanisms by pooling
information and expertise from participating agencies, such as the
Department of Homeland Security*s Bureau of Immigration and Customs
Enforcement and U. S. Secret Service; the Department of Justice*s FBI and
ATF; the Department of the Treasury*s Internal Revenue Service, FinCEN,
and Office of Foreign Assets Control; and the CIA.
Overseas coordination occurs at U. S. embassies through recently
established Terrorist Financing Task Forces. The U. S. embassy*s deputy
chief of mission leads these task forces with important roles also being
played by Department of State economic officers, Department of the
Treasury financial attaches, FBI legal attaches, and Department of
Homeland Security customs attaches.
Military Operations The National Strategy for Combating Terrorism includes
objectives to Provide Means to
destroy terrorists and their organizations and to deny them sanctuaries
and havens. According to the strategy, the intelligence community, in
Destroy Terrorist
conjunction with the Departments of State and Defense, will conduct an
Organizations
annual review and assessment of international terrorist sanctuaries and
develop plans to address them. Military operations, led by DOD, provide a
means to meet these objectives that complement other means* political,
diplomatic, legal, economic, and financial. Following the coordinated
terrorist attacks against the United States on September 11, 2001, DOD has
deployed forces worldwide in military operations against terrorists and
their supporters. As part of those deployments, DOD led Operation Enduring
Freedom with its coalition partners to disrupt and destroy global
terrorist organizations. U. S. Special Operations Forces worked on the
ground in Afghanistan with the Northern Alliance to help coordinate naval
and air attacks against the Taliban regime and al Qaeda in Afghanistan. U.
S. and coalition maritime interception operations disrupt terrorist
organizations* transport of terrorists and shipping of materiel and
illegal contraband to help support their operations. Members of al Qaeda
and Taliban forces captured during Operation Enduring Freedom have been
designated as combatants without prisoner of war status and are being
detained by the United States and its coalition partners for interrogation
and potential prosecution. A number of military contributions made by the
U. S. coalition partners helped support Operation Enduring Freedom. Some
of these contributions included aircraft to support the air campaign over
Afghanistan, ground troops inside the country, including special
operations
forces, and naval forces dispatched to the North Arabian Gulf and Indian
Ocean.
DOD Deployed Worldwide According to the Chairman of the Joint Chiefs of
Staff, U. S. forces now
in Military Operations are deployed to an unprecedented number of
locations in the wake of
the September 11, 2001, terrorist attacks. 14 One of the most visible
Against Terrorists and Their
deployments relate to operations in and around Afghanistan, discussed
Supporters
in more detail below. In addition, military forces have been deployed on
missions related to terrorism in a number of other countries, including
Colombia, Cuba, Georgia, the Philippines, and Yemen.
DOD Leads Operation Following the attacks on September 11, 2001, the
Secretary of Defense Enduring Freedom and
directed the preparation of *credible military options* to respond to
Topples Taliban Regime international terrorism. The U. S. Central Command*
DOD*s regional military command whose area of responsibility includes
Afghanistan and surrounding geographic areas* devised a plan to destroy
the al Qaeda network inside Afghanistan along with the Taliban regime,
which was harboring and protecting terrorists. On October 7, 2001, 26 days
after the attacks on the World Trade Center in New York City and the
Pentagon, Operation Enduring Freedom was launched on a global scale as a
broad and sustained campaign to disrupt and destroy terrorists and
terrorist organizations. According to the Secretary of Defense, the
objectives of the military operations were as follows:
Make clear to the Taliban leaders and their supporters that harboring
terrorists is unacceptable and carries a price.
Acquire intelligence to facilitate future operations against al Qaeda
and the Taliban regime that harbors the terrorists.
Develop relationships with groups in Afghanistan that oppose the Taliban
regime and the foreign terrorists that they support.
Make it increasingly difficult for the terrorists to use Afghanistan
freely as a base of operations.
14 Posture Statement of General Richard B. Myers, Chairman of the Joint
Chiefs of Staff, before the Committee on Armed Services, House of
Representatives, February 5, 2003.
Alter the military balance over time by denying to the Taliban the
offensive systems that hamper the progress of various opposition forces.
Provide humanitarian relief to Afghans suffering oppressive living
conditions under the Taliban regime.
Military operations were conducted in Afghanistan in conjunction with U.
S. coalition with the goal of removing the Taliban from power and
destroying the al Qaeda network within Afghanistan. U. S. forces and its
coalition partners combined operations with the Northern Alliance fighters
(primarily from the Tajik and Uzbek ethnic groups) and the Southern
Alliance fighters in the defeating the Taliban forces.
A series of bombing sorties were launched against the Taliban*s air
defense, command and control, and mobility capabilities. U. S. Special
Operations Forces on the ground worked with the Northern Alliance fighters
to identify targets for a coordinated air attack. Long- range air strikes
using advanced laser- guided weapons were launched from aircraft carriers
in the Arabian Sea, Indian Ocean, and from regional land bases. U. S.
Navy, Marine, and Air Force pilots delivered in excess of 18,000
munitions, of which more than 10,000 were precision- guided bombs. As
shown in
figure 12, B- 52 long- range bombers launched from Diego Garcia (a British
archipelago in the Indian Ocean) also were used during the air campaign.
Figure 12: Air Force B- 52H Bomber Drops a Load of M117 750 lb. Bombs
U. S. forces conducted surveillance of Afghanistan and the movement of
enemy forces through a combination of intelligence assets. U. S. Special
Operations Forces on the ground provided human intelligence while manned
and unmanned surveillance aircraft patrolled the skies, providing
information on sites, facilities, and troop concentrations. Figure 13
shows U. S. Special Operations Forces adapting to their environment by
riding on horseback to conduct operations in northern Afghanistan.
Figure 13: U. S. Special Forces Troops Riding Horseback in Afghanistan
With Members of the Northern Alliance during Operation Enduring Freedom
These operations have resulted in the destruction of the Taliban regime,
although U. S. forces continue to locate and engage remaining pockets of
terrorists and their supporters to improve security and stability in
Afghanistan. According to U. S. Central Command officials, many al Qaeda
members, including their operational planners, facilitators, and
logisticians, have been captured or killed. In addition, al Qaeda training
facilities in Afghanistan have been destroyed, command and control
capabilities have been disrupted, and the remaining al Qaeda leaders are
on the run.
As of April 2003, according to the U. S. Central Command, the initial
objectives of Operation Enduring Freedom to destroy the base of the al
Qaeda terrorist organization in Afghanistan and replace the Taliban regime
that supported al Qaeda largely have been met. Combined Joint Task Force
180, which took direct control of operations in Afghanistan in June 2002,
continues this mission. It also is conducting operations to ensure that
Afghanistan will not again be a safe haven for terrorists and to
facilitate the reintroduction of Afghanistan into the community of
nations.
The U. S. Central Command*s operations in Afghanistan have been
complemented by cooperative efforts with Pakistan to eliminate the al
Qaeda organization in that country. According to the U. S. Central
Command, these efforts have led to the capture of hundreds of al Qaeda and
Taliban members, including very senior members of the al Qaeda
organization. This cooperation continues to degrade the al Qaeda
organization and is a critical component in the terrorist organization*s
destruction.
DOD and U. S. Coast Guard The National Strategy for Combating Terrorism
includes an objective to
Conduct Maritime interdict and disrupt material support for terrorists. As
part of this
Interception Operations objective, U. S. military forces, in conjunction
with coalition partners,
conduct maritime interception operations to disrupt shipping by terrorist
organizations. According to the Chairman of the Joint Chiefs of Staff, the
President approved expanded maritime interception operations in July 2002,
authorizing commanders to stop, board, and search merchant ships
identified to be transporting terrorists and/ or terrorist- related
material. 15 These operations have been concentrated in the areas of
responsibility of
the U. S. European Command and U. S. Central Command. In support of
Operation Enduring Freedom, U. S. naval forces conducted maritime
interception operations with a number of coalition partners. Operations by
the U. S. European Command include NATO maritime and air forces. These
operations resulted in more than 16, 000 vessels being queried and about
200 vessels being boarded and searched. One operation led to the detention
15 Posture Statement of General Richard B. Myers, Chairman of the Joint
Chiefs of Staff, before the Committee on Armed Services, House of
Representatives, Feb. 5, 2003.
of four suspected al Qaeda members in the Gulf of Oman as navy vessels and
aircraft from Canada, France, Italy, and the Netherlands targeted,
intercepted, and boarded two vessels. The four captured al Qaeda members
were transported to the detainee facility at Bagram Air Base, Afghanistan.
Figure 14 shows coalition forces conducting such operations in the Arabian
Sea.
Figure 14: British Troops Prepare to Board an Oil Tanker as Part of the
Coalition*s Maritime Interception Operations in the Arabian Sea
The U. S. Coast Guard also participates in maritime interception
operations. In its role as a military service, the U. S. Coast Guard
supports regional military commands, which have requested and received U.
S. Coast Guard cutters to conduct such operations. A 1995 Memorandum of
Agreement between the Departments of Defense and Transportation identified
the appropriate roles, missions, and functions of the U. S. Coast Guard to
support the national military and naval strategies of the United States.
The agreement recognized that the U. S. Coast Guard maintains many
proficiencies and platforms directly applicable to maritime interception
operations and that is it appropriate and desirable for the U. S. Coast
Guard
to participate in such operations. To accomplish its missions to combat
terrorism, both domestic and overseas, the U. S. Coast Guard developed a
U. S. Coast Guard Maritime Strategy for Homeland Security. This strategy
puts a premium on identifying and intercepting threats well before they
reach U. S. shores by conducting layered, multi- agency, maritime security
operations that include surveillance and reconnaissance, tracking, and
interception.
Detainees Held by DOD for Throughout the military operations in
Afghanistan, U. S. forces and military
Intelligence Gathering coalition partners captured over 5,000 Taliban and
al Qaeda forces and
confiscated laptop computers and cell phones. DOD holds some al Qaeda
fighters who had information about operational methodology and future
operations in Kandahar and Bagram, Afghanistan. DOD transported other
detainees to detention facilities at Naval Air Station Guantanamo Bay,
Cuba. Over 500 detainees from 44 countries were transported to
Guantanamo Bay. Figure 15 shows part of the newly constructed detention
facility at Naval Air Station Guantanamo Bay, Cuba.
Figure 15: Camp X- Ray Used as a Temporary Holding Facility for Detainees
Held at U. S. Naval Air Station Guantanamo Bay, Cuba
The U. S. Southern Command activated Joint Task Force 160 to staff the
maximum- security installation and provide security and support functions
at Naval Air Station Guantanamo Bay. The detainees, originally housed in
the wire enclosures at Camp X- Ray, are now housed in a more permanent
facility, known as Camp Delta. The U. S. Southern Command also established
Joint Task Force 170 to coordinate U. S. military and government agency
interrogation efforts in support of Operation Enduring Freedom. A Joint
Interagency Interrogation Facility was established to support
interrogations focused on intelligence collection, force protection, and
planned terrorist activities. These efforts also support law enforcement
agencies and military tribunal efforts.
The detainees are not considered to be prisoners of war. The President
determined that the Geneva Convention of 1949 applies to the conflict with
the Taliban in Afghanistan because Afghanistan is a state and signatory of
the Geneva Convention. However, the President determined that the Taliban
detainees do not have prisoner of war status because they fail to meet the
criteria under article 4 of the Geneva Convention. For example,
throughout combat in Afghanistan, the Taliban did not wear distinctive
signs, insignias, symbols, or uniforms, and were not organized into
military units with identifiable chains- of- command. In addition, the
President determined that the Geneva Convention of 1949 does not apply to
al Qaeda detainees because they are considered to be a non- state
terrorist network.
DOD*s Military Order issued on November 13, 2001, permits military
commissions to try non- U. S. citizens accused of terrorism against the
United States and DOD has announced procedural draft guidelines for
those commissions. Non- U. S. citizens selected by the President, to
include al Qaeda and Taliban members, those involved in acts of
international terrorism against the United States, and those members or
actors who knowingly harbor such terrorist may be tried. According to the
order, the
Secretary of Defense will appoint members to each commission, which will
have three to seven members. One commission member the presiding officer
will ensure discipline and the decorum and dignity of the
proceedings. As of March 2003, no trials have been held. Coalition
Partners Support
Following the attacks on September 11, 2001, the Department of State led
U. S. Military Operations efforts to build a coalition to support the
global war on terrorism. About 90 nations made contributions to Operation
Enduring Freedom including intelligence, personnel, equipment, and
military assets. In the U. S. Central
Command*s area of responsibility, coalition partners deployed more than
16,000 troops. In Afghanistan, coalition partners contributed more than
8,000 troops to both Operation Enduring Freedom and to the UN- mandated
International Security Assistance Force in Kabul, which represented over
half of the 15,000 non- Afghan forces in Afghanistan. 16 Some 9 countries
provided ground forces to serve in Afghanistan and 21 countries deployed
forces to support the International Security Assistance Force in
Afghanistan. Other key military contributions included support to aircraft
in the air campaign over Afghanistan, ground troops inside Afghanistan,
including special operations forces, and naval forces dispatched to the
North Arabian Gulf and Indian Ocean for maritime surveillance and
interception operations. Table 9 summarizes the military contributions
made by selected coalition partners to support Operation Enduring Freedom.
These contributions are in addition to the basing and overflight
agreements negotiated by the State Department and discussed under
diplomatic initiatives at the beginning of this chapter.
Tabl e 9: Significant Military Contributions by Selected Coalition
Partners in and around Afghanistan in Support of Operation Enduring
Freedom Type of operations Contributions in support of Operation Enduring
Freedom Ground operations
Special operations forces Australia, Canada, Denmark, Germany, New
Zealand, Norway, and the United Kingdom deployed special operations forces
in Afghanistan and surrounding regions to perform the full spectrum of
missions.
Infantry support Canada, France, Italy, Pakistan, Turkey, and the United
Kingdom deployed infantry and equipment in Afghanistan and surrounding
regions to perform security and combat operations.
Naval operations
Maritime interception Australia, Canada, France, Italy, the Netherlands,
Poland, and the United Kingdom deployed operations ships, aircraft, and
forces in the Arabian Gulf and surrounding areas to support maritime
interception operations. Logistical support Japan, India, and Poland
deployed ships for logistical support, such as refueling and escort
assistance.
Combat operations France, Italy, Turkey, and the United Kingdom deployed
ships to support combat operations in the region. Denmark and the
Netherlands also deployed naval ships to relieve U. S. units in the U. S.
Southern Command.
16 UN Security Council Resolution 1386 (Dec. 20, 2001) authorized the
establishment of the International Security Assistance Force to provide
assistance and maintain security in Kabul, Afghanistan, and its
surrounding areas.
(Continued From Previous Page)
Type of operations Contributions in support of Operation Enduring Freedom
Air operations
Combat air patrol Denmark, France, and Norway deployed fighter aircraft in
Afghanistan and surrounding regions to support combat air patrol missions.
Australia deployed fighter aircraft to perform combat air patrol missions
at Diego Garcia in support of the U. S. Pacific Command. The Czech
Republic and the United Kingdom deployed personnel and aircraft in support
NATO airborne warning and control systems missions.
Strategic airlift Belgium, Canada, Denmark, France, and Norway deployed
aircraft in Afghanistan and surrounding regions to support strategic
airlift operations. Japan also deployed aircraft to support re- supply and
transport requirements within the U. S. Pacific Command*s area of
responsibility.
Logistical support Australia, France, the Netherlands, New Zealand,
Norway, Turkey, and the United Kingdom deployed aircraft to Afghanistan
and surrounding regions to conduct logistical support, including aerial
refueling.
Surveillance and reconnaissance France and United Kingdom deployed
aircraft in Afghanistan and surrounding regions to provide support to
intelligence, surveillance, and reconnaissance missions.
Other support
Mine clearing operations Denmark, Jordan, Norway, Poland, and the United
Kingdom deployed personnel and equipment in Afghanistan to conduct mine
clearing missions.
Civil- military support Belgium, Denmark, Finland, France, Germany,
Greece, Italy, Netherlands, New Zealand, Norway, Portugal, Romania, Spain,
Sweden, Turkey, and the United Kingdom deployed civil military personnel,
aircraft, and equipment to support the UN International Security
Assistance Force in Afghanistan.
Humanitarian support Belgium, the Czech Republic, Denmark, Finland,
France, Germany, Jordan, Kyrgyzstan, the Netherlands, Norway, Portugal,
Russia, South Korea, Spain, Sweden, Turkmenistan, and the United Kingdom
provided humanitarian support to Afghanistan.
Consequence Bulgaria, the Czech Republic, and the United Kingdom provided
consequence management management support teams (nuclear, biological, and
chemical teams) in Afghanistan and surrounding regions. Source: DOD.
Note: GAO analysis of DOD data.
Forces from NATO countries played a key role in the effort to end
Afghanistan*s role as a safe haven for terrorists and terrorist
organizations by providing direct and indirect military support to the
United States. As shown above, NATO members providing support included
Belgium, Bulgaria, Canada, the Czech Republic, Denmark, France, Germany,
Greece, Italy, the Netherlands, Norway, Poland, Portugal, Spain, Turkey,
and the United Kingdom. In addition, forces under direct NATO control were
deployed to support U. S. forces. For example, NATO deployed five airborne
warning and control systems aircraft to the continental United States to
patrol the skies and free up similar U. S. aircraft for missions over
Afghanistan. The alliance also sent its Standing Naval Force to the
Mediterranean Sea to establish a NATO presence in the region. NATO*s
support in the region helped provide enhanced intelligence sharing, access
to ports and airfields, increased security for U. S. bases on allied
territory, and backfill for selected U. S. and allied military assets
withdrawn from NATO*s area of responsibility. Figure 16 shows aerial
reconnaissance support provided by a NATO country.
Figure 16: NATO Member France Provided Six Mirage 2000 Aircraft to Fly
Reconnaissance Missions in Support of Operation Enduring Freedom
Coordination Mechanisms At the headquarters level, military operations are
coordinated at DOD.
for Military Operations Within the Joint Staff*s various directorates for
intelligence, operations,
logistics, and planning, there are sections dedicated to military
operations against terrorism. For example, the Joint Staff*s Directorate
for Planning (J- 5) has a special section for planning the worldwide
campaign against
terrorism. This section developed DOD*s National Military Strategic Plan
for the War on Terrorism. DOD currently coordinates its worldwide,
military operations through various regional and functional commands. The
regional commands* responsible for a specific geographic area of
responsibility* include the U. S. Central Command, the U. S. European
Command, the U. S. Northern Command, the U. S. Pacific Command, and the U.
S. Southern Command. 17 DOD*s functional commands include the U. S. Joint
Forces Command, the U. S. Special Operations Command, U. S. Strategic
Command, U. S. Space Command, and U. S. Transportation Command. The U. S.
Special Operations Command is preparing to take a lead role in the war on
terrorism in future operations and will transition from a *supporting* to
a *supported* command in this role. As discussed previously, the State
Department*s Bureau of Political- Military Affairs and
various regional bureaus are involved in headquarters coordination of
military operations with other countries, particularly when diplomatic
negotiations are required to obtain coalition support. At the field level,
military operations are coordinated by DOD*s regional commands. Depending
on the operation, the regional and functional commands are either
*supported commands* (having the lead for that operation) or *supporting
commands* (providing support to the lead command). For example, for
operations in Afghanistan, the U. S. Central Command was the supported
command, in charge of planning and executing operations. It got help from
supporting commands to include the
U. S. Transportation Command (which supplies airlift), the U. S. Special
Operations Command (which supplies special operations forces), and other
commands. These commands also have subordinate headquarters or forward
operating bases overseas to coordinate military operations in the field.
The regional commands also coordinate their activities through interagency
working groups and various plans. DOD created interagency working groups
following the September 11, 2001, terrorist attacks on the United States
and they include agencies representing diplomacy, intelligence, and law
enforcement. Some of the agencies had long- standing
liaisons at the commands, while other agencies established liaisons for
the first time. An example of a long- standing liaison would be State
Department political advisors with the rank of ambassador, who help the
commands coordinate diplomatic activities with the department in
Washington, D. C., and with U. S. embassies in the command*s area of
responsibility. Regional military commands also have command- specific
17 The U. S. Northern Command became operational in October 2002. Its
focus is on homeland security and, therefore, was not covered in this
report on efforts to combat terrorism overseas.
campaign plans to implement DOD*s National Military Strategic Plan for the
War on Terrorism in their geographic area of responsibility. They also
have Theater Security Cooperation Plans to lay out the command*s
strategies for working with other countries in the region to further U. S.
foreign policy and military goals.
Covert Actions Can Another tool that can be used to disrupt and destroy
terrorist organizations
is covert action by the intelligence community. 18 By executive order and
Be Used to Disrupt
statute, the CIA specifically is authorized to initiate such actions that
are and Destroy Terrorist
individually authorized by the President. 19 Other federal agencies and
Organizations
departments also may be tasked to support covert action, with a separate
presidential authorization. The Intelligence Authorization Act of 1991
allows the President to authorize covert actions if they are necessary to
support the foreign policy objectives of the United States. According to
the
act, any new covert action must be justified according to this standard in
a written finding that the President must submit to the House and Senate
Select Committees on Intelligence, unless the President determines that it
is necessary to limit access to the finding to meet extraordinary
circumstances affecting vital U. S. interests. This finding must specify
the government agencies participating in the action, can never be
retroactive, and may not authorize any action that would violate the U. S.
Constitution or U. S. statute. In extraordinary circumstances, the
President may restrict access to findings to certain congressional
officials, but such reasons for
the restriction must be submitted to the committees. Finally, the
President must notify the committees of any significant change to a
previously approved covert action. The Congress has supported such actions
in the
past, urging the President to *use all necessary means, including covert
action, to disrupt, dismantle and destroy infrastructure used by
international terrorists, including overseas terrorist training facilities
and safe havens.* 20
18 Covert action is an operation designed to influence governments,
events, organizations, or persons in support of foreign policy in a manner
that is not necessarily attributable to the United States. It may include
political, economic, propaganda, or paramilitary activities.
19 Executive Order 12333, Dec. 4, 1981 and P. L. 102- 88, Aug. 14, 1991.
20 P. L. 104- 132 S: 324, Apr. 24, 1996.
The Director of Central Intelligence, in discussing covert actions in an
unclassified forum, provided several examples of CIA efforts to disrupt
terrorist organizations. 21 By 1993, the U. S. intelligence community
already had recognized al Qaeda as a significant threat and began
operations to reduce its capabilities. These efforts included hitting al
Qaeda*s infrastructure, working with foreign security services, disrupting
and
weakening Osama bin Laden*s businesses and finances, and recruiting or
exposing operatives. By 1999, these efforts had coalesced into a concerted
offensive disruption campaign against the al Qaeda network. During the
millennium threat period, CIA and FBI disruption operations identified 36
terrorist agents and successfully targeted 21. A parallel operation in
East Asia led to the arrest or detention of 45 members of Hizballah.
Later, during the Ramadan threat period (winter of 2000), terrorist cells
planning attacks on U. S. and foreign military and civilian targets in the
Persian Gulf were broken up and their equipment seized. This equipment
included hundreds of pounds of explosives as well as anti- aircraft
missiles. The operation also netted proof that some Islamic charitable
organizations had been either hijacked or created to provide support to
terrorists operating in other countries. Finally, in the spring and summer
of 2001, the CIA helped break up a terrorist cell in Jordan, disrupted a
plan to attack U. S. facilities in Yemen in concert with a foreign
partner, and mounted a broad disruption
effort that substantially delayed attacks, including one planned on the U.
S. military in Europe.
Agency Comments and The Departments of Defense, Justice, and State and ATF
provided technical
Our Evaluation comments on the matters covered throughout this chapter.
Based upon
these comments, we made revisions as appropriate. We also made revisions
(primarily to the sections on law enforcement and terrorist financing)
based upon the creation of the Department of Homeland Security and the
transfer of various agencies and functions from the Department of the
Treasury into that department.
21 These unclassified examples are from the Written Statement for the
Record of the Director of Central Intelligence before the Joint Inquiry
Committee, Oct. 17, 2002.
Federal Efforts to Respond to Terrorist
Chapt 5 er Incidents Overseas The National Strategy for Combating
Terrorism includes an objective to ensure a fully integrated incident
management capability. In addition, the
National Strategy for Homeland Security calls for the United States to
improve international cooperation in response to terrorist attacks.
Further, the National Strategy to Combat Weapons of Mass Destruction calls
for
the United States to be prepared to manage the consequences of a WMD
attack, including those that occur overseas. Federal efforts to respond to
terrorist incidents overseas consist of actions taken before, during, and
after a terrorist incident. Advance preparations include contingency plans
and exercises in anticipation of terrorist attacks. Incident response is
managed by the State Department through interagency task forces at
agencies* headquarters, the ambassador at a U. S. embassy, and special
emergency support teams. The FBI leads law enforcement aspects of crisis
management to investigate incidents and obtain evidence for prosecution.
The State Department, in conjunction with USAID and other agencies,
manages the consequences of an attack* including those involving WMD
agents. After a terrorist attack, federal agencies review the incident to
determine whether security procedures were followed, establish
accountability within the government, and provide lessons learned to
prevent or mitigate future attacks. This chapter describes the relevant
federal programs in place and is not an evaluation of their effectiveness.
Advance Preparations In anticipation of terrorist incidents overseas, the
federal government takes
for Terrorist Incidents a number of preparations in advance. The State
Department requires that
overseas posts prepare and exercise emergency contingency plans. In
addition, a number of other agencies participate in exercises* generally
sponsored by DOD* to test their responses to an overseas terrorist
incident.
Contingency Planning at As lead agency for interagency coordination of
international terrorist
Overseas Posts incidents, the Department of State has prepared a variety
of contingency
arrangements and plans in the event of a terrorist attack. State*s
Emergency Planning Handbook serves as a consolidated source of guidance
for overseas posts on how to plan for and deal with emergencies abroad.
The handbook explains post mechanisms for crisis management, identifies
post emergency management responsibilities, discusses emergency and crisis
management mechanisms within State and with other U. S. government
agencies; highlights the kinds of information the post will need to plan
for specific emergencies; and provides
action- oriented checklists that posts may use to ensure rapid, clear, and
complete responses in emergencies.
Every diplomatic post overseas is required to have an operative Emergency
Action Plan designed to provide procedures on how to deal with foreseeable
contingencies specific to the post. The post plan is written by members of
the Emergency Action Committee, which translate guidance issued by State
into a post- specific action plan for managing a crisis event.
The ambassador establishes the Emergency Action Committee and designates
personnel responsible for specific crisis- related functions. Every U. S.
diplomatic post is required to have an Emergency Action Committee.
Exercises Practice Incident PDD 39 requires key federal agencies to
maintain well- exercised
Response capabilities to combat terrorism. Exercises test and validate
policies and
procedures, test the effectiveness of response capabilities, increase the
confidence and skill levels of personnel, and identify strengths and
weaknesses in responses before they arise in actual incidents.
The State Department conducts internal exercises at overseas posts to test
their Emergency Action Committees and Emergency Action Plans, and to
generally prepare them for crisis management. The department conducts
exercises designed to expose posts to issues of decision- making,
contingency planning, implementation of plans and formulation, and
interpretation and coordination of policy. These exercises may cover a
wide range of contingencies related to terrorism, such as hostage
barricades, terrorist threats, and bombings. The State Department has been
running these at post exercises since 1983. In addition to these
departmentled exercises, the post- level Emergency Action Committee is to
prepare, execute, and evaluate post- level crisis exercises. These
exercises are designed to test individuals* understanding of their roles
under all
foreseeable crises. They seek to identify gaps or ambiguities in the plan
or in department guidance.
The Department of State, in conjunction with other federal agencies, also
coordinates an interagency exercise program to combat terrorism overseas.
1 Coordination of the exercises program is done through NSC*s
Counterterrorism Security Group and its Exercise and Readiness Subgroup.
The interagency exercise program is designed to strengthen the U. S.
government*s overall ability to deal with terrorist attacks. On an annual
basis, about four to six full- scale interagency overseas field exercises
are conducted. The exercises involve the actual movement of response teams
in a scenario that simulates a realistic overseas terrorist
incident. In addition, tabletop exercises are held periodically to
practice the coordination and management of a terrorism crisis without the
expense of actually deploying special teams of people. The scenarios and
agencies differ from exercise to exercise to develop and improve U. S.
capabilities to deal with a variety of situations. Some exercises are
conducted in overseas location with host government participation.
DOD sponsors many interagency exercises to prepare for terrorist incidents
overseas. For example, every year DOD sponsors no- notice interagency
field exercises. These exercises require regional commanders to execute
their own response plans and test interagency interoperability. DOD also
sponsors periodic senior- level interagency tabletop exercises. These
exercises emphasized interagency coordination among agency
officials for a crisis incident. DOD*s exercises also have included the
Departments of State, Health and Human Services, and Energy; the FBI; the
Environmental Protection Agency; and USAID.
DOD also has exercises for its forces outside the interagency exercise
program. Some require the regional commander to exercise all levels of
their response capabilities* tabletop sessions with their staff, response
forces, and integration with Special Operations Forces. In addition, DOD
runs exercises related to evacuations of U. S. diplomatic personnel and
1 For a more detailed description and evaluation of these exercises, see
GAO/ NSIAD- 99- 135 and U. S. General Accounting Office, Combating
Terrorism: Analysis of Federal Counterterrorist Exercises, GAO/ NSIAD- 99-
157BR (Washington, D. C.: June 25, 1999). In this report, we reported that
federal agencies had increased the number of counterterrorism exercises,
but only a few included no- notice deployments of personnel and equipment.
More than two- thirds of the exercises had WMD scenarios, while others had
more likely scenarios involving conventional arms and explosives. Also,
very few exercises dealt with the likely situation of both crisis and
consequence management occurring simultaneously. Also, we found that State
Department used DOD- and DOE- led exercises to practice its leadership
role. These exercises were well developed and enhanced the preparedness of
the federal government to respond to terrorist incidents overseas.
other Americans. Some of these may include some participation of other
agencies. For example, since 1991, the State Department has participated
in the U. S. Marine Corps* Special Operations Capable Exercise Program to
help train Marine Expeditionary Units in Noncombatant Evacuation
Operations.
Response to a Terrorist PDD 39 divided incident response into crisis
management and consequence
Incident Overseas management. Crisis management includes efforts to stop a
terrorist
attack, respond to the attack itself, and arrest and prosecute terrorists.
Consequence management includes efforts to provide medical treatment and
emergency services and evacuate people from dangerous areas. When
terrorist attacks occur without threat warning, crisis and consequence
management will be concurrent activities. The presidential decision
directive specified that the Department of State is the lead federal
agency for interagency coordination of international terrorist incidents,
to include both crisis and consequence management. 2 The State Department
is to manage the incident through interagency task forces at headquarters
and through the ambassador at the appropriate U. S. embassy. The
Department of Justice, through the FBI, would lead the law enforcement
aspects of crisis management, potentially deploying its response teams to
investigate incidents and obtain evidence for prosecution purposes. As the
lead agency for a terrorist incident, State also is responsible for
marshaling the federal assets necessary to manage the consequences of an
attack. A number of other federal agencies have response teams that can be
deployed overseas to support the response. State, in conjunction with
other agencies, has capabilities and contingency plans for WMD incidents
the kind of incident most likely to overwhelm host government
capabilities.
Incident Management at In managing a crisis overseas, the Department of
State coordinates
Headquarters operations through its 24- hour global Operations Center at
the department
in conjunction with the NSC. During a crisis, the department*s Operations
Center establishes a 24- hours task force to coordinate the flow of 2 For
international incidents, the distinction between crisis management and
consequence management is less significant than for domestic incidents. In
a domestic incident, the FBI
leads crisis management and FEMA leads consequence management. As a
domestic incident progresses, federal leadership in an incident can
transfer from the FBI to FEMA. In an international incident, the State
Department leads both crisis and consequent
management, thus there is no transfer of command from one agency to
another.
communication and instructions between the department, relevant agencies
involved, overseas posts, and foreign governments. The task force would be
chaired by the Coordinator for Counterterrorism and would
include relevant State bureaus as well as other U. S. government agencies.
The global watch is the initial point of contact for posts experiencing
emergency crises overseas. The 24- hour global watch and crisis management
support staff is maintained within the Operations Center.
Incident Management at In an overseas incident, the ambassador* working
with the Emergency
Overseas Posts Action Committee* would act as the on- scene coordinator
for the U. S. government. Interagency and State Department teams could
provide assistance. For example, the Department of State can deploy an
interagency Foreign Emergency Support Team (FEST) in coordination
with the NSC to assist the host government and the ambassador at the post.
The FEST primarily is an advisory team and serves as the single point- of-
contact for the ambassador in coordinating all U. S. government
support during a terrorist incident. The FEST will not enter the host
country unless requested by the ambassador, with the host government*s
permission. Depending upon the type of incident overseas and the host
governments* capabilities, the FEST can be tailored with expertise to
manage the crisis. The FEST can tailor its team to include experts on
managing specific types of WMD incidents, such as nuclear, biological, and
chemical threats. For example, the FEST can provide (1) guidance on
terrorist policy and incident management, (2) dedicated secure
communications to support the U. S. embassy throughout the incident, and
(3) special expertise and equipment not otherwise available, including a
professional hostage negotiations adviser. According to the National
Strategy for Combating Terrorism, the Departments of State and Defense
(and other relevant agencies) will ensure adequate staffing for the FEST.
Procedures for deploying the FEST are outlined in the interagency
International Guidelines, which were issued in January 2001.
State also maintains its own security response teams that can deploy in
anticipation of a terrorist crisis. The Bureau of Diplomatic Security has
Mobile Training Teams and Security Support Teams to respond to increased
threats or critical security needs at posts. These teams can provide
special training or assistance to plan or implement a draw down or
evacuate post personnel. These teams are to provide supplemental support
to regional security officers and stand ready for immediate deployments to
any post worldwide.
Law Enforcement Crisis management has an important law enforcement
function, including
Investigations for Overseas efforts to gather evidence, and arrest and
prosecute terrorists. PDD 39 and
Incidents PDD 62 affirmed the role of the Department of Justice, through
the FBI, to
coordinate the efforts of law enforcement agencies in preventing terrorist
attacks and investigating those attacks when they occur in international
waters or against U. S. persons and interests overseas.
According to the FBI, the bureau has a number of capabilities it can
deploy overseas to coordinate large scale investigations. In cases when an
incident occurs overseas, the FBI initially deploys its legal attaches to
respond to the crime scene to communicate initial reports to the FBI*s
main deployment team. In the interim, an advance team will depart from
Washington, D. C., and will include (1) a command element, (2) an
investigative component, (3) logistics personnel, (3) Critical Incident
Response Group, (4) physical security specialists to report on the
continuing threat to responding FBI personnel, and (5) communicators. And,
if needed and allowed by the host nation, the FBI will deploy a Rapid
Deployment Team overseas to provide additional investigative support,
including language specialists and expert forensics personnel from an FBI
laboratory. The Rapid Deployment Teams were established following the 1998
bombings of the two U. S. embassies in Kenya and Tanzania so that more
capabilities and additional personnel could be deployed to crime scenes in
nations that are receptive to joint investigations. Based on the needs at
the incident site and with the concurrence of the host nation, the FBI
will deploy additional agents to assist with the investigation. Figure 17
shows the damage inflicted to the USS Cole by a terrorist bomb explosion.
The FBI deployed its response teams to Aden to investigate the bombing.
Figure 17: USS Cole Damaged by a Terrorist Bomb Explosion While Refueling
at the Port of Aden, Yemen
As discussed in chapter 4, other federal agencies may assist the FBI in
its terrorism investigations overseas. For example, the ATF has
significant explosives investigation capability, which can support FBI
investigations of bombings. When needed, the bureau can deploy its
International Response Team to help gather evidence and identify the cause
and origin of an explosion or fire.
Managing the Consequences PDD 39 affirmed State as the lead agency for
consequence management of a Terrorist Incident
overseas, responsible for ensuring that the U. S. government is prepared
to respond to a foreign incident. Consequence management predominantly is
an emergency management function and includes efforts to provide medical
treatment and emergency services, evacuate people from dangerous areas,
and restore services. The responsibility for managing the consequences of
a terrorist incident remains with the host nation, although
the United States may provide assistance under certain circumstances. If
the ambassador determines that the host government is unable to cope with
managing the incident without outside help, the United States can
provide assistance if it is requested and it is in U. S. interests to
provide it. A foreign consequence management event is an incident that
occurs abroad and involves chemical, biological, radiological, or nuclear
contamination. It is not limited to a terrorist incident; it also can be
caused by a war, natural cause, or accident. In other words, a consequence
management event is not defined by how the release of a WMD agent
occurred, only that a release occurred. The terrorist bombings of the USS
Cole and the U. S. embassies in East Africa, for example, were not foreign
consequence management events. In addition, a foreign consequence
management event must threaten to overwhelm existing host- nation response
capabilities and prompt a host- nation request for immediate international
assistance. According to the Department of State, the release of chemical,
biological, radiological, or nuclear contaminants is required by
international
agreements to be reported, regardless of how the agent was released.
Finally, consequence management of an incident is the sole responsibility
of the host nation. The United States may be asked to provide assistance
only.
Depending upon the type of incident overseas, the Department of State may
also deploy a Consequence Management Support Team. The team is tailored to
meet the specific emergency situation or condition in the host country and
may deploy as an integral part of the NSC- directed FEST. The team leader
normally would be from State*s Bureau of Political- Military Affairs and
would be responsible for coordinating consequence management activities
and for keeping the ambassador informed about ongoing relief activities.
The team leader serves as a primary liaison between the ambassador, FEST,
and team*s technical experts. The team
also would coordinate U. S. government consequence management activities
with the authorities of the host country. According to the Department of
State, the Consequence Management Support Team deployed several times,
most recently to the Persian Gulf, but had not yet deployed with the FEST.
Role of USAID PDD 39 designated USAID*s Office of Foreign Disaster
Assistance as the lead agency for coordinating the U. S. government
humanitarian relief and rehabilitation activities overseas for incidents
involving weapons of mass destruction. The office facilitates a
coordinated U. S. government response for an incident through the U. S.
ambassador in support of the affected host
country. The office responds to these incidents at the request of the U.
S. ambassador to the affected country and works through the host nation,
U. S. government, international organizations, other donor governments,
and nongovernmental organizations. In a crisis incident overseas, the
State Coordinator for Counterterrorism may request an
Office of Foreign Disaster Assistance representative to deploy as part of
the FEST and assist in the development of a consequence management
strategy for the humanitarian response. Also, if necessary, the office
will provide guidance and liaison to the Bureau of Political- Military
Affairs- led Consequence Management Support Team and work in conjunction
with the team in the development of a humanitarian strategy.
The Office of Foreign Disaster Assistance can respond to virtually any
type of disaster abroad, including a terrorist incident. USAID is the
focal point for U. S. government disaster relief and humanitarian
assistance overseas.
After a U. S. ambassador*s disaster declaration, the Office of Foreign
Disaster Assistance can respond with humanitarian relief items or by
providing funds to the United Nations, international organizations, or
local and international non- governmental organizations to perform
humanitarian relief activities. The office can also provide damage and
needs assessment specialists and a wide variety of disaster management
consultants, should the post require them. The office has stockpiles of
basic disaster relief items, such as tents, plastic sheeting, and
blankets. These stockpiles are strategically located around the world and
can be used to provide humanitarian assistance in the event of a terrorist
incident, as is the procedure for any other humanitarian disaster that
overwhelms local
capacity. These stockpiles are used frequently, and due to changing stock
levels, the office determines how to best support a specific disaster and
when to release stockpile material. To help manage the humanitarian relief
activities on the ground, the office can deploy its Disaster Assistance
Response Team to carry out sustained response activities in the field and
a Response Management Team in Washington, D. C., that is responsible for
providing support to the Disaster Assistance Response Team and assisting
with the information management and coordination of the event from an
interagency operations center. The activities of these teams will vary
depending upon the type, size, and complexity of the disaster.
Role of DOD Is Unique If ongoing military operations permit, DOD supports
the Department of State for crisis and consequence management functions
overseas in the event of a terrorist incident. DOD is unique in that it
has the greatest depth and breadth of worldwide response capabilities.
Specific types of support include threat assessments, technical advice,
operational support, tactical
support, and transportation. In the event of a terrorist incident
overseas, DOD also provides force protection to the Department of State.
DOD and State have memorandums of understanding on the coordination and
implementation of plans for the protection of U. S. citizens abroad in
emergencies, and on the protection and evacuation of U. S. citizens and
designated aliens abroad. A pending or actual terrorist crisis may require
the evacuation of U. S. government employees, as well as other Americans
in the area. These evacuations* known as Noncombatant Evacuation
Operations* may be necessary in the face of continued terrorist attacks or
in an attack involving weapons of mass destruction. DOD support for the
Department of State for a foreign consequence management operation is not
automatic and is either approved or disapproved by the Secretary of
Defense. DOD assets, albeit unique and robust compared to those of other
U. S. government agencies, are finite. According to DOD, ongoing military
operations may preclude DOD support for a foreign consequence management
operation.
Weapons of Mass Destruction U. S. government efforts to provide
consequence management overseas have focused on WMD incidents, which are
the most likely to overwhelm host nation capabilities. In PDD 39, the
President directed the State Department, in coordination with DOD and
USAID*s Office of Foreign Disaster Assistance, to develop a plan to
provide assistance to foreign populations that are victims of terrorist
WMD attacks. In response, the State*s Bureau of Political- Military
Affairs wrote draft guidelines for a consequence management response to an
international WMD incident. The guidelines provide a framework of planning
guidance for all types of deliberate or accidental chemical, biological,
radiological, or nuclear incidents. They outline operational concepts for
a U. S. response overseas and provide a foundation for operational plans
and procedures. They also identify procedures by which the United States,
partner nations, host nations, and international response agencies can
most effectively unify and synchronize their response actions. The
guidelines require that State (along with the Departments of Defense,
Energy, and Health and Human Services
and USAID) maintain the capability to respond rapidly to any incident when
approved by the NSC. The response would be authorized subject to the
concurrence of the ambassador and host government.
The guidelines also identify various federal response teams and detail
their deployment and employment considerations. As discussed above, State
maintains a standing Consequence Management Support Team
that would manage the consequences of a WMD emergency overseas. The
Consequence Management Support Team, through its USAID representative,
would coordinate all U. S. government consequence management activities
with the appropriate authorities of the host country, as well as the
international organizations, private voluntary organizations, and non-
government organizations that may be involved in the emergency. The same
federal agencies that would provide consequence management in
a domestic WMD incident could also respond overseas. While some of these
agencies have a more domestic focus, they have unique capabilities that
could be deployed overseas. 3 Figure 18 shows federal agency response
teams that could be called upon in an overseas WMD incident. Several of
these response teams transferred into the Department of Homeland Security
on March 1, 2003, from a variety of other departments.
3 For more details on these teams, see U. S. General Accounting Office,
Combating Terrorism: Federal Response Teams Provide Varied Capabilities;
Opportunities Remain to Improve Coordination, GAO- 01- 14 (Washington, D.
C.: Nov. 30, 2000). We reported that federal response teams do not
duplicate one another; however, agencies lack a coherent
framework to develop and evaluate budget requirements for teams. Because
most response teams have multiple missions, federal agencies do not track
the resources for their teams based on their roles in combating terrorism.
Figure 18: Federal Response Teams That Could Respond to a Weapons of Mass
Destruction Incident Overseas
Evaluations in the After a terrorist attack, the federal government
reviews the facts leading
Aftermath of a up to the incident. These reviews are done to determine
whether security
procedures were followed; to establish accountability within the Terrorist
Incident
government, if appropriate; and to provide lessons learned to prevent or
mitigate future attacks.
Reviewing Terrorist The Secretary of State convenes an Accountability
Review Board in cases
Incidents Against involving acts of terrorism against U. S. diplomatic
installations and
Diplomatic Posts personnel abroad that involve serious injury, loss of
life, or significant
destruction of property. 4 These boards investigate the facts and
circumstances surrounding the damage to determine whether security
measures systems and procedures were adequate and implemented. The boards
also propose recommendations aimed at saving lives and improving security
systems and procedures, including those aimed at improving crisis
management. Each board consists of five members four appointed by the
Secretary of State and one appointed by the Director of Central
Intelligence.
State convened two Accountability Review Boards following the August 1998
bombings of the U. S. Embassies in Nairobi, Kenya, and Dar es- Salaam,
Tanzania, to examine the facts and circumstances surrounding the near
simultaneous bombings. The boards examined a number of security measures
and procedures including (1) whether the incidents were security related,
(2) whether security systems and procedures were
adequate and implemented properly, (3) the impact of intelligence and
information availability, (4) whether any employee of the U. S. government
or member of uniformed services breached his or her duty, and (5) whether
any other facts or circumstances in these cases may be relevant to
security management of U. S. missions abroad.
4 Required by the 1986 Omnibus Diplomatic and Anti- Terrorism Act (P. L.
99- 399), Aug. 27, 1986.
Reviewing Incidents DOD also has convened ad hoc commissions to evaluate
terrorist incidents
Against Military Targets aimed at its overseas military facilities. For
example, following the June
1996 truck bombing of the al- Khobar Towers military housing facility near
Dhahran, Saudi Arabia, the Secretary of Defense directed a task force to
assess facts and circumstances surrounding the attack, including the
security policies, infrastructures, and systems. 5 The Secretary also
asked the team to recommend measures to minimize casualties and damage
from such attacks in the future. The task force*s report made a number of
recommendations to improve security at military facilities overseas.
Past Incidents Studied to In addition to reviewing individual incidents,
the State Department*s Provide Lessons Learned
Bureau of Diplomatic Security analyses numerous past incidents and related
exercises to provide more general lessons learned. Since 1987, the bureau
has analyzed various threats and incidents, including terrorist attacks,
and published its results. This annual publication, done with the
assistance of other federal agencies, is called Political Violence Against
Americans. It focuses on major incidents based upon, among other things,
their lethality, property damage, and use of unusual tactics or weapons.
The publication is designed to provide a comprehensive picture of
political violence against U. S. interests. In addition, the bureau
conducts an annual longer- term analysis covering a number of years that
provide lessons learned in crisis management. 6 These promote awareness of
basic crisis management principles.
Agency Comments and The Departments of Defense and State and USAID
provided technical
Our Evaluation comments on the matters covered throughout this chapter.
Based upon
these comments, we made revisions, as appropriate. We also made revisions
(primarily to the figure on WMD response teams) based upon the creation of
the Department of Homeland Security and the transfer of various response
teams and functions into that department.
5 The Downing Assessment Task Force, also known as the Downing Commission
because it was headed by General Wayne Downing, issued its report on Aug.
30, 1996. 6 For example, see U. S. Department of State, Bureau of
Diplomatic Security, Lessons Learned in Crisis Management 1983- 1994, Feb.
1995, and Terrorist Tactics and Security Practices: Lessons Learned and
Issues in Global Crime, 1994.
Appendi xes Matrix of Department of Defense Programs
Appendi I x and Activities to Combat Terrorism Overseas The Department of
Defense (DOD) supports the Department of State, which is the lead federal
agency for coordinating U. S. government efforts to combat terrorism
overseas. Within the department, the military services as well as multiple
offices and agencies manage various programs and activities to combat
terrorism abroad. DOD also works with other U. S. government agencies,
foreign government military organizations and agencies, and international
organizations in carrying out these programs and activities. Some of these
activities directed at combating terrorism overseas (e. g., coordination)
may actually occur in the United States.
Appendix I identifies and describes the following: the strategic
framework of DOD*s efforts to combat terrorism overseas; DOD*s programs
and activities to detect and prevent terrorism overseas; DOD*s programs
and activities to disrupt and destroy terrorist
organizations overseas; and DOD*s programs and activities to respond to
terrorist incidents
overseas.
Tabl e 10: Department of Defense Programs and Activities to Combat
Terrorism Overseas Department of Defense office or military service
Program or activity Description of program or activity
STRATEGIC FRAMEWORK Agency head*s role in combating terrorism
Office of the Secretary of The Secretary of Defense is The Secretary of
Defense is responsible for supporting (1) the lead Defense the principal
defense policy federal agency* the Department of State* in responding to a
terrorist advisor to the President.
incident overseas, (2) the Department of Justice (through the Federal
Bureau of Investigation (FBI)) for crisis management of a domestic The
Office of the Secretary of
terrorist incident, and (3) the Federal Emergency Management Agency
Defense is the principal staff
(FEMA) for consequence management of a domestic terrorist incident.
element of the Secretary of Defense in the exercise of policy development,
planning,
resource management, fiscal, and program evaluation responsibilities.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
Special agency official or office in charge of combating terrorism
Office of the Assistant Special operations and
Serves as the principal staff assistant and advisor to the Secretary of
Secretary of Defense for
low- intensity conflict Defense and to the Under Secretary of Defense for
Policy for the broad Special Operations and LowIntensity spectrum of
combating terrorism policy and support. Conflict
Office of the Assistant to the Civil support Serves as the focal point for
the coordination of DOD efforts in Secretary of Defense for
preparation for requests from civilian agencies on weapons of mass
Homeland Defense
destruction (WMD) consequence management. The Assistant to the Secretary
of Defense for Homeland Defense provides civilian oversight for the Joint
Task Force for Civil Support.
Chairman of the Joint Chiefs Principal military advisor to
Serves as the principal advisor and focal point to the Secretary of of
Staff the President, Secretary of Defense for all DOD antiterrorism
issues. Defense, and the National Security Council
Office of the Under Secretary Acquisition, technology, and Responsible for
the development, application, testing, and evaluation of of Defense for
Acquisition, logistics new and commercial- off- the- shelf technology for
combating terrorism. Technology and Logistics
Office of the Assistant Command, control,
Provides policy guidance and oversight for information, information
Secretary of Defense for communications, and
technology and physical security programs, security and investigative
Command, Control, intelligence
matters, counterintelligence, DOD foreign counterintelligence,
Communications, and intelligence, and information operations programs.
Intelligence Office of the Assistant
Reserve affairs Provides policy direction and oversight of the military
departments* Secretary of Defense for
Reserve Component readiness/ training policies and funding for Reserve
Reserve Affairs
Component domestic and overseas combating terrorism preparedness. The
Assistant Secretary of Defense for Reserve Affairs also exercises policy
direction and oversight for the Domestic Preparedness Program. Office of
the Assistant
Health affairs Supports the federal interagency process with medical
research and Secretary of Defense (Health
development programs and interfaces with the National Disaster Medical
Affairs)
System. Service Secretaries
Military services Establish and provide resources for combating terrorism
programs, (Secretaries of the Army, the
incorporating existing physical security, base defense, and law Navy, and
the Air Force)
enforcement initiatives, which address terrorism as a potential threat to
DOD elements and personnel, to include the Reserve Components.
Office of the Assistant to the Domestic Preparedness
Develops and implements the Domestic Preparedness Program*s *first
Secretary of Defense for
Program and Consequence responder* training and exercise missions and
manages the Homeland Defense
Management Program Consequence Management Program Integration Office.
Integration Office
Commanders of the Command policies and
Establish command policies and programs for the protection of all forces
combatant commands programs (military, civilian, and family members) and
facilities in their area of
responsibility to include assigned personnel, those under operational
control, and individuals that fall under memorandums of understanding.
Joint Task Force for Civilian Support to civilian agencies Responsible,
through the Commander, Joint Forces Command, for Support marshalling the
capabilities of the Armed Forces in support of civilian
agencies responding to domestic consequence management contingencies
involving weapons of mass destruction.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
Directors of defense agencies Providing resources for
The directors establish and provide resources for combating terrorism and
field activities combating terrorism programs programs, incorporating
existing physical security programs with
antiterrorism awareness, which address terrorism as a potential threat to
DOD elements and personnel.
Agency plans or strategies to combat terrorism
Chairman of the Joint Chiefs
National Military Strategy of
Sets the strategic direction for all aspects of the Armed Forces for 3- 5
of Staff the United States of America years. This document includes
objectives, force structure, capabilities,
(Sept. 1997) and the strategic environment. The most recent strategy
(issued in September 1997) notes the rising danger of asymmetric threats,
including terrorism. It stresses the need for the military to adapt its
doctrine, training, and equipment to ensure a rapid and effective joint
and interagency response to these threats.
Chairman of the Joint Chiefs
National Military Strategic
Provides the strategic framework to guide the conduct of the global war of
Staff Plan for the War on Terrorism on terrorism by the U. S. Armed
Forces. This classified plan discusses
(Oct. 19, 2002) the strategic environment and outlines national guidance
to (1) defeat terrorists and terrorist organizations; (2) deny
sponsorship, support, and sanctuary to terrorists; (3) diminish the
underlying conditions that permit terrorism; and (4) defend the United
States, its citizens, and its interests at home. This plan also provides
defense guidance, including the national defense strategy and concept for
the global war on terrorism. It
lays out the strategic approach for the war on terrorism, identifies
strategic military objectives, and provides the strategic military
approach to carry out the war on terrorism over an extended period of
time. The plan addresses planning for and establishing administrative and
logistics systems and command and control for each contingency.
Rather than prescribing specific battle plans or future operations, the
plan provides combatant commanders with principles for planning their
military operations as well as specific tasks and initiatives to combat
terrorism overseas. Also, it provides a framework from which regional
commanders, the military services, and other agencies can formulate their
own individual action plans. In response to this plan, individual
regional commands have drafted their own classified campaign plans to
combat terrorism overseas.
Office of the Assistant Combating Terrorism Program Includes all actions*(
1) antiterrorism (defensive measures taken Secretary of Defense for
to reduce vulnerability to terrorist acts), (2) counterterrorism Special
Operations and
(offensive measures taken to prevent, deter, and respond to terrorism),
Low- Intensity Conflict
(3) terrorism consequence management (preparation for and response to the
consequences of a terrorist incident/ event), and (4) intelligence support
(collection and dissemination of terrorism- related information as
the first line of defense)* taken to oppose terrorism throughout the
entire threat spectrum, to include terrorist use of weapons of mass
destruction and/ or high explosives.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
Office of the Assistant DOD Directive 2000.12, DOD
This directive (1) changes the name of the DOD Combating Terrorism
Secretary of Defense for
Antiterrorism/ Force
Program to the DOD Antiterrorism/ Force Protection Program, Special
Operations and LowIntensity
Protection Program (Apr. 13, (2) updates DOD policies and assigns
responsibilities for implementing Conflict
1999) the program, (3) authorizes publication of DOD standards and related
guidance, (4) establishes the Chairman of the Joint Chiefs of Staff as the
principal advisor and focal point for antiterrorism/ force protection
issues, and (5) defines antiterrorism/ force protection responsibilities
of the military departments, commanders of the combatant commands, and
defense agencies.
This directive also establishes DOD policy, among other things, (1) to
protect DOD elements and personnel from terrorist acts, (2) that
antiterrorism/ force protection is the commander*s responsibility, (3) to
maintain a Combating Terrorism Readiness Initiatives Fund to respond to
emergent, unforeseen requirements, and (4) to comply with the *No Double
Standard* policy on dissemination of specific, credible terrorist threat
information that has not or cannot be countered (i. e., it is the policy
of the U. S. government that official Americans cannot benefit from
receipt of information that might equally apply to the public, but is not
available to the public).
Also, this directive established the Antiterrorism Coordination Committee
and its Senior Steering Group to reduce vulnerabilities to terrorist
attacks. Both act as a clearinghouse for policy recommendations and
facilitate coordinating antiterrorism/ force protection actions and
taskings.
Office of the Assistant DOD Instruction 2000.16,
This instruction (1) reissues DOD Instruction 2000.16, DOD
Secretary of Defense for
DOD Antiterrorism Standards Antiterrorism Standards (Jan. 8, 2001), (2)
updates policy Special Operations and
(June 14, 2001) implementation, (3) assigns responsibilities, (4)
prescribes procedures
Low- Intensity Conflict under DOD Directive 2000.12, DOD Antiterrorism/
Force Protection
Program, for protection of personnel and assets from acts of terrorism,
and (5) assists DOD components in implementing this instruction and DOD
Directive 2000. 12. It references DOD Instruction 5210.84, Security of DOD
Personnel at U. S. Missions Abroad, which provides guidance for the
security of DOD personnel at overseas locations. It also refers to
specific guidance for DOD elements and personnel under the
responsibility of the Department of State in the Memorandum of
Understanding Between the Department of State and the Department of
Defense on Overseas Security Support. Finally, it refers to specific
common criteria and minimum construction standards to mitigate
antiterrorism vulnerabilities and terrorist threats. This instruction
reaffirms DOD*s policy to (1) protect DOD personnel,
their families, installations, facilities, information, and other material
resources from terrorist acts; (2) establish primary standards for
antiterrorism efforts; and (3) provide commanders at all levels with the
authority to enforce security measures and the responsibility for
protecting persons and property under their control.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
Office of the Assistant DOD Instruction 2000.14,
This instruction establishes policy, assigns responsibility, and
prescribes Secretary of Defense for
DOD Combating Terrorism
procedures under DOD Directive 0- 2000.12, DOD Combating Terrorism
Special Operations and
Program Procedures Program, for implementation and use in the DOD
Antiterrorism Program. Low Intensity Conflict
(June 15, 1994) This instruction establishes DOD policy to (1) protect DOD
personnel and their families, facilities, and other material resources
from terrorist acts and, in the event of a terrorist attack, to respond
with properly trained, organized, and equipped personnel (including local
law enforcement or host nation assets) to terminate the incident or reduce
the effects of the attack; (2) provide guidance on the conduct of DOD
personnel and their families if seized by terrorists; (3) ensure actions
to combat terrorism outside of the United States will comply with
applicable Status of Forces Agreements, other international agreements,
and memoranda of understanding, as well as coordinate with the U. S.
embassy and host nation; and (4) coordinate defense attache and
security assistance organization antiterrorism programs overseas with the
chief of mission at the U. S. embassy and comply with Department of State
standards.
Office of the Under Secretary Unified Facilities Criteria Sets standards
to minimize the possibility of mass casualties in buildings of Defense for
Acquisition, 4- 010- 01, DOD Minimum
or portions of buildings owned, leased, privatized, or otherwise occupied,
Technology and Logistics
Antiterrorism Standards for
managed, or controlled by DOD. The standards provide a level of Buildings
(July 31, 2002) protection against terrorist attacks for all inhabited DOD
buildings where no known threat of terrorist activity currently exists.
Office of the Under Secretary Unified Facilities Criteria Identifies the
minimum standoff distances and separation for new and of Defense for
Acquisition, 4- 010- 10, DOD Minimum
existing buildings and expeditionary and temporary structures. Technology
and Logistics
Antiterrorism Standoff Distances for Buildings (July 31, 2002)
Office of the Under Secretary DOD Directive 5200.8,
Outlines the requirements of DOD*s physical security program. of Defense
for Policy Security of DOD Installations
Commanders at the unit, activity, installation, and major command levels
and Resources (Apr. 25, use the standards outlined in this and other
guidance documents to 1991)
determine their physical security equipment requirements. Office of the
Under Secretary
DOD Regulation 5200.8- R, This regulation, in accordance with DOD
Directive 5200.8, Security of
of Defense for Policy Physical Security Program DOD Installations and
Resources, prescribes DOD policies and (May 13, 1991) minimum standards
for the physical protection of DOD personnel, installations, operations,
and assets. The physical security program involves both active and passive
measures designed to prevent unauthorized access to personnel, equipment,
installations, material, and documents, and to safeguard them against
espionage, sabotage, damage, and theft. The regulation provides policy and
guidance on installation access and circulation control, security of
weapons systems and platforms, protection of bulk petroleum products,
security of communications systems, and security of material.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
Assistant to the Secretary of DOD Directive 3150.3,
This directive (1) reissues DOD Directive 3150.3, Survivability and
Defense (Atomic Energy) Nuclear Force Security and Security (S2) of
Nonstrategic Nuclear Forces (NSNF), to add strategic
Survivability (S2) (Aug. 16, nuclear weapons and forces to the existing
DOD Nonstrategic Nuclear 1994)
Forces Program and update policy and responsibilities for nuclear force
survivability and security; (2) describes the DOD program to develop
concepts, procedures, equipment, facilities, and training programs that
ensure the survivability and security of nuclear weapons systems
throughout the threat spectrum, including terrorism; and (3) requires the
military services to maintain nuclear force survivability and security
programs.
Assistant Secretary of DOD Directive
This manual is a classified document. Defense for Command,
C- 5210. 41- M, Nuclear
Control, Communications, and Weapon Security Manual (U) Intelligence
(Apr. 1994) Assistant Secretary of
DOD Regulation 5200.1- R, This regulation implements Executive Order
12958, Classified National
Defense for Command,
Information Security Program Security Information, within DOD and
establishes the DOD Information Control, Communications, and (Jan. 14,
1997)
Security Program to promote proper and effective classification,
Intelligence
protection, and downgrading of official information requiring protection
and the declassification of information no longer requiring such
protection. Office of the Assistant
DOD Worldwide Combating Serves as a continuing forum to communicate
guidance, exchange Secretary of Defense for
Terrorism Conference ideas, and generate policy recommendations that will
reduce DOD Special Operations and
vulnerability to terrorism. The 2001 conference established seven Low-
Intensity Conflict
working groups (Intelligence, Operations, Policy, Research and
Development, Consequence Management, Resources, and Interagency
Community).
Assistant Secretary of DOD Directive 5240.2, DOD
This directive, among other things, (1) integrates DOD Defense for
Command,
Counterintelligence (May 22, counterintelligence capabilities and
coordination procedures into a Control, Communications, and 1997)
national counterintelligence structure under the direction of the National
Intelligence
Security Council (NSC) under Presidential Decision Directive/ NSC- 24, U.
S. Counterintelligence Effectiveness; (2) establishes and maintains a
comprehensive, integrated, and coordinated counterintelligence effort
within DOD; (3) assigns responsibilities for the direction, management,
coordination, and control of DOD counterintelligence activities; and (4)
establishes the Defense Counterintelligence Board.
This directive establishes DOD policy that, among other things,
counterintelligence activities be undertaken to detect, identify, assess,
exploit, and counter or neutralize the intelligence collection efforts,
other intelligence activities, sabotage, terrorist activities, and
assassination efforts of foreign powers, organizations, or persons
directed against
DOD, its personnel, information, materiel, facilities, and activities.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
Assistant Secretary of DOD Instruction 5240.10,
This instruction (1) establishes policies, assigns responsibilities, and
Defense for Command,
DOD Counterintelligence prescribes procedures to ensure that the
counterintelligence Control, Communications, and Support to Unified and
requirements of the combatant commanders of the Unified and Specified
Intelligence
Specified Commands Commands are met under the parameters established by
law, Executive (Apr. 8, 1992) order, and DOD directives and (2) provides
general principles for the command relationships and support requirements
between the counterintelligence organizations of the military departments
and the Unified and Specified Commands during peacetime, exercises,
contingencies, and through the spectrum of armed conflict.
This instruction establishes DOD policy that, among other things, the
counterintelligence mission is provided to all DOD components with the
necessary counterintelligence support (the functions of collection and
production, operations, and investigations) to gather information and
conduct activities to protect against espionage and other intelligence
activities, sabotage, international terrorist activities, or
assassinations
conducted for, or on behalf of, foreign powers, organizations, or persons.
DETECT AND PREVENT TERRORISM ABROAD Antiterrorism/ force protection
Local commander Antiterrorism/ Force Protection Defensive measures (to
include force protection) used to reduce the (defensive measures)
vulnerability of individuals and property to terrorist acts, to include
limited response and containment by local military forces. Combatant
commanders, military services, and defense agencies, working in close
cooperation with the intelligence community and law enforcement agencies,
will use all authorized means to deter, detect, defend, respond to, and
mitigate terrorist attacks. These antiterrorist measures include increased
security and vigilance for key personnel, installations, and equipment.
Established Antiterrorism Coordination Committee and its Senior Steering
Group.
Antiterrorism/ force protection categories
Local commander Physical security equipment Any item, device, or system
that is used primarily for the protection of assets, personnel,
information, or facilities, to include alarms, sensors, protective
lighting and their control systems and the assessment of the
reliability, accuracy, timeliness, and effectiveness of those systems,
such as (1) exterior surveillance and/ or intrusion detection systems
(wide- area security and surveillance systems); (2) lighting systems; (3)
access controls and alarm systems; (4) residential security equipment; (5)
equipment for executive protection, to include added doors, increased
ballistic protection at offices and residences, personal body armor and
protective equipment, and armored vehicles; and (6) detection devices
(under vehicle surveillance systems) and
canine systems.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
Local commander Physical security site Facility improvements using
operations and maintenance or military improvements construction funding,
new construction, or new construction design, whose purpose is to protect
DOD assets, personnel, or information from terrorist threats. The
improvements may include walls, fences, barricades, or other fabricated or
natural impediments used to restrict, limit, delay, or deny entry into a
DOD installation or facility. Improvements may include (1) primary
facility modifications/ features that include special structural
improvements to walls, doors, windows, and ceilings; interior barriers;
and any land acquisition for standoff distances; (2) supporting facility
modification/ features, such as site improvements in fencing, perimeter/
area lighting, blast mitigation barriers, vehicle barriers, and special
landscaping; (3) safe havens; (4) evacuation
facilities; and (5) surveillance platforms. Local commander Physical
security
Includes all personnel who manage physical security programs, management
and planning resources, and assets, such as headquarters staff and
headquarters
staff elements performing such functions. Local commander Security forces/
technicians Personnel and operating costs associated with protective
forces whose
primary or supporting mission is to safeguard assets, personnel, and
information. Security forces/ technicians include personnel engaged in
such activities as (1) dedicated response forces and security forces; (2)
locksmiths; (3) perimeter, installation, or facility access control; (3)
inspection and maintenance of barriers and security system components; (4)
antiterrorism training for security forces; and
(5) antiterrorism awareness programs and training. Local commander Law
enforcement Personnel and operating costs associated with any law
enforcement
activity, such as (1) protective service details, including advance work;
(2) response forces; and (3) military police.
Local commander Security and investigative Includes DOD criminal
investigative resources, conduct of vulnerability matters assessments
(periodic high- level reviews and physical security
assessments), security and intelligence activities, and any
crossdiscipline security functions, such as (1) terrorism investigations;
(2) executive antiterrorism training; (3) surveillance and
countersurveillance teams; (4) protective service details, including
advance work; (5) route surveys; (6) antiterrorism awareness programs and
training; and (7) Joint Staff Integrated Vulnerability Assessments.
Local commander Research, development, test, Includes any RDT& E resources
expended in the area of antiterrorism and evaluation (RDT& E) and force
protection to provide new and enhanced capabilities to combat
terrorism. The two primary programs are the Counterterror Technical
Support Program and the Physical Security Equipment Development Program.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
Technical Support Working Counterterror Technical A fast- track research
and development program for advanced Group Support Program technologies
and state- of- the- art prototype equipment that addresses
both interagency and international combating terrorism requirements. The
Technical Support Working Group (TSWG)* the research and development arm
of the National Security Council*s (NSC) Interagency Working Group on
Counterterrorism* provides resources and program management. The
Department of State provides policy oversight to TSWG, which is co-
chaired by the Departments of Defense and Energy and the FBI. TSWG
consists of over 50 federal government organizations that identify
operational needs and coordinate research
and development for combating terrorism. Typical TSWG projects include (1)
stand- off explosive detection of terrorist devices, (2) large vehicle
bomb countermeasures (detect and disable), (3) entry point screening, (4)
structural blast mitigation, (5) national infrastructure
assurance and protection, and (6) advanced sensor detection and defeat.
Physical Security Equipment Physical Security Equipment
A research and development program designed to support the rapid Action
Group Development Program acquisition and quick field integration of
state- of- the- art security
technology to deployed forces, in particular commercial off- the- shelf
equipment. The Physical Security Equipment Action Group funds and provides
resources to the program. The group consists of representatives from the
Army, the Navy, the Air Force, the Joint Staff, and the Defense Threat
Reduction Agency. The program evaluates, develops, and integrates
equipment and systems related to (1) intrusion
detection, (2) entry control, (3) access control, (4) waterside security,
(5) delay/ denial, (6) interior and exterior robotics, and (7) explosive
detection systems. Vulnerability assessments
Chairman of the Joint Chiefs Integrated Vulnerability
Ensures that commanders at all levels have an accurate awareness of of
Staff Assessment Team the existing vulnerabilities and readiness of
antiterrorism programs within their command. The assessments assist
commanders in implementing risk management practices when allocating
resources in a uniform and complementary fashion that are adaptable to
changing terrorist threats. Approximately 96 assessments are planned for
fiscal year 2003.
Antiterrorism activities
Office of the Deputy Assistant Chemical, biological, and
Based on an assessment by the Strategic Deterrence Joint Warfighting
Secretary of Defense for radiological monitoring,
Capabilities Assessment, a monitoring, detection, and identification
Chemical and Biological
detection, and identification package was developed for protection of the
Pentagon and other Defense
strategic U. S. sites within the United States and in forward threat
areas, including Northeast Asia and Southwest Asia. Equipment is to detect
chemical and radiological agents. Systems include the Automatic Chemical
Agent Detection Alarm and the Personnel and Vehicle Entry Radiological
Detectors. According to DOD, detection capability for biological agents
currently is limited to *detect to treat.* Emphasis is placed on
monitoring, sampling, confirmatory analysis, and medical
surveillance through such systems as Portal Shield, Joint Bio Point
Detection System, Portable Bio Aerosol Sampler, Dry Filter Units, and
Polymerase Chain Reaction Identification Devices.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
Military security assistance
Defense Security Cooperation Foreign Military Financing The Department of
State provides grants to foreign governments for the Agency acquisition of
U. S. defense equipment, services, and military training,
which enable key U. S. allies and friends to improve their defense
capabilities. It promotes U. S. national security interests by
contributing to global and regional stability, strengthening military
support for democratically elected governments, and containing
transnational threats, including terrorism. This security assistance is a
key tool in
supporting U. S. coalition partners in combating terrorism overseas. It
reduces the likelihood of conflict and war that could threaten the United
States. The Department of State*s Bureau of Political- Military Affairs
sets policy for the program, while the Defense Security Cooperation Agency
manages the program on a day- to- day basis. Security assistance offices
within U. S. embassies abroad play a key role in managing the program
within recipient countries.
Defense Security Cooperation Foreign Military Sales A U. S. security
assistance program used to sell defense articles or Agency services to
authorized governments. The program is used to maintain close ties with
neighbors and key allies, maintain stable and secure
regional partners, and ensure regional stability. This program helps
countries, such as the new members of the North Atlantic Treaty
Organization (NATO), upgrade their military capabilities and achieve
greater interoperability with U. S. and other alliance forces. Also, it
helps strengthen the security and defense capabilities of recipient
countries, whose support is crucial to combating terrorism. These
countries
include, for example, the new U. S. Central Asian and Caucasus partners in
the war on terrorism. The Department of State*s Bureau of
PoliticalMilitary Affairs approves foreign military sales, while security
assistance offices at U. S. embassies abroad promote the sale of U. S.-
produced
defense items and carry out most of the tasks associated with foreign
military sale cases. An implementing agency within DOD the Army, the Navy,
the Air Force, or the Defense Logistics Agency, depending upon the type of
item being considered negotiates the terms of the sale. The Defense
Security Cooperation Agency buys the items from U. S. manufacturers for
the recipient country.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
Defense Security and International Military Serves as a low- cost security
assistance program intended to foster the Cooperation Agency Education and
Training development of more professional militaries around the world
through training and education of foreign military and civilian personnel.
The program provides training on a grant basis to some 10, 000 students
annually from 133 allied and friendly countries. Formal instruction is
provided through more than 2,000 courses taught at about 150 U. S.
military schools and installations. The program advances U. S. interests
in furthering regional stability by enhancing military alliances, building
coalitions, and strengthening efforts to combat terrorism abroad.
DOD plans and manages the program through the Defense Security and
Cooperation Agency, which works with the various military departments and
unified military commands to implement the program. Coordination of the
program overseas is handled by DOD*s security assistance offices located
in U. S. embassies around the world, which field requests from their host
countries to participate in the program.
Enhancing military professionalism is intended to make militaries more
efficient, effective, and interoperable with U. S. and NATO forces as well
as regional coalitions. Also, it fosters a better understanding of
democratic values, including civilian rule of the military, belief in the
rule of law, and respect for internationally recognized civil and human
rights. Finally, the program*s development of professional and personal
militaryto- military relationships provide U. S. access and influence to a
critical sector of society that can help support U. S. access to foreign
military bases and facilities* a critical component in efforts to combat
terrorism
overseas.
Embassy security
U. S. Marine Corps Protection of information at U. S. Marine security
guards control access to 130 U. S. embassies and U. S. diplomatic missions
missions worldwide. overseas
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
Military training (with foreign governments)
U. S. Special Operations Joint Combined Exchange
Provides U. S. special operations forces opportunities to develop and
Command and Training maintain their skills and to train foreign militaries
and other groups
to combat terrorism overseas, among other missions. U. S. special
operations forces are tasked with nine principal missions to (1) train and
otherwise assist foreign militaries to combat insurgency and other threats
to stability (foreign internal defense); (2) train, advise,
and otherwise assist local forces for guerilla warfare (unconventional
warfare); (3) protect against and prevent the spread of nuclear, chemical,
and biological weapons (counterproliferation); (4) use offensive and
defensive measures to prevent or resolve terrorist incidents (combating
terrorism); (5) obtain information concerning capabilities and activities
of actual or potential adversaries (special reconnaissance); (6) inflict
damage on an adversary or recover personnel or material (direct action);
(7) target an adversary*s information system while defending U. S. systems
(information operations); (8) establish, maintain, or strengthen
relations between U. S. and allied governments to facilitate military
operations (civil affairs); and (9) influence attitudes of foreign
audiences (psychological operations). Specific Joint Combined Exchange and
Training operations and activities are classified. U. S. European Command
Republic of Georgia Train and Enhances the Republic of Georgia*s counter-
terrorism capabilities. The
Equip Program program*s goal is to build strong effective staff
organizations capable of creating and sustaining standardized operating
procedures, training plans, operational plans, and a property accounting
system. The curriculum consists of performance- oriented training and
exercises. The time- phased training will be conducted by U. S. Special
Forces to build
upon the military- to- military relationship developed between the two
countries. The program will consist of command center staff training for
members of the Georgian Ministry of Defense as well as training for units
of the Land Forces Command. Border guards and other Georgian security
agencies will be included to ensure interoperability among Georgia*s
security forces. Almost 200 Georgians have completed the staff- training
phase and about 500 are completing the light- infantry tactics training.
Military equipment to be provided will include uniform
items, small arms and ammunition, communications gear, training gear,
medical gear, fuel, and construction material.
U. S. Pacific Command U. S. Special Operations Develops a counter-
terrorist capability within the Philippines armed Forces Training for the
forces through the Foreign Military Financing program. The U. S. Pacific
Philippines
Command deployed a Joint Task Force advisory team to the southern
Philippines to begin preparations. It is composed of U. S. Special
Operations personnel and provides training at the command level at
headquarters through the company level in the field. The training
emphasizes joint operations and tactics to help eliminate terrorist
threats. Training includes counterterrorism campaign planning,
intelligence fusion, psychological operations, civil- military operations,
and filed tactics. U. S. Special Operations personnel completed training
with 25 field companies and provided equipment that included aircraft,
Coast Guard cutters, and helicopters.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
U. S. Special Operations U. S. Special Operations
U. S. Special Forces trained approximately 200 Yemeni military forces in
Command Forces Training for Yemen counterterrorism tactics.
Border security U. S. Air Force Combat Air Patrols Provides protection of
U. S. air space. DISRUPT AND DESTROY TERRORIST ORGANIZATIONS ABROAD
Counterterrorism
Office of the Assistant Counterterrorism (offensive Offensive measures
taken to prevent, deter, and respond to terrorism. Secretary of Defense
for
measures) The Nunn- Cohen Amendment of the Goldwater- Nichols Act of 1986
Special Operations and Low established the (1) U. S. Special Operations
Command, (2) Assistant Intensity Conflict
Secretary of Defense for Special Operations/ Low- Intensity Conflict, (3)
coordinating board for low- intensity conflict within the NSC, and (4)
created a new Major Force Program for special operations forces
resources. Also, the act included counterterrorism activity for special
operations.
Counterterrorism categories
U. S. Special Operations Special Operations Forces U. S. Special
Operations Forces conduct offensive counterterrorism Command measures and
operations directed at preventing, deterring, and
responding to terrorist acts against U. S. interests worldwide. U. S.
Special Operations Forces receive the most advanced and diverse training
available and exercise continually, often with foreign counterparts, to
maintain proficiency and develop new skills. Regional Special Operations
Special Operations Forces
Regional Special Operations Commands are subordinate unified Commands and
Geographic Combatant commands assigned to the Geographic Combatant
Commands. The Commands
Regional Special Operations Commands plan, prepare, and conduct special
operations, including counterterrorism, within the Geographic Combatant
Commander*s area of responsibility. The Regional Special Operations
Commands also provide a trained, operationally ready, and deployable Joint
Special Operations Task Force headquarters that can respond rapidly to
terrorism using forces assigned permanently or temporarily to the
Geographic Combatant Commander.
U. S. Army Special Operations Special Operations Forces The command is
responsible to the U. S. Special Operations Command Command for the
readiness of Special Forces, Rangers, special operations aviation
units, psychological operations units, and civil affairs personnel for
deployment worldwide in support of unified combatant commanders. The
command is headquartered at Fort Bragg, N. C., and has both active and
U. S. Army Reserve special operations forces. Naval Special Warfare
Special Operations Forces The command is responsible to the U. S. Special
Operations Command Command for the readiness of active and reserve naval
special warfare forces. The command deploys SEAL, Special Boat, SEAL
Delivery Vehicle teams, and other Naval Special Warfare Detachments
worldwide and
administratively supports forward- based naval special warfare units. The
command is located at the Coronado Naval Amphibious Base in Coronado,
Calif.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
U. S. Air Force Special Special Operations Forces The command is
responsible to the U. S. Special Operations Command Operations Command for
the readiness of Air Force active, reserve, and National Guard special
operations forces for deployment worldwide. The command consists of three
special operations wings, two special operations groups, and one
special tactics group. The command is located at Hurlburt Field, Fla. U.
S. Air Force Transportation support to the
Provides transport capability to the Foreign Emergency Support Team
Foreign Emergency Support
(FEST) through use of two C- 32B (Boeing 757- 200) aircraft. The U. S. Air
Team
Force supports worldwide operations to select U. S. government agencies on
the recommendation of the Deputies Committee and approval by the Secretary
of Defense. Office of the Assistant
RDT& E Like the antiterrorism component, the counterterrorism component
has Secretary of Defense for
two RDT& E programs as well: (1) Counterterror Technical Support Special
Operations and
Program (renamed the Combating Terrorism Technology Support Low- Intensity
Conflict Program) and (2) Counterproliferation Support to Special
Operations Forces program. Program management is provided by the Combating
Terrorism Technology Support Office, which is staffed through the U. S.
Navy. Office of the Assistant
Counterterror Technical Originally established to help fund research and
development Secretary of Defense for
Support Program (renamed activities of the TSWG, this program was renamed
and enlarged to Special Operations and Low the Combating Terrorism
fund its international component and to better focus DOD*s research
Intensity Conflict
Technology Support Program) and development efforts on counterterrorism,
which includes
countermeasures for weapons of mass destruction. In addition to the
research and development initiatives discussed above, this program also
encompasses counterterrorism requirements. Projects include (1) improved
audio and video surveillance of terrorists; (2) advanced night vision
capabilities; (3) through- wall- imaging capability for use by tactical
forces; (4) small, hand- held gamma and neutron radiation
detector; and (5) diagnostic equipment for improvised devices. Office of
the Assistant
Counterproliferation Support A specialized RDT& E program to develop and
demonstrate special Secretary of Defense for to Special Operations Forces
operations forces unique devices. These projects enable Special Special
Operations and Low Operations Forces and special mission units to detect,
disable, and Intensity Conflict
neutralize weapons of mass destruction and their associated facilities
under the direction of a geographic combatant commander in support of a
Chairman of the Joint Chiefs of Staff Concept Plan. These devices are
employed by Special Operations Forces units with direct application to the
nation*s efforts to counter the spread of weapons of mass destruction.
Efforts include (1) defeat of hard and deeply buried targets; (2)
explosive ordnance disposal (biological, chemical, and nuclear); and (3)
maritime efforts to prevent the spread of WMD technology or systems
using the sea lanes.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
Defense Advanced Research Counterterrorism research
Conducts research and development on ways to counter asymmetric Projects
Agency and development threats and an unconventional, yet highly lethal
attack by a loosely
organized group of transnational terrorists or other factions seeking to
influence U. S. policy. Such attacks occur using equipment that has a
smaller mass, exhibit fewer observables, and are more lethal than a
conventional military attack. Consequently, such evidence is more
difficult to detect, correlate, and understand. Specific needs include the
capability to (1) automatically recognize and identify humans at a
distance; (2) detect an enemy agent conducting surveillance of a U. S.
target; (3) automatically discover, extract, and link together sparse
evidence of a group*s intentions and activities from vast amounts of
classified and unclassified information and sources that lead to the
discovery of additional relationships and patterns of activity that
correspond to unusual events, potential threats, or planned attacks; (4)
more precisely model the beliefs and organizational behavior of small
terrorist groups to better simulate and wargame such adversaries; and
(5) provide more effective collaborative reasoning and decision aids to
improve the speed and effectiveness of teams of analysts and decision
makers in ever- changing situations.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
Military operations
U. S. Central Command Operation Enduring Freedom Since the coordinated
terrorist attacks against the United States on September 11, 2001, the U.
S. Central Command has been conducting Operation Enduring Freedom with its
coalition partners, which now number 51 other countries, to disrupt and
destroy global terrorist
organizations. The initial focus of Operation Enduring Freedom was on
Afghanistan to destroy the base of the al Qaeda terrorist organization and
replace the Taliban regime that supported al Qaeda. These objectives
largely have been met in Afghanistan. Combined Joint Task Force 180 (see
below), which took direct control of operations in Afghanistan in June
2002, continues this mission. It also is conducting operations to ensure
that Afghanistan will not again be a safe haven for terrorists and to
facilitate the reintroduction of Afghanistan into
the community of nations. The U. S. Central Command*s operations in
Afghanistan have been complemented by cooperative efforts with Pakistan to
eliminate the al Qaeda organization in Pakistan. According to the U. S.
Central Command, these efforts have led to the capture of hundreds of al
Qaeda and Taliban members, including very senior members of the al Qaeda
organization. This cooperation continues to degrade the al Qaeda
organization and is a critical component in its ultimate defeat. Operation
Enduring Freedom also involves numerous other activities, including
bilateral cooperation with most of the countries within the U. S. Central
Command*s area of responsibility, Maritime Interception Operations to
intercept al Qaeda movement and communications, and maintaining a quick
strike capability against fleeing al Qaeda targets within the command*s
area of responsibility. Maritime Interception Operations involve a high-
level of coalition cooperation. The entire Maritime Interdiction Operation
in the Horn of Africa region is a coalition operation under Combined Task
Force 150.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
U. S. Central Command Combined Joint Task Force To detect, disrupt, and
defeat terrorists who pose an imminent threat to Horn of Africa coalition
partners in the Horn of Africa region (Kenya, Somalia, Ethiopia,
Sudan, Eritrea, Djibouti, and Yemen). In November 2002, Combined Joint
Task Force Horn of Africa was established to carry out Operation Enduring
Freedom in that portion of the U. S. Central Command*s area of
responsibility that previously was conducted directly by the command.
Particular attention is focused on U. S. cooperation with Yemen.
The Combined Joint Task Force Horn of Africa acts on credible intelligence
to attack, destroy, and/ or capture terrorists and their support networks
in the region. It also works with host nations to deny the reemergence of
terrorist cells and activities by supporting international agencies
working to enhance long- term stability for the region. Currently,
the headquarters element has about 400 members representing each military
service, civilian personnel, and coalition force representatives afloat
aboard the USS Mount Whitney, which operates in the Gulf of Aden. An
additional 900 personnel are stationed ashore at Camp Lemonier in
Djibouti. The headquarters element will transition ashore to Camp
Lemonier, Djibouti, in the spring of 2003.
U. S. Central Command Combined Joint Task Force Constitutes a flotilla of
coalition warships from France, Germany, Spain, 150 the United Kingdom,
and the United States in searching for terrorist
operatives and contraband while patrolling the Red Sea, Gulf of Aden, and
Indian Ocean areas around the Horn of Africa. Combined Joint Task Force
150 is based in Djibouti.
U. S. Central Command Combined Joint Task Force Serves as the forward
headquarters of the primary U. S. force in 180 Afghanistan. Combined Joint
Task Force 180 is located at Bagram Airfield outside of Kabul,
Afghanistan. (See Operation Enduring Freedom above.)
U. S. Central Command Operation Iraqi Freedom Ongoing operations in Iraq
are designed to eliminate potential sources of weapons of mass destruction
for international terrorists as well as eliminating the regime a long-
time supporter of terrorism. As part of Operation Iraqi Freedom, a group
directly related to al Qaeda in northern Iraq already has been largely
eliminated. The full impact of successful operations in Iraq in the war on
terrorism will not be known until the operation is over. However, as a
result of the operations, the U. S. Central Command expects to
significantly enhance its ability to defeat
international terrorism.
Intelligence on terrorist groups and threat assessments
Defense Intelligence Agency Intelligence Support to Collection, analysis,
and dissemination of all- source intelligence on Combating Terrorism
(first line terrorist groups and activities intended to protect, deter,
preempt, or of defense)
counter the terrorist threat to U. S. personnel, forces, critical
infrastructures, and interests.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
DOD National Foreign Intelligence This program has two mission areas: (1)
Support to Military Program Operations, Force Protection, and (2) Support
to Law Enforcement, Counterterrorism. The Support to Military Operations,
Force Protection, mission area includes the personnel and funding for
intelligence activities associated with protecting lives and property,
reducing risks, and expanding opportunities for operation success through
early detection and
definition of threats to U. S. forces. Its focus is on gathering
information on terrorist activities aimed at U. S. personnel, forces,
critical infrastructures, and interests.
The Support to Law Enforcement, Counterterrorism, mission area includes
the personnel and funding for intelligence activities associated with
gathering information on any foreign terrorist activity aimed at U. S.
personnel or interests, in support of a well- coordinated use of
diplomatic,
intelligence, law enforcement, and military assets. U. S. Army, Deputy
Chief of
Tactical Counterintelligence Defense intelligence support to combating
terrorism includes personnel Staff for Intelligence,
and funding associated with U. S. Army and U. S. Marine Corps tactical
Counterintelligence/ Human counterintelligence resources, U. S. Army
security and intelligence Intelligence Division, and U. S. activities,
Tactical Intelligence and Related Activities, and Joint Military Marine
Corps, Headquarters,
Intelligence Program activities. Intelligence Department, Director of
Intelligence
Counterintelligence activities include, for example, (1) terrorism
investigations, (2) surveillance and countersurveillance teams, (3)
counterterrorism analysis and production, (4) force protection source
operations, (5) threat assessments, (6) counterterrorism collection, (7)
route surveys, and (8) intelligence staff support to deployed task forces.
U. S. Army Counterintelligence activities Conducts comprehensive and
coordinated counterintelligence activities worldwide to detect, identify,
assess, counter, neutralize, and/ or exploit threat intelligence and
international terrorist collection efforts and activities. The U. S.
Army*s counterintelligence mission is to support force protection and
antiterrorism efforts. It supports the command*s
responsibility to protect personnel, equipment, and facilities against
foreign intelligence services and international terrorist threats. The U.
S. Army*s Deputy Chief of Staff for Intelligence, Counterintelligence/
Human
Intelligence Division has management oversight of the U. S. Army*s
program. U. S. Marine Corps Counterintelligence activities Collects,
produces, and disseminates counterintelligence information
and conducts activities to protect commands against espionage, other
intelligence activities, sabotage, assassinations, or terrorist activities
conducted by or on behalf of foreign governments, foreign organizations,
or foreigners. Counterterrorism support is provided to the service, joint
combatant, and operational commanders through counterintelligence
investigations; operations; collections and reporting; and analysis,
production, and dissemination. The Director of Intelligence, Intelligence
Department, Headquarters, U. S. Marine Corps, Washington, D. C., provides
program and policy guidance.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
RESPOND TO TERRORIST INCIDENTS ABROAD Terrorism consequence management a
U. S. Army, Office of the Terrorism Consequence Terrorism consequence
management is an emerging component in Director, Operations,
Management Response DOD*s efforts to combat terrorism. DOD focuses its
terrorism Readiness, and Mobilization; consequence management activities
in two areas: (1) installation Military Support Division,
preparedness and (2) support to the lead federal agency. Under this
Operation Directorate; and the component, DOD brings to the interagency
arena a wide variety of U. S. Army Soldier and
unique warfighting technical and operational support capabilities that
Biological Chemical could be used to provide assistance to state and local
authorities, if Command, Aberdeen Proving
requested by the lead federal agency. DOD*s response assets are found
Ground, Md. in both its Active and Reserve Components. DOD*s role is to
support the lead federal agency: the Department of State for terrorist
incidents U. S. Marine Corps, Marine
overseas, the Department of Justice (through the FBI) for crisis Corps
Systems Command, management of domestic terrorist incidents, and FEMA for
consequence Quantico, Va.
management of domestic terrorist incidents. DOD*s focus is to provide
assistance using its unique resources and capabilities, which are not U.
S. Navy, Combatant
found in the other federal agencies. These include the ability to mass
Commander, Atlantic
mobilize and provide extensive logistical support. Because DOD*s assets
Command, Norfolk, Va.
are structured, manned, and equipped for a warfighting mission, the
Secretary of Defense must first determine that DOD*s special capabilities
U. S. Air Force, Readiness and
and expertise are both necessary and critical to respond to an act of
Installation Support Division,
terrorism and that the provision of such assistance will not adversely the
Air Force Deputy Chief of Staff
military preparedness of the U. S. Armed Forces. for Installations and
Logistics, and Force Protection Division,
In foreign consequence management, DOD cooperates closely with the Office
of the Air Force
Department of State. Regional combatant commands are conducting Surgeon
General
exercises of their functional consequence management plans, both in
combined capacity with partner nations in their areas of responsibility
Assistant Secretary of
and with interagency counterparts. Defense for Health Affairs, Services*
Surgeon General*s
Offices, and local commanders
Terrorism consequence management- installation preparedness
Office of the Assistant Deputy Secretary of Defense
Establishes the DOD policy to protect personnel on military installations
Secretary of Defense for
Memorandum, Preparedness
and DOD- owned or leased facilities against chemical, biological, Special
Operations and LowIntensity
of U. S. Military Installations
radiological, nuclear, and high- yield explosive attacks; to respond to
Conflict
and Facilities Worldwide
these attacks with trained and equipped emergency responders; and Against
Chemical, Biological,
to ensure installations are able to continue critical operations during
Radiological, Nuclear, and an attack and to resume essential operations
after an attack. The High- Yield Explosive Attack memorandum also
promulgated the actions necessary to accomplish (Sept. 5, 2002)
this policy in terms of (1) installation preparedness, (2) personnel
protection, (3) concept of operations, (4) standards and guidelines, and
(5) budget and programs.
Military services Installation First Response This was a new initiative in
fiscal year 2001. The military services Preparedness were directed to
develop requirements, train personnel, and procure
equipment for first response preparedness at DOD installations and
facilities.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
U. S. Army Deputy Chief of Installation Preparedness
Conducts a complete assessment of U. S. Army installations WMD Staff for
Operations and Plans Program (planned) preparedness. Also included are
training, exercise, and equipment packages to prepare installation first
responders for WMD incidents on and off post. The Director of Operations,
Readiness, and Mobilization is the U. S. Army*s Action Agent for this
program.
U. S. Navy First Responder Provides planning, training, medical equipment,
and non- medical Preparedness equipment for personnel who will respond to
chemical, biological, and radiological incidents.
U. S. Air Force Disaster Response Force Provides planning, training,
exercise, and response equipment for the Disaster Response Force to
respond to a WMD incident. First responders include security forces, fire
department, medical personnel, and Explosive Ordnance Disposal personnel.
The U. S. Air Force program includes conducting and evaluating training
and exercises for
base and headquarters personnel, support for formal and supplemental
training courses, developing and evaluating response plans, and other
associated activities required to implement the WMD Threat Response
Program. Only 11 U. S. Air Force installations will be funded over 7 years
(beginning in fiscal year 2001). Defense Advanced Research
RDT& E Like the antiterrorism and counterterrorism components, the
Projects Agency consequence management component has its own RDT& E
programs:
(1) Counterterror Technical Support Program and (2) Defense Advanced
Research Projects Agency (DARPA) Biological Warfare Defense Program.
Defense Advanced Research Counterterror Technical Research and development
initiatives to support all facets of combating Projects Agency Support
Program terrorism. Projects that specifically address consequence
management
requirements include (1) protective clothing, (2) forensics equipment for
on- scene analysis, (3) responder databases, and (4) urban modeling.
Defense Advanced Research Biological Warfare Defense
Applied research program to develop and demonstrate technologies to
Projects Agency Program thwart the use of biological warfare agents
(including bacterial, viral, and
bio- engineered organisms and toxins) by both military and terrorist
opponents (against U. S. assets at both home and abroad). DARPA*s primary
strategy is to create technologies applicable to broad classes of
pathogens and toxins. The program is focused on supporting the warfighter;
however, many of the technologies also have applicability as
a supporting element of DOD*s combating terrorism activities. Projects
include (1) real- time environmental sensing; (2) external protection
(including novel methods of protection, air and water purification, and
decontamination); (3) consequence management tools; (4) advanced medical
diagnostics for the most virulent pathogens and their molecular
mechanisms; (5) pre- and post- exposure medical
countermeasures; and (6) pathogen genomic sequencing. The program
collaborates with pharmaceutical, biotechnology, government, and academic
centers of excellence. The program also is closely coordinated with the
Defense Threat Reduction Agency, the Food and Drug Administration, the
Centers for Disease Control and Prevention, the Department of Energy
(DOE), and the intelligence
community.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
DOD terrorism consequence management support to lead federal agency and
response assets
DOD Joint Task Force for Civil Plans and carries out military assistance
to civil authorities for Support consequence management of WMD incidents.
It supports the lead
federal agency, establishes command and control of designated DOD forces,
and provides military assistance to civil authorities to save lives,
prevent human suffering, and provide temporary critical life support. It
consists of a headquarters element with an operational focus, but has no
assigned forces. The Joint Task Force for Civil Support could deploy
overseas 60 dedicated personnel, who are located at Fort Monroe, Va.
U. S. Army Chemical- Biological Rapid Coordinates and integrates DOD*s
technical assistance for the detection, Response Team neutralization,
containment, dismantlement, and disposal of weapons of
mass destruction containing chemical, biological, or related materials.
Assists first responders in dealing with consequence management.
Operational control is exercised by the (1) supported commander, (2) Joint
Special Operations Task Force, (3) Joint Task Force for Civil Support, or
(4) Response Task Force. The Chemical- Biological Rapid Response Team
could deploy overseas 14 dedicated personnel. They are located at Aberdeen
Proving Grounds, Md.
Defense Threat Reduction Defense Nuclear Advisory Provides unique nuclear-
related technical assistance to the Response Agency Team Task Force or the
lead federal agency. Teams consist of health physicists, radiation
physicians, legal advisors, and other related
professionals. The team can deploy within 4 hours. Defense Threat
Reduction Consequence Management
Assists other DOD organizations in matters involving weapons of mass
Agency Advisory Team destruction and radiological accidents and incidents.
The agency
maintains a deployable Consequence Management Advisory Team that provides
technical, consequence management planning, weapons effects modeling,
general counsel, public affairs, and health physics expertise to augment
commanders* staffs. The team also has a reachback capability to more
robust technical resources within the agency. The team is a formal part of
the Joint Forces Command Joint Technical
Augmentation Cell for continental United States consequence management
response. It also augments the Joint task Force- Civil Support for U. S.-
based response. Because team members are assigned additional full- time
duties within the Defense Threat Reduction Agency, no dedicated manpower
is associated with this team.
U. S. Air Force Radiological Assessment A rapidly deployable team with the
personnel and equipment necessary Team to respond to accidents or
incidents involving radioactive materials. The team can provide in- depth
technical assistance in identifying the immediate health risks associated
with radiological threats. The team is located at Brooks Air Force Base,
Tex., and could deploy within 72 hours.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
U. S. Army 52 nd Ordnance Group Provides military explosive ordnance
disposal/ bomb squad units to (Explosive Ordnance defeat or mitigate the
hazards from conventional, nuclear, or chemical Disposal) military
munitions and weapons of mass destruction. Three Explosive Ordnance
Disposal companies have unique counter booby trap equipment and are
trained to operate specialized equipment provided by the Department of
Energy (DOE) for diagnostics and rendersafe/
mitigation of a nuclear device. The 52 nd Ordnance Group*s three companies
could be deployed overseas. They are located in San Diego, Calif.; San
Antonio, Tex.; and at Fort Belvoir, Va.
U. S. Army Technical Escort Unit Provides worldwide, no- notice capability
to provide advice, detection, field sampling, field verification,
assessment, monitoring, render- safe, decontamination, recovery,
packaging, transportation, and escort of weaponized and non- weaponized
chemical and biological materials, devices, or hazards. The Technical
Escort Unit has approximately 190
military and civilian personnel that could be deployed overseas. They are
located at Aberdeen Proving Grounds, Md.; Fort Belvoir, Va.; Pine Bluff
Arsenal, Ark.; and Dugway Proving Grounds, Utah. U. S. Army Edgewood
Chemical and Provides on- site laboratory capability to analyze chemical
safety
Biological Forensic Analytical materials, foreign chemical warfare agents,
and other hazardous Center Modular On- site
industrial chemicals. The laboratory consists of a series of transportable
Laboratory
modules that contain analytical instruments and their own electrical
generators. Five personnel accompany the laboratory, including chemists
and sampling technicians. The on- site laboratory can be deployed within 4
hours. U. S. Army U. S. Army Medical Research
Provides the primary source of medical information dealing with the
Institute of Chemical Defense, management of chemical warfare agent
casualties for the federal Medical Chemical Biological
government. The team assists the WMD incident commander by Advisory Team
identifying the medical implications to military and/ or civilian
operations and advising on the initial and long- term management of
chemical casualties at the incident site. The team also supervises the
collection of
biological samples (bodily fluids) for subsequent verification of chemical
agent exposure that can be used to facilitate confirmation, diagnosis, and
treatment.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
U. S. Army U. S. Army Medical Research Conducts research to develop
strategies, products, procedures, and Institute of Infectious
training programs for medical defense against biological warfare threats
Diseases
and infectious diseases. Also, it develops vaccines, drugs, diagnostic
tests, and medical management procedures to protect military personnel
against biological attack or endemic infectious diseases. It provides
medical and scientific experts and technical guidance to commanders on the
prevention and treatment of hazardous diseases and management of
biological casualties. It serves as DOD*s reference center for the
identification of biological agents. Primary capabilities are technical
expertise, extensive laboratory facilities, and the Aeromedical Isolation
Team, which is a rapid response unit that can deploy to any area of the
world to transport and provide patient care under high containment of
contagious and dangerous diseases. The team has a limited capability,
equipment, and staff and is not geared to handle mass casualties. No
personnel are assigned directly to the Aeromedical Isolation Team. When
deployed, the team would consist of two elements, each capable of
transporting only one patient. The institute is located at Fort Detrick,
Md. U. S. Army Special Medical Augmentation Provides technical advice in
the detection, neutralization, and
Response Team Nuclear/ containment of chemical, biological, or
radiological hazardous materials Biological/ Chemical
in a terrorist event. The Special Medical Augmentation Response Team
Nuclear/ Biological/ Chemical has six teams, located at various sites,
which could be deployed overseas. Six members per team have these
collateral duties.
U. S. Army Special Medical Augmentation Provides a rapid response
evacuation unit to any area of the world to Response Team Aero transport
and provide patient care under conditions of biological Medical Isolation
containment to service members or U. S. civilians exposed to certain
contagious and highly dangerous diseases. The Special Medical Augmentation
Response Team Aero- Medical Isolation includes approximately 20 personnel
who have this collateral duty that could be deployed overseas. They are
stationed at Fort Detrick, Md.
U. S. Army Radiological Advisory Medical Assists and furnishes
radiological health hazard guidance to the on Team scene commander, U. S.
Army Response Task Force (discussed below),
or local medical authorities at an incident site and the installation
medical authority. The Radiological Advisory Medical Team has 8- 10
personnel who have these collateral duties and could be deployed overseas.
They are located at Walter Reed Army Medical Center in Washington, D. C.
U. S. Army and U. S. Navy Radiological Control Teams Provides radiological
monitoring support and advice to the U. S. Army Response Task Force
(discussed above). The teams are capable of
deploying within several hours. The teams are located at Fort Monmouth, N.
J., and Norfolk, Va.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
U. S. Marine Corps Chemical- Biological Incident A highly trained, rapid
response force that is capable of providing Response Force consequence
management for terrorist- initiated chemical and biological attacks to
mitigate the effects of multiple/ mass casualty incidents. It also
provides force protection in the event of a terrorist incident,
domestically
or overseas. Capabilities include threat identification, casualty
extraction, personnel decontamination, and medical triage/ treatment/
stabilization. The force also maintains an information *reach- back*
capability to chemical/ biological subject matter and disaster response
experts for consultation. The Marine Corps Systems Command at Quantico,
Va., manages the program. The force is a national asset that operationally
falls under the Joint Forces Command. The Chemical- Biological Incident
Response Force has 373 dedicated personnel who could be deployed overseas.
They are located at Indian Head, Md. U. S. Navy U. S. Navy Environmental
and
Provides doctors, industrial hygienists, environmental health officers,
Preventive Medical Unit,
microbiologists, preventive medical technicians, and other related
Chemical, Biological, professional who could be deployed in response to an
incident. Teams Radiological, Environmental
remain on alert for a rapid response and can advise the Chemical/ Defense
Response Team
Biological Rapid Response Team and local public health authorities and
augment other Chemical/ Biological Rapid Response Team medical assets. U.
S. Navy U. S. Navy Medical Research
Provides a transportable biological field laboratory that is capable of
Institute rapid identification of biological warfare agent. With a team of
two
operators, the laboratory can be ready to deploy within 4 hours. Assistant
Secretary of
Response Teams Provide short- duration medical augmentation to federal and
defense Defense (Health Affairs) agencies responding to disaster,
humanitarian, and emergency incidents. Response Teams are composed of
medical experts who can be deployed to assist in emerging medical
situations. Such situations include medical operational threat assessment
and risk communication; surveillance; investigation; intervention and
control of occupational
environmental illnesses, injuries, and disease; advance diagnostic
testing; and health hazard assessments and surveillance detection and
identification of chemical, biological, radiological, or environmental
agents. Management oversight is provided by the Assistant Secretary of
Defense (Health Affairs), each military service*s Office of the Surgeon
General, and military installation commanders, who act as host to tenant
commands.
(Continued From Previous Page)
Department of Defense office or military service Program or activity
Description of program or activity
Military assistance to other countries for international special security
events
Regional military International special security
Provides a military response, if needed, to a terrorist incident overseas
commanders events involving weapons of mass destruction or to evacuate
Americans during
an international special security event, such as a presidential summit
meeting or the Olympic Games. For example, DOD representatives participate
in the Olympic Security Advisory Team at the U. S. Embassy in Athens to
coordinate federal assistance to the Government of Greece in preparation
for the 2004 Olympic Summer games in Athens. The team provides advice to
the Greek Ministry of Public Order on security issues at the strategic
level and advice on technical support issues at the
operational level. Issues include intelligence, planning, training and
exercises, technology, command and control coordination, and Olympic venue
security. Source: DOD.
Notes: Although DOD*s terrorism consequence management response assets are
geared primarily to respond to a domestic terrorist incident if requested
by the Department of Justice through the FBI or by FEMA, these same assets
could be deployed overseas to respond to an international terrorist
incident if requested by the Department of State.
For a detailed description of military service- specific categories of
equipment, activities financed, program management, planned activities,
funding, and personnel levels, see Office of the Secretary of Defense,
Congressional Report: DOD Combating Terrorism Activities, January 14,
2000, and Combating Terrorism Activities, Fiscal Year 2003 Budget
Estimates, March 2002.
a The response to a terrorist incident involves managing the immediate
crisis as well as its consequences. *Crisis management* involves efforts
to prevent and deter a terrorist attack, protect public health and safety,
arrest terrorists, and gather evidence for criminal prosecution.
*Consequences management* involves efforts to provide medical treatment
and emergency services, evacuate people from dangerous areas, and restore
government services.
Matrix of Department of Homeland Security Programs and Activities to
Combat Terrorism
Appendi I I x Overseas The Department of Homeland Security is primarily
focused on combating terrorism within the United States. However, for
selected overseas activities, it supports the Department of State, which
is the lead federal agency for coordinating U. S. government efforts to
combat terrorism overseas. Within the department, multiple bureaus,
offices, and agencies manage various programs and activities to combat
terrorism abroad. Department of Homeland Security also works with other U.
S. government agencies, foreign government organizations and agencies, and
international organizations in carrying out these programs and activities.
Some of these activities directed at combating terrorism overseas (e. g.,
coordination) may actually occur in the United States.
Appendix II identifies and describes the following: the strategic
framework of Homeland Security*s efforts to combat
terrorism overseas; Homeland Security*s programs and activities to
detect and prevent
terrorism overseas; Homeland Security*s programs and activities to
disrupt and destroy
terrorist organizations overseas; and Homeland Security*s programs and
activities to respond to terrorist
incidents overseas.
Tabl e 11: Department of Homeland Security Programs and Activities to
Combat Terrorism Overseas Department of Homeland Security office or bureau
Program or activity Description of program or activity STRATEGIC FRAMEWORK
Special agency official or office in charge of counterterrorism
Secretary of Homeland Serves as head of the
Responsible for preventing terrorist attacks within the United States and
Security department reducing vulnerability to those attacks. The Secretary
also is responsible for minimizing damage and assisting in the recovery
from terrorist attacks
that occur within the United States.
(Continued From Previous Page)
Department of Homeland Security office or bureau Program or activity
Description of program or activity Agency plans or strategies to combat
terrorism
Department of Homeland
National Strategy for
The strategy addresses the threat of terrorism within the United States,
but Security Homeland Security does mention various initiatives related to
combating terrorism overseas.
(September 2002) These initiatives include (1) negotiating new
international standards for travel documents, (2) improving security for
international shipping containers, (3) enhancing cooperation with foreign
law enforcement agencies, (4) expanding specialized training and
assistance to allies, and (5) increasing the security of transnational
infrastructure. The strategy stresses the importance of expanding
international cooperation in research
and development and enhancing the coordination of incident response.
Finally, the strategy recommends reviewing current international treaties
and law to determine where improvements could be made.
DETECT AND PREVENT TERRORISM ABROAD Critical infrastructure protection
Information Analysis and Implementation of the Helps implement Department
of Homeland Security critical infrastructure Infrastructure Protection
Homeland Security Act of
protection responsibilities in (1) developing a comprehensive national
plan Directorate
2002 for securing the key resources and critical infrastructure of the
United States; (2) recommending measures to protect the key resources and
critical infrastructure of the United States in coordination with other
federal agencies and in cooperation with state and local government
agencies and authorities, the private sector, and other entities; and (3)
disseminating, as appropriate, information analyzed by the department both
within the
department and to other federal agencies, state and local government
agencies, and private sector entities to assist in the deterrence,
prevention, preemption of, or response to terrorist attacks.
The Homeland Security Act of 2002 created the directorate within the new
department and transferred to it the functions, personnel, assets, and
liabilities of several existing organizations with critical infrastructure
protection responsibilities, including the National Infrastructure
Protection Center (other than the Computer Investigations and Operations
Section)
and the Critical Infrastructure Assurance Office.
Law enforcement training (with foreign governments)
Federal Law Enforcement Glynn County (* Glynco*),
Serves as an interagency law enforcement training organization for federal
Training Center Georgia, facility law enforcement agencies. The center
provides facilities, equipment, and
support services for conducting training of federal law enforcement
personnel. It also has a reimbursable program to accommodate the training
requirements of various federal agencies, state, local, and foreign law
enforcement personnel on a space- available basis. As a result of
increased domestic interest in training, it does not have the capacity to
train foreign
nationals at its Glynn County (* Glynco*), Georgia, facility.
(Continued From Previous Page)
Department of Homeland Security office or bureau Program or activity
Description of program or activity
Federal Law Enforcement International Programs
Under agreement with the Department of State, the Federal Law Training
Center Division Enforcement Training Center*s (FLETC) International
Programs Division provides specialized training focused in three areas:
(1) the U. S. government*s Law and Democracy Program, with a focus on
white- collar crime, illegal narcotics, and building democratic
institutions; (2) Antiterrorism Assistance program, with a focus on
combating international terrorism; and (3) International Law Enforcement
Academies (ILEA), with a focus on law enforcement skills.
Recently, the division*s focus has been on ILEA training, including
leading assessments to identify training needed by participating countries
and teaching the rule of law. The division also has focused on bilateral
programs with specific countries. FLETC instructors teach needed skills/
techniques in, for example, money laundering and investigations.
Presently, FLETC is finalizing a course on the Financing of Terrorism,
which will soon be offered to foreign nationals. Since its inception in
1994, FLETC has helped train 1, 900 law enforcement officials representing
34 countries.
Bureau of Customs and Nunn- Lugar Cooperative
Provides basic and specialized border control training and equipment to
Border Protection Threat Reduction Program customs and law enforcement
agencies with a focus on Russia, Belarus, Kazakhstan, and the Ukraine.
This program is funded through the Department of Defense.
Bureau of Customs and Project Amber Provides basic border control training
and advanced courses on Border Protection cross- country tracking,
targeting of high- risk shipments, and proper
utilization of Department of State- provided x- ray vans to detect nuclear
materials.
Bureau of Customs and Service Counter- proliferation
Cooperative effort with the Department of Defense that provides border
Border Protection Program control training and equipment, including large
consignments of high- and
low- tech interdiction and detection tools and advanced investigative
techniques.
Bureau of Customs and Export Control/ Border Provides on- site technical
assistance by 13 customs advisors in 9 offices Border Protection Security
Program who cover 25 countries. Focuses on delivery of training, technical
assistance, and equipment; coordinates the delivery of assistance from
other federal agencies; and fosters host country interagency cooperation
and cross- border and regional cooperation.
Border Security Bureau of Immigration and Customs Air and Marine
Responsible for protecting the nation*s borders and the American people
Customs Enforcement Interdiction from smuggling of narcotics and other
contraband terrorist activity with an integrated air and marine
interdiction force.
(Continued From Previous Page)
Department of Homeland Security office or bureau Program or activity
Description of program or activity
Bureau of Customs and Operation Shield America Cooperative initiative with
American companies to help prevent Border Protection international
terrorist groups from obtaining sensitive U. S. technology, weapons, and
equipment. Operating internationally, customs attache
offices have begun reaching out to foreign law enforcement counterparts to
help raise awareness among businesses in their countries. Operation Shield
America tracks inquiries and orders for technology to be shipped
outside the United States; ensures export specialists know export controls
and follow appropriate screening and licensing; ensures employees
understand certain technologies are restricted from export; and
investigates suspicious customers attempting to obtain sensitive
technologies.
Bureau of Customs and Advanced Passenger
Provides mandatory information on arriving airline passengers that is
Border Protection Information System submitted to the immigration
inspectors for review. Failure to transmit
arriving passenger data could result in penalties ranging from monetary
fines for the pilot up to the revocation of landing rights for the
airline. Bureau of Customs and
Automated Manifest System Provides extensive data to customs inspectors on
the shipping industry, its Border Protection patterns, and all who
participate. Customs officials report that they receive information on 98
percent of all containers entering the United States.
Bureau of Customs and Trade Partnership Against
Cooperative agreement to work with the trade community to improve border
Border Protection Terrorism security. Based on a model designed to prevent
smuggling of illegal drugs,
the initiative was proposed to improve security along the entire supply
chain, from the factory floor, to foreign vendors, to U. S. ports of
entry.
Bureau of Customs and Smart Border Declaration Cooperative agreement
between the United States and Canada whereby Border Protection customs
officials in both countries target and pre- screen cargo headed to
each country. The agreement focuses on four areas: (1) secure flow of
people, (2) goods, (3) investments in technology to expedite trade and
minimize threats, and (4) coordination and information sharing to defend
common borders. A similar agreement is being negotiated between the
United States and Mexico. Bureau of Customs and
NEXUS Program Allows low- risk Canadian and U. S. citizens to travel
across the U. S. Canadian Border Protection border with minimal customs or
immigration processing by either
country. This is a pilot program. Bureau of Customs and
Container Security Initiative Protects the use of ocean- going sea
containers in international trade. Border Protection Initially the focus
will be on the largest ports of entry and focus on prescreening of cargo
prior to shipment to the United States. The initiative is expected to (1)
establish criteria for identifying high- risk containers, (2) prescreen
containers before they are shipped to the United States, (3) use
technology to pre- screen high- risk containers, and (4) develop and use
smart/ secure containers.
U. S. Coast Guard Maritime border controls The U. S. Coast Guard
participates in efforts to detect terrorists and their between ports of
entry materials outside maritime ports of entry. The U. S. Coast Guard has
a
National Vessel Movement Center that identifies and tracks *high interest*
vessels. Decisions on appropriate actions to be taken with respect to such
vessels, such as whether to board, escort, or deny entry are based upon
established criteria and procedures.
(Continued From Previous Page)
Department of Homeland Security office or bureau Program or activity
Description of program or activity
U. S. Border Patrol Land border controls The U. S. Border Patrol has the
mission to detect and apprehend illegal between ports of entry aliens and
smugglers between U. S. ports of entry. The Border Patrol is
responsible for patrolling about 6,000 miles of Mexican and Canadian
international land borders and 2, 000 miles of coastal waters surrounding
the Florida Peninsula and the island of Puerto Rico. Agents patrol these
borders utilizing various vehicles, including aircraft, marine vessels,
allterrain vehicles, and horse units.
DISRUPT AND DESTROY TERRORIST ORGANIZATIONS ABROAD Law enforcement
Investigations
Bureau of Immigration and Customs Attaches Work closely with host
government customs services and other law Customs Enforcement enforcement
agencies to coordinate law enforcement actions domestically
and internationally against terrorists cells and networks. Bureau of
Immigration and
Operation Global Shield Immigration Control Officers deployed at transit
points around the world to Customs Enforcement serve as the front line of
defense against those individuals who might well cause harm to the
security of the United States. The control officers work closely with host
country government agencies to gather law enforcement
intelligence and information on migrant smuggling and trafficking
organizations. Bureau of Immigration and
Operation Oasis Operation is directed at identifying, detecting, and
halting the illegal Customs Enforcement exportation of unreported currency
to terrorist activity.
Bureau of Immigration and Customs investigations Responsible for
investigating a range of issues including terrorist financing, Customs
Enforcement export enforcement, money laundering, smuggling, fraud, and
cyber crimes.
U. S. Secret Service Investigates terrorists* Investigates terrorists*
threats against officials under its protective mission threats overseas,
including the President and Vice President.
Identifying, freezing, and seizing terrorist organizations* assets
Bureau of Immigration and Operation Green Quest Multi- agency financial
enforcement initiative intended to augment existing Customs Enforcement
counter- terrorist efforts by bringing the full scope of the government's
financial expertise to bear against systems, individuals, and
organizations that serve as sources of terrorist funding. Operation Green
Quest is aimed at identifying, freezing, and seizing the accounts and
assets of terrorist organizations that pose a threat to the United States
and other nations.
U. S. Secret Service Investigates Responsible for enforcing laws related
to securities of the United States financial crimes and financial crimes.
Its efforts to combat international terrorism rest
primarily on the investigation of counterfeiting of currency and
securities.
(Continued From Previous Page)
Department of Homeland Security office or bureau Program or activity
Description of program or activity Military Operations
U. S. Coast Guard Maritime interception Conducts maritime interception
operations. In its role as a military service, operations the U. S. Coast
Guard supports regional military commands, which have requested and
received U. S. Coast Guard cutters to conduct such operations. To
accomplish its missions to combat terrorism, both domestic and overseas,
the U. S. Coast Guard is developing a U. S. Coast Guard Maritime Strategy
for Homeland Security. This strategy puts a premium on identifying and
intercepting threats well before they reach U. S. shores by conducting
layered, multi- agency, maritime security operations that include
surveillance and reconnaissance, tracking, and interception.
Protection of Americans abroad
U. S. Secret Service Protection of senior officials Responsible for the
security of the President and Vice President, as well as overseas other
designated individuals under its protective mission overseas.
RESPOND TO TERRORIST INCIDENTS ABROAD Crisis and consequence management
domestic and abroad a
Department of Homeland Emergency Response Includes a number of response
teams with unique capabilities that are Security Teams primarily used in a
domestic capacity, but could respond overseas to a
terrorist incident. Source: Department of Homeland Security.
a The response to a terrorist incident involves managing the immediate
crisis as well as its consequences. *Crisis management* involves efforts
to prevent and deter a terrorist attack, protect public health and safety,
arrest terrorists, and gather evidence for criminal prosecution.
*Consequences management* involves efforts to provide medical treatment
and emergency services, evacuate people from dangerous areas, and restore
government services.
Matrix of Department of Justice Programs and
Appendi I I I x Activities to Combat Terrorism Overseas The Department of
Justice supports the Department of State, which is the lead federal agency
for coordinating U. S. government efforts to combat terrorism overseas.
Within the department, multiple bureaus and offices manage various
programs and activities to combat terrorism abroad. The Department of
Justice also works with other U. S. government agencies, foreign
government law enforcement organizations and agencies, and multinational
organizations in carrying out these programs and activities.
For many of these activities, there may be no clear boundary between
combating terrorism domestically and overseas. Some of these activities
directed at combating terrorism overseas (e. g., coordination) may
actually
occur in the United States. Appendix III identifies and describes the
following: the strategic framework of Justice*s efforts to combat
terrorism
overseas; Justice*s programs and activities to detect and prevent
terrorism
overseas; Justice*s programs and activities to disrupt and destroy
terrorist
organizations overseas; and Justice*s programs and activities to respond
to terrorist incidents
overseas.
Tabl e 12: Department of Justice Programs and Activities to Combat
Terrorism Overseas Department of Justice office or bureau Program or
activity Description of program or activity STRATEGIC FRAMEWORK Agency
head*s role in counterterrorism
Justice, Attorney General Head of the Department of Represents the United
States in legal matters related to terrorism and Justice and chief law
gives advice and opinions to the President and to the heads of the
enforcement officer of the
executive departments of the government. Also, the Attorney General,
federal government
through the Department of Justice, has the lead federal role for crisis
management in a domestic terrorist incident and a support role to the
Department of State during a terrorist incident overseas.
Special agency official or office in charge of counterterrorism
(Continued From Previous Page)
Department of Justice office or bureau Program or activity Description of
program or activity
Justice, Deputy Assistant Criminal Division,
This section is responsible for the design, implementation, and support
Attorney General Counterterrorism Section of law enforcement efforts to
combat international terrorism, including legislative initiatives and
policies. This includes investigating and prosecuting suspected terrorists
for acts of terrorism against U. S. interests worldwide. Justice, U. S.
Attorney District Anti- Terrorism Task Forces Integrates and coordinates
the anti- terrorism activities in each of the Offices judicial districts
within the United States. The task forces are comprised
of federal prosecutors from the U. S. Attorneys Office, members of federal
law enforcement agencies, as well as the primary state and local
enforcement officials in each district. They serve as part of a national
network that coordinates closely with the Joint Terrorism Task Forces in
the collection, analysis, and dissemination of information. The
AntiTerrorism Task Forces also develop the U. S. investigative and
prosecution strategy throughout the country.
Justice, Deputy Attorney National Security Coordinates policy, resource
allocation, operations, long- term planning, General Coordination Council
and information sharing related to national security efforts to combat
terrorism. Membership includes the Deputy Attorney General, who
heads up the council, Director of the Federal Bureau of Investigation
(FBI), and other department officials.
Agency plans or strategies to combat terrorism
Justice, U. S. Attorney General Five- Year Interagency
Serves as a baseline strategy for coordination of national policy and
Counterterrorism and
operational capabilities to combat terrorism in the United States and
Technology Crime Plan (Sept. against American interests overseas. 1999)
Justice, U. S. Attorney General Strategic Plan for Fiscal Years
Provides a multi- year plan for carrying out the department*s mission. The
2001- 2006 (Sept. 2000) plan is oriented toward achieving the vision of
securing equal justice for all, enhancing respect for the rule of law, and
making America a safer and less violent nation. The plan includes goals,
objectives, and strategies for the next 5 years. It also describes key
interagency
programs and summarizes the external factors that may affect goal
achievement. Justice, U. S. Attorney General National Money Laundering
The strategy includes, for the first time, a comprehensive national plan
to
Strategy, jointly issued by the attack the financing of terrorist groups.
Goal 2 of the Strategy focuses Attorney General and the
law enforcement and regulatory resources on identifying terrorist
Secretary of the Treasury in
financing networks by (1) implementing a multi- pronged operational July
2002 strategy to combat terrorist financing, (2) identifying and targeting
the methods used by terrorists financiers, and (3) improving international
efforts to dismantle terrorist financial networks. The strategy is an
interagency plan, which draws on the expertise and resources of the
Departments of Justice and the Treasury, and other federal agencies as
well as foreign partners and the private sector. FBI Strategic Plan 1998-
2003 Concentrates on specific 5- year strategic goals and key functional
(May 1998) strategies in areas related to operations, intelligence,
information technology, applied science and engineering, management, and
state and local services. The plan guides the direction, priorities, and
resources of the FBI. The plan currently is under revision to reflect the
FBI*s recent reorganization, done in large part to provide additional
resources to combat terrorism.
(Continued From Previous Page)
Department of Justice office or bureau Program or activity Description of
program or activity DETECT AND PREVENT TERRORISM ABROAD Law enforcement
training (with foreign governments)
FBI International Law Trains law enforcement officers from Central Europe
and the newly Enforcement Academy
independent states of the former Soviet Union. The academy provides (ILEA)
specialized short- term courses and an 8- week professional development
Budapest, Hungary
program focusing on law enforcement issues, rule of law, investigation
process, leadership, and ethics. It also serves as a cooperative effort
between the Departments of State, Justice, and the Treasury. FBI, Training
Division International Training and
Conducts worldwide in- country training through the International Training
Assistance Unit and Assistance Unit for foreign law enforcement entities.
The unit responds to training requests from the legal attaches for foreign
police agencies. The training emphasizes crisis management and major case
management as well as the investigation of transnational organized
crime groups. The training also enhances the FBI*s international
investigative mission by creating *cop- to- cop* relationships with
foreign law enforcement agencies. Justice, Criminal Division,
International Criminal Provides training and development assistance to
police organizations International Training and Investigative Training
worldwide. The training also helps foreign governments develop the
Development Programs Assistance Program
capacity to provide modern professional law enforcement services based on
democratic principles and respect for human rights. Activities include the
development of police forces in the context of international peacekeeping
operations and enhancing the capabilities of existing police organizations
in emerging democracies.
Justice, Criminal Division, Office of Overseas
Provides justice- sector institution building assistance, including
training International Training and Prosecutorial Development of foreign
judges and prosecutors, in coordination with various Development Programs
Assistance and Training government agencies and U. S. embassies. The
training is intended to strengthen the legislative and regulatory criminal
justice infrastructure within the host country, and enhance the capacity
of the country to
investigate and prosecute crime more effectively, consistent with the rule
of law.
Bureau of Alcohol, Tobacco, International Programs
Trains foreign nationals in conjunction with the Department of State*s
Firearms and Explosives Branch training Bureau of International Narcotics
and Law Enforcement Affairs and/ or
Bureau of Diplomatic Security*s Antiterrorism Assistance program. Programs
include: International Post Blast Investigation, International Firearms
and Explosives Identification, Tax and Revenue Training, and Explosives
Detection Canine Training. The branch also serves as technical and legal
experts with the Department of State on the negotiation of several
international instruments.
The ATF currently is establishing a Center for Explosive Research and
Training in Virginia. The ATF anticipates that training supplied there for
domestic and international law enforcement officials will become part of
the international fight against terrorism and violent crime.
(Continued From Previous Page)
Department of Justice office or bureau Program or activity Description of
program or activity Border security (including visa processing issues)
Justice National Security Entry- Exit Tracks up to 200, 000 foreign
visitors each year and stops suspected Registration System terrorists
prior to entry into the United States. The system verifies
visitor*s activities and whereabouts while in the country. Future plans
will include efforts to track up to 35 million foreign visitors entering
the United States annually. The system has three components that include
(1) fingerprinting and photographing at the border, (2) periodic
registration of aliens who stay in the United States 30 days or more, and
(3) exit controls that will help the Immigration and Naturalization
Service (INS) to remove those aliens who overstay their visas.
Justice Foreign Terrorist Tracking Coordinates a multi- agency effort to
identify, locate, and deny entry to, or Task Force remove terrorists and
their supporters from, the United States. The task
force includes a number of agencies, including the FBI, INS, and the U. S.
Customs Service.
DISRUPT AND DESTROY TERRORIST ORGANIZATIONS ABROAD Law enforcement
cooperation
FBI, Executive Assistant Office of Law Enforcement
Establishes relationships and enhances information sharing with state
Director for Law Enforcement
Coordination and local police professionals. In addition, helps the FBI
tap into the Services
strengths and capabilities of its partners. FBI, Counterterrorism
National Joint Terrorism Task Serves as the national coordinating
mechanism for sharing information Division Force on suspected terrorists,
including those of foreign origin. Also, it
complements the local Joint Terrorism Task Forces to improve collaboration
and information sharing with other federal, state, and local agencies. The
task force operates out of the FBI*s Strategic Information Operation
Center in Washington, D. C.
FBI, Field Offices Joint Terrorism Task Forces Serves as a coordinating
mechanism that combines the international and national investigative
resources of the federal government with the street- level expertise of
local law enforcement agencies. This *cop- tocop* relationship enables law
enforcement agencies to share information on suspected terrorists,
including those of foreign origin. One of the most robust Joint Terrorism
Task Forces is in Washington, D. C., which has representatives from 15
federal agencies. Throughout its field offices, the FBI has 56 task forces
in place.
Justice, Criminal Division Terrorist Financing Task Force Coordinates the
terrorist financing enforcement efforts within Justice*s Criminal
Division. The task force works with prosecutors around the country as well
as with the FBI*s Foreign Terrorist Tracking Task Force and Terrorist
Financing Operation Section to disrupt groups and individuals representing
terrorist threats.
FBI, Executive Assistant International Operations Promotes relations with
both foreign and domestic law enforcement Director for Law Enforcement
agencies and security services and facilitates investigative activities.
Services
Also provides managerial support of the Legal Attache Program.
(Continued From Previous Page)
Department of Justice office or bureau Program or activity Description of
program or activity
FBI, International Operations Legal Attache Program Provides Senior
Special Agents stationed at U. S. missions overseas who work closely with
law enforcement agencies of host countries on common crime problems. They
also play a large role in facilitating the international battle against
terrorism by enlisting the cooperation of foreign law enforcement,
enabling the arrest of U. S. terrorist suspects, and solving crimes
against U. S. citizens.
Legal Attaches also assist in coordinating investigations with federal law
enforcement overseas by disseminating information to officials of key U.
S. federal agencies stationed abroad. They routinely share information on
investigations with liaisons serving with Department of Defense (DOD)
components overseas. The FBI currently operates 44 legal attache offices
worldwide.
Justice, Criminal Division, Negotiates bilateral and
In conjunction with the Department of State, the Office of International
Office of International Affairs multilateral agreements Affairs negotiates
extradition and mutual legal assistance treaties with
foreign governments. As of July 2002, the United States had bilateral
Mutual Legal Assistance Treaties covering 46 jurisdictions and over a 120
extradition treaties in force with foreign jurisdictions.
Justice U. S. National Central Bureau Represents the United States as a
member of INTERPOL. It facilitates of the International Criminal
international law enforcement cooperation by transmitting law Police
Organization
enforcement- related information between the National Central Bureaus
(INTERPOL)
of INTERPOL, member countries, and U. S. law enforcement agencies. It also
coordinates information relevant to international investigations and
identifies patterns and trends in criminal activities.
Bureau of Alcohol, Tobacco, Law enforcement cooperation Works directly and
in cooperation with other agencies to enforce federal Firearms and
Explosives laws and regulations related to firearms, explosives, and fire-
related
violent crimes.
Law enforcement investigations
FBI, Counterterrorism Lead agency in charge of
As principal investigative agency of the federal government, it serves as
Division investigating international
lead agency for international counterterrorism investigations. The FBI
terrorist incidents
has extraterritorial jurisdiction to expand its investigative authority
outside U. S. borders. Its investigations include incidents involving
bombings, hostage taking, homicides of U. S. citizens overseas, sabotage,
and extortion by threatening the use of weapons of mass destruction.
Justice Attorney General Guidelines Establishes prediction levels and
limits on international counterterrorism for FBI Foreign Intelligence
investigations involving U. S. persons or foreign nationals overseas.
Collection and Foreign Counter- intelligence Investigations
FBI National Crime Information Provides the names and identifying
information of terrorist suspects Center Database under domestic and
international investigations. The data is accessible to state and local
law enforcement officers.
FBI Integrated Automated Provides the capability to search and match
fingerprints of suspected Fingerprint
terrorists against millions of fingerprints contained in the criminal
Identification System fingerprint repository.
(Continued From Previous Page)
Department of Justice office or bureau Program or activity Description of
program or activity
FBI National Center for the Provides investigative and operational support
functions to federal, state, Analysis of Violent Crime local, and foreign
law enforcement agencies investigating unusual or repetitive violent
crimes. The center also can provide support through expertise and
consultation for non- violent matters related to national security.
Justice, Criminal Division, Mutual legal assistance
Provides for the exchange of evidence between parties to a treaty, often
Office of International Affairs treaties in a form that is admissible at
trial. The treaties enable the Department of
Justice to obtain foreign financial records and testimonial statements of
foreign witnesses. In addition, they allow for the search and seizure of
foreign evidence, and, in some cases, the right to freeze and recover the
forfeiture of proceeds.
Justice, Criminal Division, Letters rogatory Letters rogatory are requests
that come from judicial officials in one Office of International Affairs
country to judicial officials in another country seeking assistance with
an investigation. The letters usually include background on the nature and
targets of the criminal investigation, relevant facts about the case or
investigation, type of assistance needed, statutes alleged to have been
violated, and a promise of reciprocity.
Bureau of Alcohol, Tobacco, International Programs
Combats the illegal movement of firearms, explosives, and ammunition
Firearms and Explosives Branch to prevent such arms from being used to
commit acts of terrorism,
among other international crime. The responsibilities of the International
Programs Branch include: (1) supervising and coordinating the utilization
of ATF Country Attaches in support of International Trafficking in Arms
Investigations, (2) developing international firearms programs and policy,
(3) performing/ conducting international firearms trafficking assessments,
and (4) and performing/ conducting firearms trafficking studies
concerning foreign countries. According to the ATF, since September 11,
2001, its International Programs Branch has been inundated with requests
for assistance from numerous foreign law enforcement agencies. Most of
these requests have been for assistance in the area of explosives
investigations, explosives tracing, and post- blast evidence recovery.
Law enforcement renditions and extraditions Justice, Criminal Division,
Extradition treaties Enables parties to a treaty to obtain custody of
accused terrorists. The Office of International Affairs agreement provides
for the request of one party to the treaty to the other
party for the arrest and surrender of an individual accused or convicted
of a crime in a country making the request. Modern extradition treaties
contain a *dual criminality* clause, which makes any offense considered
a crime in both countries extraditable. FBI Renditions Escort agents
apprehend and obtain custody of suspected terrorists
without the formalities of an extradition treaty. This occurs when the
asylum nation agrees to render the individual to the United States for
trial or deports the individual out of the country. Justice, U. S.
Marshals
Extraditions- prisoner custody Escort agents apprehend and transport
suspected terrorists to the Service and transportation United States for
prosecution once the extradition proceedings in a
foreign country are complete and the suspected terrorist is ready for
surrender.
(Continued From Previous Page)
Department of Justice office or bureau Program or activity Description of
program or activity Law enforcement arrests and prosecutions
Justice, Criminal Division, Prosecutions Prosecutes suspected terrorists
for acts of terrorism against U. S. citizens Counterterrorism Section or
interests through the Department of Justice, Criminal Division*s
Terrorism Section.
Intelligence on terrorist groups and threat assessments
FBI, Executive Assistant Counterterrorism Division Centralizes operational
and analytical functions to combat terrorism on Director for
Counterterrorism
three fronts: (1) international terrorism operations both within the
United and Counterintelligence
States and in support of extraterritorial investigations, (2) domestic
terrorism operations, and (3) countermeasures relating to both
international and domestic terrorism. The division enhances the level of
analytical support to the counterterrorism program, increases the
capability to electronically share information and intelligence, and
creates additional field office capacity to respond to terrorist issues.
Includes the National Joint Terrorism Task Force and the *Flying Squads.*
FBI, Counterterrorism *Flying Squads* Enables agents with specific
counterterrorism knowledge to rapidly Division access knowledge and
expertise in the field to ensure it is relayed to FBI
headquarters for analysis. FBI, Counterterrorism
Information Integration Improves interagency terrorism- related
information sharing by facilitating Division Initiative the warehousing of
law enforcement and public safety agencies data in a
single secure database. Also facilitates terrorism information sharing
between the FBI and the law enforcement and public safety communities.
FBI, Counterterrorism Terrorist Financing
The Terrorist Financing Operations Section works jointly with the law
Division Operations Section enforcement and intelligence communities to
identify, investigate, disrupt,
dismantle, and prosecute as appropriate, terrorist- related financial and
fund- raising activities. According to the FBI, the Terrorist Financing
Operations Section brings the bureau*s financial expertise to bear in
identifying terrorist financing methods and movement of money into and out
of the United States in support of terrorist activity. FBI, Executive
Assistant
Counter- intelligence Division Coordinates investigative matters
concerning foreign counterintelligence, Director for Counterterrorism
including activities related to investigations into espionage, overseas
and Counterintelligence
homicide, protection of foreign officials and guests, and nuclear
extortion. The division also works with other government agencies and the
private sector to identify and protect U. S. secrets from being
compromised by foreign agents and spies. FBI, Counterintelligence
Counter- Espionage Section Manages espionage investigations and evaluates
and prioritizes all Division existing espionage cases to ensure effective
allocation of human resources and expertise. FBI, Executive Assistant
Office of Intelligence Serves as a strategic and tactical intelligence and
analytical mechanism Director for Counterterrorism
for pulling information from various sources. Also supports and
Counterintelligence
counterterrorism and counterintelligence programs through strategic and
tactical intelligence initiatives. In addition, the office ensures
intelligence within the law enforcement and intelligence communities in
cases when it is appropriate to do so.
(Continued From Previous Page)
Department of Justice office or bureau Program or activity Description of
program or activity
FBI, Counterterrorism Threat Assessment/
Assesses the potential threats existing in short- and long- term Division
Prevention Unit environments, both domestically and outside the United
States. The unit
also determines the feasibility and credibility of threat information by
comparing intelligence collected by the intelligence community with
investigative information. FBI, Counterterrorism
National Threat Warning Provides threat warning information to the law
enforcement and Division System intelligence communities. The system also
enables the FBI to
communicate threat information directly to U. S. citizens. FBI Terrorism
Watch List Serves as a single integrated listing of suspected terrorists
who are of
interest to FBI investigations. The watch list is accessible to the law
enforcement and intelligence communities. Information is derived from the
Joint Terrorism Task Force investigations, the intelligence community,
DOD, and foreign governments.
FBI, Counterterrorism Publishes annual report on
The annual report, Terrorism in the United States, is published to provide
Division, Counterterrorism
Terrorism in the United States a comprehensive picture of the security
threats that American citizens Threat Assessment and and interests have
encountered in the United States. Warning Unit
FBI, Counterintelligence Awareness of national
Serves as the public voice of the FBI for espionage, counterintelligence,
Division security issues and response counterterrorism, economic
espionage, cyber and physical infrastructure protection, and all national
security issues. It also provides unclassified national security threat
and warning information via e- mail to U. S. corporate physical and
information security directors and executives, law
enforcement, and other government agencies. FBI, Counterterrorism
National Infrastructure Serves as the focal point for interagency efforts
to warn of and respond Division Protection Center to cyber intrusions,
both in the United States and overseas. The center also gathers
information on threats to the infrastructure and provides the
principal means of facilitating the coordination of the federal
government*s response to the incident. The center*s programs have been
established in each of the FBI*s field office divisions.
FBI, Counterterrorism Information Sharing and Increases security for the
nation*s critical infrastructures through a two Division Analysis Center
way sharing of information with the private sector. The center was
established through the National Infrastructure Protection Center to
enhance private sector cooperation and trust and information sharing.
Bureau of Alcohol, Tobacco, National Firearms Tracing
Traces crime guns taken into police custody in the United States as well
Firearms and Explosives Center as U. S.- source firearms recovered in
foreign countries. The center is an effort to curb the flow of illegal
firearms. Bureau of Alcohol, Tobacco,
Transnational Intelligence In response to the terrorist attacks of
September 11, 2001, the ATF Firearms and Explosives Branch created the
Transnational Intelligence Branch to manage the classified intelligence it
received. The Department of the Treasury determines the requirements and
classifications.
RESPOND TO TERRORIST INCIDENTS ABROAD Crisis and consequence management
domestic and abroad a
FBI, Counterterrorism WMD Operations Unit Coordinates the interagency
threat assessment process and determines Division the (1) credibility of
the threat received, (2) immediate concerns involving health and safety of
the responding personnel, and (3) requisite level of
response warranted by the federal government.
(Continued From Previous Page)
Department of Justice office or bureau Program or activity Description of
program or activity
FBI Strategic Information and Serves as a focal point for information
management, coordination, and Operations Center operational support. The
center provides the facilities, information
systems, and communications equipment to support special events and crisis
operations. Also, during major crises, investigations, or special events,
the center is fully activated as a headquarters command center.
FBI, Executive Assistant Laboratory Division Provides forensic and
technical services to federal, state, and local law Director for Law
Enforcement
enforcement agencies. The division collects and conducts analysis of
Services
physical evidence ranging from biological materials to explosives. Through
its trained teams of FBI Special Agents and support personnel, it can
assist international law enforcement agencies with large- scale
investigations and disasters.
FBI, Executive Assistant Investigative Technologies Provides technical and
tactical services in support of investigators and Director for Law
Enforcement Division the intelligence community. Some of the services
provided by the division include electronic surveillance, physical
surveillance, cyber technology, and wireless radio communication. The
division also is working on developing new investigative technologies and
techniques as well as
training the agents and personnel with the new technologies. FBI,
Laboratory Division,
Mobile Crime Laboratory Provides the capability to collect and analyze a
range of evidence at the Enforcement Services crime scene. The laboratory
also has analytical instrumentation for rapid
screening and triage of explosives and other trace evidence recovered at
the crime scene. FBI, Laboratory Division,
Flyaway Laboratory Provides the capacity to rapidly respond to criminal
acts involving the Enforcement Services use of chemical or biological
agents with the mobile, self- contained lab. The laboratory allows for the
safe collection of hazardous materials, sample preparation, storage, and
analysis in a field setting.
FBI, Laboratory Division Explosives Unit Examines evidence associated with
bombings, including the identification and function of the components used
in the construction of the explosive device. The unit also performs
chemical analysis to help identify the type of explosive used in the
device.
FBI, Laboratory Division Firearms Unit Examines evidence related to
firearm and ammunition components. The division also provides support with
investigations involving the collection, preservation, and processing of
evidence at crime scenes. If needed, the unit can serve as a liaison with
international forensic laboratories.
FBI, Laboratory Division, Evidence Response Team FBI Special Agents who
specialize in conducting major evidence Enforcement Services recovery
operations. The unit is the laboratory representative to the
Critical Incident Response Group. The unit responds to crisis situations
and coordinates the mobilization of the Emergency Response Team. FBI,
Enforcement Services,
Critical Incident Response This group facilities the rapid response to and
the management Critical Incident Response
Group of crisis incidents. The group deploys investigative specialists to
Group
respond to terrorist activities, hostage taking, child abductions, and
other high- risk repetitive violent crimes.
FBI, Enforcement Services, Crisis Negotiation Unit Maintains an immediate
operational response capability to conduct and Critical Incident Response
manage on- scene negotiations during any significant crisis event in Group
which the FBI is involved. The unit deploys overseas to assist in the
management of kidnapping situations involving U. S. citizens.
(Continued From Previous Page)
Department of Justice office or bureau Program or activity Description of
program or activity
FBI, Enforcement Services, Crisis Management Unit Operationally supports
FBI field and headquarters entities during critical Critical Incident
Response
incident or major investigations. The unit conducts crisis management
Group
training and related activities for the FBI, and other international,
federal, state, and local agencies or department. It also conducts several
regional field- training exercises each year. FBI, Enforcement Services,
Rapid Deployment Logistics Coordinates administrative and logistical
matters for deploying the Rapid Critical Incident Response
Unit Deployment Team. The unit also coordinates military and commercial
Group airlift deployment requirements for the Crisis Incident Response
Group and other FBI entities. In addition, it coordinates all Rapid Start
Information Management System matters in support of major investigations
and operations.
FBI Rapid Deployment Team Provides the capability to deploy large numbers
of personnel to crime scenes in nations that are receptive to ongoing
joint investigations. The team enables the FBI to arrive on the scene with
pre- constituted investigative, administrative, and logistical support
elements needed to conduct a major investigation. The teams are designed
to be fully deployed in response to bombings of U. S. interests and are
augmented by a cadre of special agent bomb technicians. Evidence Response
Teams and security specialists also join the team.
FBI, Enforcement Services, Hostage Rescue Team Conducts rescues of U. S.
persons and others held illegally by a hostile Critical Incident Response
force, either terrorist or criminal in nature. The team is capable of
Group
performing other law enforcement activities related to dive searches,
hurricane relief operations, dignitary protection missions, and tactical
surveys. And, on occasion, the team pre- positions itself in support of
special security events.
FBI, Enforcement Services, Hazardous Materials
Provides the capability to safely and effectively respond to incidents
Laboratory Division Response Unit involving the use of hazardous
materials. The unit also develops
technical proficiency and readiness procedures for crime scene and
evidence- related operations.
Bureau of Alcohol, Tobacco, International Incident
Responds with investigative assistance and laboratory support to assist
Firearms and Explosives Response Team foreign law enforcement authorities
and governments in responding to
explosives and fire incidents. The response team was created in 1993 with
the Department of State as a result of the 1993 bombing of the U. S.
Embassy in Buenos Aires, Argentina. The response team is in a constant
state of readiness. Since 1993, it has been deployed 22 times. Source:
Departments of State, Defense, Justice, and the Treasury.
a The response to a terrorist incident involves managing the immediate
crisis as well as its consequences. *Crisis management* involves efforts
to prevent and deter a terrorist attack, protect public health and safety,
arrest terrorists, and gather evidence for criminal prosecution.
*Consequences management* involves efforts to provide medical treatment
and emergency services, evacuate people from dangerous areas, and restore
government services.
Matrix of Department of State Programs and
Appendi V I x Activities to Combat Terrorism Overseas The Department of
State is the lead federal agency for coordinating U. S. government efforts
to combat terrorism overseas. Within the department, multiple bureaus and
offices manage various programs and activities to combat terrorism abroad.
State also works with other U. S. government agencies, foreign government
agencies, and international organizations in carrying out these programs
and activities. Some of these activities directed at combating terrorism
overseas (e. g., coordination) may actually occur in the United States.
Appendix IV identifies and describes the following: the strategic
framework of State*s efforts to combat terrorism overseas; State*s
programs and activities to detect and prevent terrorism overseas;
State*s programs and activities to disrupt and destroy terrorist
organizations overseas; and State*s programs and activities to respond
to terrorist incidents
overseas.
Table 13: Department of State Programs and Activities to Combat Terrorism
Overseas Department of State office or bureau Program or activity
Description of program or activity
STRATEGIC FRAMEWORK Agency head*s role in counterterrorism
Office of the Secretary Directs State Department, the The Secretary of
State is responsible for the coordination of all U. S. lead U. S. agency
for civilian departments and agencies that provide counterterrorism
counterterrorism activities
assistance overseas. The Secretary also is responsible for the abroad
management of all U. S. bilateral and multilateral relationships intended
to promote activities to combat terrorism abroad.
Since the September 11, 2001, terrorist attacks on the United States, the
Office of the Secretary has made its counterterrorism activities a top
priority. The Office helps manage the U. S. *war on terrorism* by (1)
building the global coalition against terrorism; (2) building diplomatic
support for military operations in Afghanistan and other countries; (3)
helping coordinate intelligence to detect terrorist networks; (4) imposing
economic sanctions to reduce terrorist financing; (5) supporting
international law enforcement efforts to identify, arrest, and bring
terrorists to justice; and (6) leading multinational efforts through the
United Nations (UN) and other organizations to reduce the terrorist
threat.
(Continued From Previous Page)
Department of State office or bureau Program or activity Description of
program or activity
Special agency official or office in charge of counterterrorism
Office of the Coordinator for Coordinates all State
Coordinates U. S. overseas counterterrorism policy and response to
Counterterrorism Department counterterrorism
international terrorist incidents that take place outside of U. S.
territory. activities and leads U. S. government efforts to improve
Engages in bilateral, multilateral, and public diplomacy to deter
terrorism
counterterrorism cooperation through a policy of making no concessions to
terrorists, prosecuting or
with foreign governments extraditing international terrorists, opposing
state- sponsored terrorism,
and curbing terrorist resources. Provides the lead in conducting
interagency bilateral counterterrorism consultation with about 20 foreign
governments and participates in multilateral negotiations and meetings.
Identifies and develops justification for the U. S. government*s biennial
designation of foreign terrorist organizations.
Chairs the State Department's terrorism task forces to coordinate
responses to major international terrorist incidents, including those that
may occur domestically. Coordinates U. S. counterterrorism research and
development, including consultations and cooperation with selected
countries.
Each U. S. ambassador Responsible for the full array See below for
descriptions of counterterrorism activities at U. S. missions. of
counterterrorism activities at each U. S. mission
Agency plans or strategies to combat terrorism
Office of the Secretary State Department*s Annual The State Department*s
2002 Annual Performance Plan highlights its Performance Plan
counterterrorism objective to *reduce international terrorist incidents,
especially against the United States.* Key goals are to (1) reduce the
number of attacks, (2) bring terrorists to justice, (3) reduce or
eliminate
state- sponsored terrorist acts, (4) delegitimize the use of terror as a
political tool, (5) enhance the international response, and (6) strengthen
international cooperation and operational capabilities to counter
terrorism.
U. S. embassies Mission Performance Plan Lists each embassy*s priorities
and includes implementation and (ambassador) budgeting plans. If
counterterrorism activities are an embassy priority,
then the plan should include specific goals and actions to counter the
threat.
(Continued From Previous Page)
Department of State office or bureau Program or activity Description of
program or activity
DETECT AND PREVENT TERRORISM ABROAD Military security assistance
Bureau of Political- Military Regional security and arms Supports the war
on terrorism and Operation Enduring Freedom with Affairs controls to
enhance regional
security assistance programs such as (1) foreign military financing,
stability
(2) foreign military sales, (3) International Military Education and
Training, and (4) peacekeeping operations. For Operation Enduring Freedom,
Political- Military Affairs stated that arms transfers and security
assistance policies have enhanced
cooperation with the states of the region and influenced operations in
Afghanistan. For example, arms transfers helped enhance security
cooperation with such key U. S. strategic partners as Egypt, Saudi Arabia,
Bahrain, and the United Arab Emirates.
Embassy security
Bureau of Diplomatic Responsible for providing a
Manages a broad range of programs to create and maintain the Security
secure environment for the highest appropriate levels of security possible
for more than 50, 000 conduct of American
U. S. government personnel, staff, and dependents who work and live at
diplomacy worldwide
260 embassies, consulates, and other missions overseas. Diplomatic
Security can dispatch its teams to threatened overseas missions.
Diplomatic Security activities include protection of the Secretary of
State and other high- level U. S. government officials on official
government business abroad. At each U. S. mission, the regional security
officer is responsible for implementing the Bureau*s security measures and
coordinating protection with host government authorities.
Diplomatic Security Review of standards and risk Develops, evaluates, and
applies security standards for a broad range of management categories.
These include (1) physical protection for office and residential
buildings, (2) access to communication equipment, (3) intrusion detection
devices, (4) secure conference rooms, and (5) armored vehicles. These
standards are intended to allow Diplomatic Security to identify and
address threats posed by terrorism, political violence, human
intelligence, and technical intelligence penetration of facilities.
Diplomatic Security uses these elements to target resource allocations to
identified threats at each mission or location. Diplomatic Security is
required to provide to the Congress each year a ranking of the U. S.
missions abroad most vulnerable to terrorist attack. These standards also
help target additional security funding to the highest threat missions, as
in the case of Emergency Security Supplemental and Worldwide Security
Upgrade
funds to meet the most pressing security needs. Bureau of Overseas
Embassy construction Replaces State Department*s less secure facilities on
an accelerated Buildings Operations program basis with new, secure
embassies and consulates. State has a 6- year Long- Range Overseas
Buildings Plan, which includes both new construction and the major
renovation and rehabilitation of existing facilities.
(Continued From Previous Page)
Department of State office or bureau Program or activity Description of
program or activity
Diplomatic Security Embassy construction Participates with Overseas
Buildings Operations in developing embassy program security measures.
Develops, with other elements in State, threat assessments that it uses to
prioritize which U. S. missions are most in need of new, safer embassy
buildings. Diplomatic Security and
Worldwide Security Upgrade Provides a physically secure environment for
all U. S. government Overseas Buildings
Program personnel under the jurisdiction of the Chief of Mission.
Diplomatic Operations
Security, through the physical security program, strengthens building
exteriors, lobby entrances, and the walls and fences around embassies and
consulates. Inside an embassy or consulate, closed- circuit television
monitors, explosive- detection devices, walk- through metal detectors, and
hard- line walls and security doors provide protection. Diplomatic
Security and Overseas Buildings Operations have joint responsibility for
this program.
Diplomatic Security Residential security Provides for security upgrades to
the residences of U. S. employees assigned to overseas diplomatic and
consular missions. Prior to occupancy, all newly acquired residential
facilities are equipped with appropriate security features, such as locks,
alarms, shatter- resistant window film, and reinforced doors, based on the
level of the threats to be addressed. Diplomatic Security Overseas
Protection of Implements a comprehensive set of information protection
programs.
Information These programs are intended to protect national security
information discussed at meetings in secure conference rooms or on secure
telephones, processed and stored on computers, and preserved and
communicated on paper documents. This program includes (1) personnel
investigations for security clearances, (2) courier protection for
diplomatic pouches, (3) construction security and access control
equipment, (4) U. S. Marine security guards controlling access to
embassies at 130 U. S. missions overseas, (5) locks for containers holding
classified material,
(6) secure conference rooms, (7) detection and containment of emanations
from processing equipment, (8) counterintelligence investigations and
briefings, and (9) computer security.
Diplomatic Security Surveillance Detection Utilizes plainclothes security
agents to provide surveillance detection Program measures around U. S.
embassies, consulates, and residences of
embassy employees. The program is used to identity suspicious activity,
such as terrorists* *casing* of embassy facilities or personnel, and
includes capabilities intended to resolve all suspicious activity.
Diplomatic Security Local Guard Services Augments host government
resources for protecting overseas diplomatic and consular office
facilities and residences of U. S. government employees and dependents of
all agencies under the Chief of Mission.
Diplomatic Security Overseas Protective Vehicles Provides light and heavy
armor vehicles to protect embassy personnel. One hundred percent of the
Chief of Mission vehicles have been ordered and are in the armoring phase,
with 94 percent delivered to missions.
(Continued From Previous Page)
Department of State office or bureau Program or activity Description of
program or activity
Diplomatic Security Security Liaison Officers Provides Security Officers
to selected DOD Unified Commands (U. S. Central Command, MacDill Air Force
Base, Florida; U. S. European Command, Stuttgart- Vaihingen, Germany; and
U. S. Pacific Command, Camp H. M. Smith, Hawaii). These officers
coordinate with the commands on theater threat assessments, contingency
planning, and implementation of Department of State and Department of
Defense
(DOD) agreements on overseas security support.
Warnings to and information- sharing with Americans abroad
Bureau of Consular Affairs Travel warnings, public Ensures that important
threat warnings and security information reach announcements, and
U. S. citizens and assets abroad in a timely and effective manner.
Consular Information Sheets
In 2001, Consular Affairs issued 64 travel warnings, 134 public
announcements, and 189 Consular Information Sheets. Consular Affairs*
Internet Web site received 117.9 million inquiries, 30.7 million more than
in fiscal year 2000. According to Consular Affairs data, 90 percent of the
users found the information helpful. Consular Affairs also held 69
briefings for stakeholder groups, including international student program
participants, travel agents, and others.
Consular Affairs Warden system for notifying Notifies Americans who have
registered with the U. S. embassy or registered Americans of
consulate of potential terrorist threats. Warden networks consist of
threats
telephone- calling trees, e- mails, fax systems, and other systems, as
appropriate. The warden system covers both U. S. embassy and consulate
personnel and other registered Americans. The system usually works by
alerting major employers or compounds with high concentrations of
Americans. It is used for a variety of communications purposes, from
passing out voter information to notifying wardens and their wards of U.
S. embassy evacuations.
Diplomatic Security Overseas Security Advisory Provides security support
to U. S. businesses and private- sector Council organizations worldwide
through Overseas Security Advisory Councils.
A joint effort between State and the private sector, Overseas Security
Advisory Councils foster the exchange of security and threat information
and implementation of security programs and provides a forum to address
security concerns. Regional security officers coordinate with Overseas
Security Advisory Council headquarters to set up, develop, and maintain
councils in country. Overseas Security Advisory Councils
coordinate with U. S. embassies and are active in 47 countries.
Law enforcement training (with foreign governments)
Diplomatic Security Antiterrorism Assistance Provides training to approved
foreign national participants in five areas: law enforcement, protection
of national leadership, control of borders, protection of critical
infrastructure, and crisis management. Antiterrorism
Assistance has trained 28, 000 foreign national participants from 124
countries since its inception. Diplomatic Security Antiterrorism
Assistance*s Antiterrorism Assistance proposes to build the Center for
Antiterrorism proposed Center for
and Security Training, a consolidated facility for training in various
Antiterrorism and Security
antiterrorism disciplines. Training
(Continued From Previous Page)
Department of State office or bureau Program or activity Description of
program or activity
Diplomatic Security Antiterrorism Assistance*s Provides quick in- country
training to allied nations. Mobile Emergency Training Team
Bureau for International International Law
Provides law enforcement to foreign governments. International Narcotics
Narcotics and Law
Enforcement Academy and Law Enforcement Affairs manages the U. S.
government*s Enforcement Affairs interagency regional International Law
Enforcement Academies (Budapest, Hungary; Bangkok, Thailand; Gaborone,
Botswana; and Roswell, New Mexico), in conjunction with the Departments of
the Treasury and Justice, including the FBI. In fiscal year 2003,
International Narcotics and Law Enforcement Affairs is scheduled to
provide law enforcement training to 12,000 officials, doubling the number
trained in fiscal year 2001.
International Narcotics and Law enforcement and police Provides training
and technical assistance to foreign law enforcement Law Enforcement
Affairs science personnel to combat crime and advance U. S. interests in
international
counterterrorism cooperation. Law enforcement and police science training
is managed and funded by International Narcotics and Law Enforcement
Affairs and carried out by the Departments of Justice and the Treasury,
among other federal agencies. The International Criminal Investigative
Training Assistance Program (ICITAP) and the Office of Overseas
Prosecutorial Development and Training are examples of these types of
programs.
Office of the Coordinator for Countering terrorist financing Provides,
with the Departments of Justice and the Treasury, training and
Counterterrorism and
assistance to foreign governments to strengthen their financial and
International Narcotics and
regulatory regimes to reduce terrorist financing. Law Enforcement Affairs
Border security (including visa processing issues)
Consular Affairs Visas Processes applications for visas from foreign
citizens who wish to visit the United States. Consular Affairs is to
facilitate travel for those eligible to receive visas and to deny visas to
those who are ineligible. A visa enables
a person to apply at a port of entry to enter the United States, but it
does not guarantee that a person will be able to enter the United States.
Consular Affairs Consular Consolidated Supports the antiterrorist task
forces since September 11, 2001. In fiscal Database (visa data, including
year 2002, Consular Affairs performed numerous searches of visa
photographs)
records and photographs at the request of federal law enforcement task
forces investigating the terrorist attacks. In addition, Passport Services
provided law enforcement with 305 records. Consular Affairs used facial
recognition software to compare the photographs on the visa applications
of the September 11 hijackers in the database against other visa
photographs. According to State, the review found no evidence that
the hijackers had applied for visas using different names. Bureau of
Intelligence and
TIPOFF program Manages the TIPOFF program, a database of sensitive
intelligence Research and law enforcement information contributed by the
Central Intelligence
Agency (CIA), National Security Agency, and the FBI. TIPOFF contains
information on some 68, 000 suspected terrorists and international
organized crime figures. TIPOFF alerts consular officers at U. S.
embassies and INS officers at ports of entry when potential
terrorists try to enter the United States.
(Continued From Previous Page)
Department of State office or bureau Program or activity Description of
program or activity
Consular Affairs/ Visa TIPOFF to impede terrorist Uses TIPOFF in the visa
program to identify and stop potential terrorists Services entry into the
United States trying to enter the United States. In fiscal year 2001,
Consular Affairs
indicated that there had been 178 TIPOFF matches for visa applicants; of
those, 81 were denied, 14 abandoned their applications, and 4 withdrew
their applications. TIPOFF, used by the INS, yielded 86 matches from the
terrorism database at ports of entry in fiscal year 2001. Of these, 38 of
the individuals were denied entry, and 1 was arrested. Diplomatic Security
Investigation of visa and
Impedes terrorist entry into the United States. Diplomatic Security
passport fraud investigates more than 3,500 passport and visa fraud cases
annually,
resulting in more than 500 arrests each year. A number of suspects have
been linked to terrorism. Diplomatic Security has 450 special agents in
over 160 countries and approximately 700 special agents assigned
throughout the United States. Office of the Coordinator for
Terrorist Interdiction Program Enhances border security by providing
participating foreign governments Counterterrorism with a computerized
database that allows border control officials to identify and detain or
track individuals of interest. The Terrorist
Interdiction Program currently is installed in 2 foreign countries, with
another 60 countries under consideration. The Program is scheduled to be
installed in up to five new countries per year.
Office of the Inspector Investigation of visa and
Conducts visa and passport investigations. The Office of the Inspector
General passport fraud General conducted several joint investigations with
the INS in fiscal year
2001. In one case, the Office found that defendants took in $21 million by
defrauding the visa program.
Public Diplomacy
Office of International Build international support for
Influence international opinion in support of U. S. foreign policy
objectives. Information Programs U. S. foreign policy Since the September
11, 2001, terrorist attacks, the Office of
International Information Programs has encouraged international support
for the war on terrorism. For example, its initiatives have generated over
240 newspaper, 100 radio, and 150 television interviews, and over 300
opinion- editorial articles in newspapers either signed or prepared for
ambassadors. Almost 60 U. S. speakers have traveled abroad on Office of
International Information Programs- funded programs addressing September
11- related issues. U. S. embassies have sponsored over
100 panel discussions and over 220 speeches on the issue. In addition,
Network of Terrorism, an Office of International Information Programs-
produced print and electronic pamphlet, is available in 36 languages, and
1.3 million print copies are in circulation.
DISRUPT AND DESTROY TERRORIST ORGANIZATIONS ABROAD Military operations
Political- Military Affairs State*s primary liaison with the Facilitates
Defense- State actions concerning military operations. Department of
Defense
(Continued From Previous Page)
Department of State office or bureau Program or activity Description of
program or activity
Political- Military Affairs Supporting U. S. military war Assists in
developing and maintaining the global military coalition against on
terrorism terrorism and serves as main point of contact for coalition
matters.
Assists in negotiating with foreign governments for deployment orders,
requests for coalition forces, fly- over rights, and bed- down rights.
Between September 11, 2001, and the end of January 2002, PoliticalMilitary
Affairs processed 120 deployment orders and 72 requests for coalition
forces in support of Operation Enduring Freedom in Afghanistan.
Political- Military Affairs Political Advisor to U. S. Political- Military
Affairs provides personnel to DOD and the principal regional military
commands military commands to improve cooperation between State and the U.
S. military. For example, the Political Advisor at the U. S. Central
Command
provides liaison services between State, the command, and the
representatives of the 31 nations located at U. S. Central Command
headquarters that provide assets for Operation Enduring Freedom.
International relations
Office of the Secretary Worldwide diplomatic support Received offers of
military assistance for the war on terrorism from for war on terrorism and
136 countries. Operation Enduring Freedom
Secured over- flight rights from 89 countries. Secured landing rights for
U. S. military aircraft from 76 countries. Secured NATO support to invoke
article V of the NATO charter, which states that an attack on one is an
attack on all.
Developed new U. S. relationships with key countries against terrorism. U.
S. embassies Bilateral diplomatic support for
Implements the above activities of the Office of the Secretary, in support
(ambassador) war on terrorism and of the war on terrorism and Operation
Enduring Freedom.
Operation Enduring Freedom
(Continued From Previous Page)
Department of State office or bureau Program or activity Description of
program or activity
Bureau of International Works with international Develops and implements
U. S. counterterrorism policy in the UN and Organization Affairs
organizations on other international organizations, serving as State*s
primary liaison. counterterrorism issues
Helped craft and aided in the adoption of United Nations Security Council
Resolution (UNSCR) 1373, obligating all member nations to fight terrorism
and report to the Security Council on their counterterrorism efforts.
Assisted in the creation of a UN Counterterrorism Committee to oversee the
implementation of UNSCR 1373. Through bilateral and multilateral efforts,
International Organization Affairs encourages all nations to comply with
UNSCR 1373 and has offered the services of the U. S. government to other
nations to aid in their compliance.
Assisted with resolutions extending UN sanctions on (1) al Qaeda and the
Taliban, (2) Iraq (including gaining passage of new *smart sanctions*),
(3) Libya, and (4) certain African regimes, including those whose
activities benefit terrorists.
Assisted in the lifting of UN sanctions on Sudan, which has cooperated
with the international community and the United States in its war on
terrorism.
Aided in the UN International Atomic Energy Association*s reevaluation of
its response to the threat of nuclear terrorism. Assisted in the UN
International Civil Aviation Organization*s passing an antiterrorism
resolution. Office of the Coordinator for
Reduce the flow of money and Blocks terrorism- related financing. The
Office of the Coordinator for Counterterrorism,
other material support to Counterterrorism, with the concurrence of the
Departments of Justice International Narcotics and
terrorists. and the Treasury, designates foreign terrorist organizations,
individuals, Law Enforcement Affairs, and and groups for a variety of
purposes, including to block terrorism- related the Economic Bureau, in
financing. The Economic Bureau is responsible for leading the effort to
coordination with the build international coalition support to also block
these assets. According Department of the Treasury
to State, since September 11, 2001, the United States has blocked and
other agencies $34.3 million in terrorist- related assets.
Office of the Legal Adviser Negotiates international Pursues extradition
and mutual legal assistance treaties with foreign agreements governments
and works with the UN and with other nations in drafting multilateral
agreements, treaties, and conventions on counterterrorism. Office of the
Legal Adviser Works with Department of
Works closely with the Department of Justice*s Office of International
Justice on international law
Affairs on specific cases and on building consensus on broad enforcement
issues international counterterrorism and crime issues.
Office of the Legal Adviser Drafts U. S. counterterrorism The Office of
the Legal Adviser works with the Office of the Coordinator related
legislation for Counterterrorism, the Economic Bureau, and the Department
of Justice when U. S. legislation is needed to combat terrorism abroad.
(Continued From Previous Page)
Department of State office or bureau Program or activity Description of
program or activity
Law enforcement
Diplomatic Security and Law enforcement cooperation Cooperates with local
intelligence, security, and law enforcement entities Regional Security
Officer to track and capture terrorists in country and to block attempted
terrorist
attacks on U. S. citizens and U. S. assets abroad. Diplomatic Security
Investigations of terrorist
Conducts investigations of terrorist incidents involving U. S. diplomatic
incidents personnel and other persons under its protection. These
investigations are conducted for the purpose of preventing or deterring
future incidents. Diplomatic Security supports the FBI in its extra-
territorial investigations into the criminal prosecution of the
perpetrators.
Office of the Coordinator for Coordinates State*s role in Captures
suspected terrorists overseas. In cases where the United Counterterrorism
negotiating and conducting
States lacks an extradition treaty, the U. S. government can capture
renditions
suspected terrorists through an overseas arrest called a rendition. The
Office of the Coordinator for Counterterrorism, in conjunction with the
Office of the Legal Adviser, the Department of Justice, and other
agencies, would coordinate State*s role in negotiating and conducting
these arrests. Since 1987, there have been 11 reported renditions.
Diplomatic Security Rewards for Justice Program Provides payments for
information leading to the arrest and prosecution of individuals involved
in international terrorism and for information that thwarts a terrorist
attack. Rewards have been offered for terrorists involved in the September
11, 2001, terrorist attacks, the African embassy bombings, and the USS
Cole bombing. The program awards payments of up to $25 million for this
information. In fiscal year 2001, State spent $113,000 for cases
concerning terrorist acts, $1. 7 million for cases concerning narcotics
traffickers, and $14,000 for cases concerning war crimes. In the past 7
years, the United States has paid over $9. 5 million to 23 individuals who
provided credible information leading to the arrest of international
terrorists.
Intelligence on terrorist groups and threat assessments
Intelligence and Research Intelligence support for Prepares intelligence
reports for the Secretary of State, department Secretary of State and for
U. S. officials, and ambassadors at U. S. missions. Monitors
governmentwide missions
intelligence activities to ensure their compatibility with U. S.
counterterrorism foreign policy objectives. Seeks to expand interagency
data sharing on known terrorist suspects. Intelligence and Research
Intelligence assessments and Conducted the first public opinion survey
inside Taliban- controlled policy guidance Afghanistan to determine public
reaction to the Taliban government.
Results were used in U. S. counterterrorism briefings to State, the NSC,
the CIA, DOD, and U. S. Central Command officials. Conducted *flash
surveys* immediately after September 11, 2001, in Syria, Jordan, Lebanon,
the United Arab Emirates, Saudi Arabia, Kuwait, and the Palestinian
Authority to gauge Arab public reaction to the attacks on the United
States and public perceptions of Osama bin Laden for use in policy
formulation.
Intelligence and Research Electronic Read- and- Burn Provides intelligence
products, especially threat information, to chiefs of Pilot Project
mission who could not previously receive this type of highly classified
material.
(Continued From Previous Page)
Department of State office or bureau Program or activity Description of
program or activity
Office of the Coordinator for Studies terrorist groups
Publishes an unclassified report called Patterns of Global Terrorism, as
Counterterrorism worldwide called for under 22, U. S. C. S: 2656f (a).
Diplomatic Security Publishes annual security The annual reports,
Significant Incidents of Political Violence against
reports Americans and Terrorist Tactics and Security Practices: Lessons
Learned, and Issues in Global Crime, are intended to provide a
comprehensive picture of the broad spectrum of political violence and
security threats to American citizens and interests abroad.
Diplomatic Security and Threat and intelligence
Interacts with police and intelligence contacts in other countries. A
Regional Security Officer assessments mission*s regional security officer
often is the first to recognize, through
investigative work, possible terrorist activities. Diplomatic Security
agents frequently are requested to follow up on leads for other law
enforcement agencies not represented at the mission. Intelligence
information sharing (with foreign governments) Diplomatic Security and
Information sharing and Cooperates with foreign governments and their law
enforcement and Regional Security Officer cooperation with host country
security forces in sharing threat and security information. governments
Conducts extensive liaison with foreign police and security and
intelligence services, which allows regional security officers to assist
other U. S. government law enforcement agencies. Such activities include
criminal record checks, tracing fugitives, interviewing informants and
suspects, and processing extradition requests.
RESPOND TO TERRORIST INCIDENTS ABROAD Crisis and consequence management
domestic and abroad a
Office of the Coordinator for Headquarters leadership of Serves as the
lead for crisis and consequence management in directing Counterterrorism
the U. S. government response
the U. S. government response to a terrorist incident overseas. The Office
to a terrorist incident overseas
of the Coordinator for Counterterrorism would lead a task force and work
through the State Department Operations Center (discussed below). State
Department
Headquarters task force for State*s Operations Center maintains a 24- hour
global watch and crisis Operations Center coordinating the U. S.
management support staff. The watch is the initial point of contact for
government response to a
posts experiencing emergency crises, including terrorist attacks. In a
terrorist incident overseas
crisis, the Operations Center would establish a 24- hour task force to
coordinate the flow of communications and instructions between the
Department of State, other involved agencies, overseas posts, and foreign
governments. This task force would be led by the Office of the Coordinator
for Counterterrorism and, in addition to relevant State
Department bureaus, may include other U. S. government agencies with
action responsibilities.
U. S. embassies Serves as the U. S. In a given country, the ambassador
would act as the on- scene (ambassador) government on- scene coordinator
in a terrorist incident. The ambassador would lead the coordinator for
terrorist
Emergency Action Committee to manage the response. The ambassador
incidents overseas
could request a Foreign Emergency Support Team (discussed below) for
assistance and to help coordinate the U. S. government*s interagency
response.
(Continued From Previous Page)
Department of State office or bureau Program or activity Description of
program or activity
Office of the Coordinator for Foreign Emergency Support
In coordination with the NSC, the Office of the Coordinator for
Counterterrorism Team to provide on- scene
Counterterrorism would lead an interagency Foreign Emergency Support
support Team to assist the ambassador and host government to manage a
terrorist incident. The team is advisory and will not enter the host
country unless requested by the ambassador, with the host government*s
permission. The team provides the ambassador a single point of contact
to coordinate all U. S. government on- scene support during a terrorist
incident. Each team is tailored to the specific incident and can provide
guidance on terrorist policy and incident management, dedicated secure
communications, and special expertise.
Diplomatic Security Special Diplomatic Security Deploys its Mobile Support
Teams and Security Support Teams to teams to assist and
respond to increased threats or critical security needs at U. S. missions
in investigate crisis situations crisis, including providing special
training or draw down/ evacuation assistance. These teams provide
supplemental support to regional security officers and stand ready for
immediate deployment to any U. S. mission where conditions require the
reestablishment of a secure environment.
Political- Military Affairs Consequence Serves as the lead for consequence
management in directing the U. S. management; Consequence government
response to a terrorist incident outside of U. S. territory. The
Management Support Team
U. S. government provides assistance overseas when a U. S. ambassador has
determined that the host government is unable to cope with a problem, when
the host government seeks U. S. assistance, and when it is in the U. S.
interest to provide such assistance.
Provides a standing Consequence Management Support Team designed to help
manage the consequence of a WMD emergency overseas. The multi- agency team
is tailored to manage the specific emergency situation or conditions of
the host nation. The team coordinates and facilitates the flow of critical
requirements and information necessary to respond, advise, and assist
foreign government and U. S. decision makers. The team would deploy as an
integral part of FEST operations and would take the lead for the
consequence management response.
Overseas Buildings Emergency Response Team Helps secure embassy grounds
and restore communications following a Operations crisis. Consular Affairs
Medical needs Assists American victims with medical needs. Also, assists
in the process
of identifying victim remains, notifying the next of kin, and shipping
home the remains.
Consular Affairs Liaison with U. S. citizens Provides assistance for
Americans stranded overseas by the closure of under duress U. S. air
space. Consular Affairs Liaison with foreign nationals
Provided assistance to New York City officials handling the deaths of in
the United States foreign nationals in the September 11, 2001, terrorist
attack on the World Trade Center. Works with the Department of Justice to
address foreign embassy concerns regarding the large number of aliens
detained on a variety of charges as part of the war on terrorism.
(Continued From Previous Page)
Department of State office or bureau Program or activity Description of
program or activity
Planning and exercises at headquarters and abroad
Office of the Coordinator for Counterterrorism Security Manages the
interagency exercise program for combating terrorism Counterterrorism
Group, Exercise and
overseas and coordinates these exercises with other departments. The
Readiness Subgroup
exercise program is designed to strengthen the U. S. government*s ability
to deal with terrorist attacks.
Office of the Coordinator for International Senior Officials
Conducts Senior Policy Workshops with friendly foreign governments.
Counterterrorism Workshops These workshops are generally tabletop
simulations with no actual physical deployment of troops. Coordinates
training programs to help other countries develop and coordinate responses
to a WMD event.
Political- Military Affairs Contingency planning Has responsibility for
preparing U. S. forces, foreign governments, and international
organizations to manage the consequences of a chemical, biological,
radiological, or nuclear incident overseas.
Political- Military Affairs Consequence management Sponsors consequence
management exercises, in conjunction with other exercises U. S. government
agencies. Exercises can be directed at select
department and agency components, for example, regional military commands,
the Centers for Disease Control and Prevention, or partner nations.
Diplomatic Security Emergency Planning Serves as a consolidated source of
guidance for overseas missions on Handbook how to plan for and deal with
emergencies abroad. The handbook is used as the principal reference when a
mission prepares its Emergency Action Plan. U. S. embassies Emergency
Action Committee Every foreign service mission is required to have an
Emergency Action
Committee. In organizing for emergency action, the Chief of Mission
establishes a committee and designates personnel responsible for specific
crisis- related functions. The Emergency Action Committee is responsible
for developing and testing the mission*s Emergency Action Plan.
U. S. embassies Emergency Action Plan Every foreign service mission
requires an Emergency Action Plan, which is written by members of the
Emergency Action Committee and provides mission- specific procedures for
responding to terrorist and other crises. The plan translates worldwide
guidance for dealing with emergencies into a mission- specific action
plan.
Foreign Service Institute Emergency Action Committee Trains Emergency
Action Committee members in their emergency action exercises plan using
various scenarios. Exercises are designed to expose mission officials to
issues of decision- making, contingency planning, implementation of plans,
and interpretation and coordination of policy.
Deputy Chief of Mission and Emergency Action Committee/
Tests its Emergency Action Plan to prepare for management of crises,
Regional Security Officer Emergency Action Plan including terrorist
attacks. The Emergency Action Committee at each
exercises mission is responsible for periodic drills, including their
preparation, execution, and evaluation.
(Continued From Previous Page)
Department of State office or bureau Program or activity Description of
program or activity
U. S. embassies Plans and coordinates The Secretary of State is
responsible for the protection and evacuation of (ambassador) evacuations
and military
U. S. citizens. In a crisis such as a terrorist incident, an ambassador
can noncombatant evacuation order the evacuation of U. S. government
personnel and dependents. The operations
preferred method of evacuation is through normal commercial transportation
or commercial charter. However, to assist State in some cases, DOD may
execute military Noncombatant Evacuation Operations. Ambassadors can
request the assistance of the appropriate unified military command to
assist planning such operations. State, and in urgent cases the
ambassador, will make the determination as to when such evacuation plans
should be implemented.
Alternative command centers
Office of the Secretary Alternate operations center Transformed State's
Alternate Operations Center from a part- time facility to a full- time
alternate site to carry out critical State functions.
Overseas Buildings Alternate operations centers Maintains an alternate
operations center for its headquarters operations Operations and maintains
facilities or the ability to establish alternate operations
centers for its overseas U. S. mission operations. Post- incident law
enforcement investigation U. S. embassies Point of contact during any
Serves as the point of contact for any post- incident law enforcement
(ambassador) investigation investigation. The ambassador would serve as
the official liaison between
the host country government and the U. S. government investigation.
Source: Departments of State, Defense, Justice, and the Treasury.
a The response to a terrorist incident involves managing the immediate
crisis as well as its consequences. *Crisis management* involves efforts
to prevent and deter a terrorist attack, protect public health and safety,
arrest terrorists, and gather evidence for criminal prosecution.
*Consequences management* involves efforts to provide medical treatment
and emergency services, evacuate people from dangerous areas, and restore
government services.
Matrix of Department of the Treasury Programs and Activities to Combat
Terrorism
Appendi V x Overseas The Department of the Treasury supports the
Department of State, which is the lead federal agency for coordinating U.
S. government efforts to combat terrorism overseas. Within the department,
multiple bureaus, offices, and agencies manage various programs and
activities to combat terrorism abroad. The Treasury also works with other
U. S. government agencies,
foreign government organizations and agencies, and international
organizations in carrying out these programs and activities. While these
activities are generally directed at combating terrorism overseas, some of
the activities (e. g., coordination) may actually occur in the United
States.
Appendix V identifies and describes: the strategic framework of the
Treasury*s efforts to combat terrorism
overseas; Treasury*s programs and activities to detect and prevent
terrorism overseas;
Treasury*s programs and activities to disrupt and destroy terrorist
organizations overseas; and
Treasury*s programs and activities to respond to terrorist incidents
overseas.
Tabl e 14: Department of the Treasury Programs and Activities to Combat
Terrorism Overseas Department of the Treasury office or bureau Program or
activity Description of program or activity
STRATEGIC FRAMEWORK Agency head*s role in counterterrorism
Office of the Secretary of the The Secretary of the The Secretary of the
Treasury plays a critical role in policy- making by Tr ea s ur y Treasury
is the principal bringing an economic and government financial policy
perspective to economic advisor to the
issues facing the government. Among other duties, the Secretary is
President
responsible for overseeing the department*s activities in carrying out its
major law enforcement responsibilities, including (1) preventing money
laundering, (2) disrupting and dismantling terrorist organizations*
financial support, and (3) investigating and freezing terrorists*
financial assets.
The Secretary also has a support role to the Department of State during a
terrorist incident overseas.
(Continued From Previous Page)
Department of the Treasury office or bureau Program or activity
Description of program or activity
Special agency official or office in charge of counterterrorism Agency
plans or strategies to combat terrorism
Department of the Treasury National Money Laundering
The strategy includes, for the first time, a comprehensive national plan
to
Strategy, jointly issued by the attack the financing of terrorist groups.
Goal 2 of the National Money
Secretary of the Treasury Laundering Strategy focuses law enforcement and
regulatory resources on and the Attorney General in identifying terrorist
financing networks by (1) implementing a multi- pronged July 2002
operational strategy to combat terrorist financing, (2) identifying and
targeting the methods used by terrorists financiers, and (3) improving
international efforts to dismantle terrorist financial networks. The
strategy is
an interagency plan that draws on the expertise and resources of the
Departments of the Treasury and Justice, and other federal agencies as
well as foreign partners and the private sector.
DETECT AND PREVENT TERRORISM ABROAD Diplomacy
Treasury, Office of Maintain international The Office of International
Affairs works bilaterally and multilaterally to build International
Affairs coalition against terrorist
and maintain the international coalition against terrorist finances along
with finances
other federal agencies, including the Departments of State and Justice,
the Federal Bureau of Investigation (FBI), and the intelligence community.
Treasury, Office of Financial Action Task Force Consists of an
international group of 31 member- states, which focuses on International
Affairs on Money Laundering terrorist financing. The task force provides
its members with an action plan that includes eight special
recommendations, which are viewed as a standard to address terrorist
financing. Treasury, Office of Task Force on Terrorist
Works with countries and monitors their efforts to track and block
terrorists' International Affairs Financing financial assets. This task
force, established by the Department of the
Treasury in the wake of the terrorist attacks on September 11, 2001, is
composed of international economists and financial analysts from the
International Affairs and Enforcement's Office of Foreign Asset Control.
The department enlisted support from ministries of finance and central
banks worldwide to assist efforts to immobilize and/ or confiscate the
financial assets of terrorist organizations and deny such organizations
use of the international banking system.
Treasury, Office of Financial Attaches Develop extensive contacts with
foreign finance ministries, foreign International Affairs regulatory
authorities, central banks and financial market participants. Financial
Attaches explain new U. S. policies to their foreign counterparts. They
also collect, report, interpret, and forecast macroeconomic and financial
developments and policies in their assigned countries.
(Continued From Previous Page)
Department of the Treasury office or bureau Program or activity
Description of program or activity
Prevent undermining of economic reforms
Treasury, Office of Office of Technical Provides specialist teams to
countries through an advisor- based program International Affairs
Assistance/ Enforcement
to help prevent corruption, organized criminal enterprises, and other
Policy and Administration
criminal activities that were undermining Treasury*s economic reforms.
Program
Law enforcement training (with foreign governments) DISRUPT AND DESTROY
TERRORIST ORGANIZATIONS ABROAD Identifying, freezing, and seizing
terrorist organizations* assets
Tr easury Executive Office for Terrorist This office was created in March
2003 and assumed the main Financing and Financial
functions of the former Office of Enforcement. The office is Crimes
charged with coordinating Treasury Department*s efforts to combat
terrorist financing both in the United States and abroad. The office is
responsible for the following specific duties: (1) developing and
implementing U. S. government strategies to combat terrorist financing
domestically and internationally, (2) developing and implementing the
National Money Laundering Strategy, (3) participating in the department*s
development and implementation of U. S. government policies and
regulations in support of the USA PATRIOT Act, (4) joining in
representation of the United States in international bodies dedicated to
fighting terrorist financing, and (5) developing U. S. government policies
related to financial crimes. Tr easury Financial Crimes Supports law
enforcement investigations to prevent and detect money
Enforcement Network laundering and other financial crimes. FinCEN*s
network links law enforcement, financial, and regulatory communities into
a single information- sharing network. Using Bank Secrecy Act information
reported by banks and other financial institutions, FinCEN serves as the
national*s central clearinghouse for broad- based financial intelligence
and information
sharing on money laundering. This information helps illuminate the
financial trail for investigators to follow as they track criminals and
their assets.
Through investigative analysis efforts, FinCEN provides support for the
investigation and prosecution of law enforcement cases at the federal,
state, local, and international levels, using financial data collected
under the Bank Secrecy Act, as well as other commercial and law
enforcement information. FinCEN serves as a catalyst for research,
analysis, and dissemination of information on money laundering methods and
trends through joint case analysis with law enforcement, integration of
all source information, and the application of state- of- art data
processing techniques. Internationally, FinCEN maintains in- depth,
country- specific expertise concerning money laundering and other
financial crimes around the world to assist decision makers in developing
and promoting U. S. government anti- money laundering policies. FinCEN
uses this expertise to promote the development of Financial Intelligence
Units in other countries, which facilitate investigative exchanges.
(Continued From Previous Page)
Department of the Treasury office or bureau Program or activity
Description of program or activity
Treasury, Office of Foreign Administers Economic
This office administers economic sanctions and embargo programs against
Assets Control Sanctions specific foreign countries or groups (including
designated terrorists, terrorist organizations, state sponsors and
individuals supporting those
organizations) to further U. S. foreign policy and national security
objectives. The office imposes control on financial transactions and
freezes foreign assets, denying the targeted country, individual, or
organization.
RESPOND TO TERRORIST INCIDENTS ABROAD Crisis and consequence management
domestic and abroad a
Tr ea s ur y Counter- terrorism Fund In its fiscal year 2003 budget, the
Department of the Treasury proposed that $40 million remain available
until expended to reimburse any federal agency for costs of responding to
the U. S. Secret Service*s request to provide security at designated
National Special Security Events and only be provided after notice to
appropriate congressional committees. The proposed $40 million would (1)
provide support to counter, investigate, or prosecute domestic or
international terrorism, including payment of rewards in connection with
these activities and (2) re- establish the operational capability of an
office, facility or other property damaged or destroyed as a result of any
domestic or international terrorist incident. Treasury bureaus have
important counterterrorism responsibilities, including (1) protecting the
President; (2) designing and implementing security at National Special
Security Events; (3) investigating arson,
explosives, and firearms incidents; (4) conducting financial
investigations relating to terrorism; (5) preventing weapons of mass
destruction from entering the United States; and (6) implementing
sanctions against terrorist
organizations. Source: Department of the Treasury.
a The response to a terrorist incident involves managing the immediate
crisis as well as its consequences. *Crisis management* involves efforts
to prevent and deter a terrorist attack, protect public health and safety,
arrest terrorists, and gather evidence for criminal prosecution.
*Consequences management* involves efforts to provide medical treatment
and emergency services, evacuate people from dangerous areas, and restore
government services.
United Nations Protocols, Conventions, and
Appendi VI x Resolutions Related to Terrorism This appendix is a
representative list of United Nations (UN) documents related to combating
terrorism overseas. The Department of State works with international
organizations, such as the United Nations, to enhance multilateral support
to disrupt and destroy terrorists and their organizations. The United
Nations and its member states established a broad array of resolutions and
conventions to create a multilateral framework for combating international
terrorism. This UN- based multilateral framework falls into three broad
categories of documents or agreements: (1) UN conventions or protocols
related to terrorism, (2) UN Security Council Resolutions, and (3) UN
General Assembly Resolutions. The following conventions, protocols and
resolutions were identified by the United Nations as related to terrorism.
According to the Department of State, the United States is a party to all
12 international conventions and protocols relating to terrorism.
Table 15: UN Conventions and Protocols Related to Terrorism UN convention
or protocol Purpose
International Convention for the Suppression of the Financing of Commits
member states to prevention and counteraction of the Terrorism, New York
financing of terrorists; holds those who finance terrorists liable; and
Dec. 9, 1999
provides for the identification, freezing and seizure of funds for
terrorist activities.
International Convention for the Suppression of Terrorist Creates a regime
of universal jurisdiction over the use of explosives Bombings, New York
and other lethal devices. Dec. 15, 1997
Convention on the Marking of Plastic Explosives for the Purpose Combats
aircraft sabotage. Designed to control and limit the use of of Detection,
Montreal
undetectable plastic explosives. Mar. 1, 1991
Protocol for the Suppression of Unlawful Acts Against the Safety Obligates
member states to establish jurisdiction over unlawful acts of Fixed
Platforms located on the Continental Shelf, Rome
and punish offences with appropriate penalties. Mar. 10, 1988
Convention for the Suppression of Unlawful Acts Against the Establishes a
legal regime applicable to acts against international Safety of Maritime
Navigation, Rome maritime navigation. Makes it an offence for a person to
unlawfully and Mar. 10, 1988 intentionally seize or exercise control over
a ship by force.
Protocol for the Suppression of Unlawful Acts of Violence at Extends
provisions of the Montreal Convention to include terrorist acts Airports
Serving International Civil Aviation, supplementary to at international
airports. the Convention for the Suppression of Unlawful Acts Against the
Safety of Civil Aviation, Montreal Feb. 24, 1988
Convention on the Physical Protection of Nuclear Material, Criminalizes
the unlawful possession, use, transfer, of nuclear Vienna
material, the theft of nuclear material, and threats to use nuclear Mar.
3, 1980
material to cause death or serious injury.
(Continued From Previous Page)
UN convention or protocol Purpose
International Convention Against the Taking of Hostages, New Defines the
taking of hostages and requires state parties to make this York
offense punishable by appropriate penalties. Dec. 17, 1979
Convention on the Prevention and Punishment of Crimes Against Defines
internationally protected persons; requires appropriate Internationally
Protected Persons, including Diplomatic Agents,
penalties for those who commit attacks against internationally New York
protected persons and for those who support them. Dec. 14, 1973
Convention for the Suppression of Unlawful Acts Against the Outlaws acts
of violence on aircraft, placement of explosives on Safety of Civil
Aviation, Montreal
aircraft, and supporting those who attempt such acts. Sept. 23, 1971
Convention for the Suppression of Unlawful Seizure of Aircraft, Outlaws
the use of intimidation to take control of aircraft; hijackers The Hague
must be prosecuted or extradited. Dec. 16, 1970
Convention on Offences and Certain Other Acts Committed on Applies to acts
affecting in- flight safety; authorizes pilot to take Board Aircraft,
Tokyo measures to protect aircraft; requires contracting states to take
Sept. 14, 1963 custody of offenders and return aircraft to pilot. Source:
United Nations.
Table 16: UN Security Council Resolutions Related to Terrorism UN Security
Council Resolution Key provisions
1465 Condemns the bomb attack in Bogota, Colombia, on February 7, 2003.
Also, urges all states, in accordance Feb. 13, 2003 with resolution 1373,
to cooperate with and provide support and assistance to the Colombian
authorities in their efforts to bring to justice the perpetrators,
organizers, and sponsors of this terrorist attack.
1456 Calls on states to prevent and suppress all active and passive
support to terrorism and comply with UN Jan. 20, 2003 Security Council
resolutions 1373, 1390, and 1455. Also, calls on states to become a party
to all relevant international conventions and protocols relating to
terrorism, in particular the 1999 international convention for
the suppression of the financing of terrorism. 1455
Calls on all states to enforce and strengthen measures, where appropriate,
against their nationals or other Jan. 17, 2003 individuals or entities
operating in their territory, to prevent and punish violations. Also calls
upon states to
submit an updated report to the Committee no later than 90 days from
adoption of this resolution on steps being taken to implement the
measures.
1452 Decides that the provisions of resolution 1267 and 1390 do not apply
to funds and other financial assets or Dec. 20, 2002 economic resources
that have been determined by the state to be necessary for basic expenses
and
extraordinary expenses. 1450
Condemns the terrorist bomb attack at the Paradise Hotel in Kikambala,
Kenya, and the attempted missile Dec. 13, 2002 attack on Arkia Israeli
Airlines flight 582, departing from Mombasa, Kenya, on November 28, 2002.
Also, urges all states in accordance with resolution 1373 to bring to
justice the perpetrators, organizers, and sponsors of these terrorist
attacks.
1440 Condemns the act of taking hostages in Moscow, Russia, on October 23,
2002. Also, urges all states, in Oct. 24, 2002 accordance with resolution
1373, to cooperate with the Russian authorities in their efforts to find
and bring to justice the perpetrators, organizers, and sponsors of this
terrorist attack.
(Continued From Previous Page)
UN Security Council Resolution Key provisions
1438 Condemns the bomb attacks in Bali, Indonesia, on October 12, 2002.
Also, urges all states, in accordance with Oct. 14, 2002 resolution 1373
to cooperate with and provide support and assistance to the Indonesian
authorities in their
efforts to find and bring to justice the perpetrators, organizers, and
sponsors of these terrorist attacks. 1390
Calls on member states to continue sanctions against the Taliban, Osama
bin Laden, and al Qaeda. Requires Jan. 16, 2002 states to take a number of
steps against the two regimes, including freezing economic resources,
preventing the supply or sale of weapons, and preventing members from
entering or traveling through their territories. Also, directs states to
report to the Sanctions Committee on actions taken to implement the
sanctions.
1377 Calls on member states to implement UN Security Council Resolution
1373 and to assist each other in doing Nov. 12, 2001 so. Also, invites
states to inform the Counterterrorism Committee of areas where they
require support. 1373
Calls on member states to work together to prevent and suppress terrorist
acts, through cooperation and Sept. 28, 2001 implementation of the
international conventions relating to terrorism. Also, obligates states to
prevent and
suppress the financing of terrorist acts and to freeze funds and other
financial assets or economic resources of persons who commit or attempt to
commit terrorist acts.
1372 Recalls UN Security Council Resolution 1044 and notes steps taken by
the Government of Sudan to comply Sept. 28, 2001 with UN Security Council
Resolutions 1044 and 1070. Terminates the measures brought against Sudan
in UN Security Council Resolutions 1054 and 1070.
1368 Calls on member states to bring to justice the perpetrators and
sponsors of the terrorist attacks on Sept. 12, 2001 September 11, 2001.
Also, calls on the international community to increase cooperation and
implementation of anti- terrorist conventions and UN Security Council
Resolutions. 1363
Establishes a mechanism to monitor the implementation of the measures
imposed by UN Security Council July 30, 2001 Resolutions 1267 and 1333.
1333 Calls on member states to freeze funds and other financial assets of
Osama bin Laden and individuals and Dec. 19, 2000 entities associated with
him, including those in the al Qaeda organization. Also, demands that the
Taliban comply with UN Security Council Resolution 1267 and turn over
Osama bin Laden to authorities in a country where he has been indicted.
1269 Calls on member states to implement the international anti- terrorist
conventions to which they are a party and Oct. 19, 1999 encourages the
speedy adoption of the pending conventions.
1267 Calls on member states to freeze funds and other financial resources
owned or controlled directly or indirectly Oct. 15, 1999 by the Taliban.
1214 Demands that the Taliban stop providing sanctuary and training for
international terrorists and their operations, Dec. 8, 1998 and that all
Afghan factions cooperate with efforts to bring indicted terrorists to
justice.
1189 Calls on member states and international institutions to cooperate
with and provide support to the Aug. 13, 1998 investigations in Kenya,
Tanzania, and the United States, to apprehend the perpetrators of the
criminal acts
and bring them to justice. 1070
Demands the Government of Sudan comply with UN Security Council
Resolutions 1044 and 1054 and also Aug. 16, 1996 decides that member
states shall deny Sudanese aircraft permission to take off, land, or over
fly their territories. 1054 Demands the Government of Sudan extradite
three suspects to Ethiopia who are wanted for the assassination Apr. 26,
1996 attempt on the President of the Arab Republic of Egypt. Also demands
the Government of Sudan desist from
providing shelter and sanctuary to terrorist elements. 1044
Calls upon the Government of Sudan to extradite three suspects wanted in
the connection with assassination Jan. 31, 1996 attempt on the President
of the Arab Republic of Egypt.
883 Demands that the Libyan government comply with UN Security Council
Resolutions 731 and 748 and decides Nov. 11, 1993 that member states
freeze the funds and financial resources of the government of Libya and
all Libyan
undertakings.
(Continued From Previous Page)
UN Security Council Resolution Key provisions
748 Decides that the Libyan government must commit itself to cease all
forms of terrorist action and all assistance Mar. 31, 1992 to terrorist
groups. Also decides that states shall prohibit the provision of weapons
to Libya.
731 Condemns the destruction of Pan American flight 103 and urges the
Libyan government to provide a full and Jan. 21, 1992 effective response
to UN member states* requests to eliminate international terrorism.
687 Recalls the International Convention Against the Taking of Hostages,
which categorizes all hostage- taking acts Apr. 3, 1991 as manifestations
of international terrorism.
635 Condemns all acts of unlawful interference against the security of
civil aviation. Calls upon all member states June, 14, 1989 to implement
measures to prevent acts of terrorism, including those involving
explosives. Urges the
International Civil Aviation Organization to intensify its work on
devising an international regime for the marking of plastic explosives for
the purpose of detection.
337 Condemns the Government of Israel for the forcible diversion and
seizure of a Lebanese airline from Aug. 15, 1973 Lebanon*s air space.
286 Appeals to all parties concerned for the immediate release of all
passengers and crews held as a result of Sept. 9, 1970 hijackings. Calls
on member states to take legal steps to prevent hijackings or other
interference with international civil air travel.
Source: United Nations.
Tabl e 17: UN General Assembly Resolutions Related to Terrorism UN General
Assembly Resolution Key provisions
56/ 1 Condemns the September 11, 2001, terrorist attacks and expresses
condolences and solidarity with the Sept. 18, 2001 people and Government
of the United States. Calls for urgent international cooperation to bring
the perpetrators to justice.
55/ 158 Reiterates General Assembly Resolution 54/ 110. Welcomes the
efforts of the Terrorism Branch of the Centre Jan. 30, 2001 for
International Crime Prevention. Continues the previous work of the Ad Hoc
Committee.
54/ 164 Recalls General Assembly Resolution 52/ 133. Commends those
governments that supplied the Secretary Feb. 24, 2000 General with their
views on the implications of terrorism. Welcomes the Secretary General*s
report and requests that he continue to seek views of member states.
54/ 110 Recalls General Assembly Resolution 53/ 108. Notes the
establishment of the Terrorism Prevention Branch of Feb. 2, 2000 the
Centre for International Crime Prevention in Vienna, Austria. Invites
states to submit information on their
national laws, regulations, or initiatives regarding terrorism to the
Secretary General. Invites regional intergovernmental organizations to do
likewise. Continues the previous work of the Ad Hoc Committee. 54/ 109
Adopts the International Convention for the Suppression of the Financing
of Terrorism and urges all states to Feb. 25, 2000 sign and ratify,
accept, approve, or accede to the Convention. 53/ 108
Recalls General Assembly Resolution 52/ 165. Reaffirms that actions by
states to combat terrorism should be Jan. 26, 1999 conducted in conformity
with the Charter of the United Nations, international law, and relevant
conventions. Decides to address the question of convening a UN conference
to formulate a joint response to terrorism by the international community.
Decides the Ad Hoc Committee shall continue to elaborate on a draft
convention for the suppression of terrorist financing and will continue
developing a draft convention for the suppression of acts of nuclear
terrorism.
(Continued From Previous Page)
UN General Assembly Resolution Key provisions
52/ 165 Reiterates General Assembly Resolution 51/ 210. Reaffirms the
Declaration on Measures to Eliminate
Dec. 15, 1997 International Terrorism. Requests the Ad Hoc Committee
established by UN General Assembly Resolution 51/ 210 continue its work.
Requests the Secretary General to invite the International Atomic Energy
Agency to assist the Ad Hoc Committee.
52/ 133 Recalls General Assembly resolution 50/ 186. Condemns incitement
of ethnic hatred, violence, and terrorism. Dec. 12, 1997 Requests the
Secretary General seek the views of member states on the implications of
terrorism in all its
forms and manifestations. 51/ 210
Calls upon states to adopt further measures to prevent and combat
terrorism. Some of these include: Dec. 17, 1996 accelerating research and
development of explosive detection and marking technology; investigating
the
abuse of charitable, social, and cultural organizations by terrorist
organizations; and developing mutual legal assistance procedures to
facilitate cross- border investigations. Further calls upon states to
become parties to relevant international anti- terrorism conventions and
protocols. Also establishes an Ad Hoc Committee to elaborate an
international convention for the suppression of terrorist bombings and
acts of nuclear terrorism.
Approves a supplement to the 1994 declaration on measures to Eliminate
International Terrorism, which, among other things, reaffirms that asylum
seekers may not avoid prosecution for terrorist acts and encourages states
to facilitate terrorist extraditions even in the absence of a treaty. 50/
186
Recalls General Assembly Resolution 49/ 185. Requests the Secretary-
General continue to seek the views of Dec. 22, 1995 member states on the
possible establishment of a UN voluntary fund to aid victims of terrorism,
as well as
ways and means to rehabilitate and reintegrate such victims back into
society. Requests the Secretary General submit a report to the General
Assembly containing the views of member states on these topics.
50/ 53 Reaffirms the Declaration on Measures to Eliminate International
Terrorism. Urges all states to cooperate in Dec. 11, 1995 eliminating
terrorist safe- havens and in further developing international law
regarding terrorism. Recalls the role of the Security Council in combating
terrorism. Requests the Secretary- General submit an annual report on the
implementation of paragraph 10 of the declaration. 49/ 185
Recalls General Assembly Resolution 48/ 122. Expresses solidarity with the
victims of terrorism. Requests the Dec. 23, 1994 UN Secretary General seek
views of member states on the establishment of a UN voluntary fund for
victims of
terrorism. 49/ 60
Approves the Declaration on Measures to Eliminate International Terrorism,
which, among other things, Dec. 9, 1994 unequivocally condemns all acts of
terrorism, demands that states take effective and resolute measures to
eliminate terrorism, and charges the Secretary General with various
implementation tasks. Some of these
tasks include collecting data on the status of existing international
agreements relating to terrorism and developing an international legal
framework of conventions on terrorism.
48/ 122 Condemns terrorism as an activity aimed at the destruction of
human rights, fundamental freedoms, and Dec. 20, 1993 democracy. Also
condemns terrorism for threatening state security, destabilizing
legitimate governments, undermining civil society, and obstructing
economic development. Calls upon states to take effective measures
to combat terrorism in accordance with international standards of human
rights. Urges the international community to enhance cooperation against
terrorism at many levels.
46/ 51 Recalls General Assembly Resolution 44/ 29. Welcomes the recent
adoption of the Convention on the Marking Dec. 9, 1991 of Plastic
Explosives for the Purpose of Detection.
44/ 29 Recalls General Assembly Resolution 42/ 159. Expresses concern at
the growing link between terrorist groups, Dec. 4, 1989 drug traffickers,
and paramilitary gangs. Calls upon member states to use their political
influence to secure the
safe release of all hostages. Also urges the International Civil Aviation
Organization to intensify its work on devising an international regime for
the marking of plastic explosives for purposes of detection. Welcomes the
recent adoption of aviation and maritime security conventions and
protocols.
(Continued From Previous Page)
UN General Assembly Resolution Key provisions
42/ 159 Reaffirms General Assembly Resolution 40/ 61. Urges all states to
(a) prevent the preparation and organization Dec. 7, 1987 of terrorist
acts from their territories; (b) ensure the apprehension, prosecution, or
extradition terrorist perpetrators; (c) conclude bilateral and
multilateral agreements to that effect; (d) cooperate with other states in
exchanging terrorist information; and (e) harmonize their domestic
legislation with existing international conventions to prevent terrorism.
Also welcomes the air and maritime- security conventions being drafted by
the International Civil Aviation Organization and the International
Maritime Organization. 40/ 61 Recalls General Assembly Resolution 38/ 130.
Unequivocally condemns all acts of terrorism. Urges all states Dec. 9,
1985 not to obstruct the application of appropriate law enforcement
measures against terrorist suspects provided for
in the conventions to which these states are a party. Urges states to
eliminate underlying causes of terrorism, including colonialism, racism,
and situations involving massive human rights violations. Also, calls upon
all states to follow the recommendations of the International Civil
Aviation Organization to prevent terrorist attacks
against civil aviation transport. Requests the International Maritime
Organization study the problem of terrorism against ships. 39/ 159
Condemns policies and practices of terrorism between states as a method of
dealing with other states and Dec. 17, 1984 peoples. Demands that states
refrain from taking action aimed at undermining other states. Urges all
states to
respect and observe the sovereignty and political independence of states.
38/ 130
Recalls General Assembly Resolution 34/ 145. Deeply deplores the loss of
innocent human lives and the Dec. 19, 1983 pernicious impact of
international terrorist acts on friendly relations among states as well as
on international cooperation. Re- endorses the recommendations of the Ad
Hoc Committee on International Terrorism.
36/ 109 Re- endorses the recommendations made to the General Assembly by
the Ad Hoc Committee on International Dec. 10, 1981 Terrorism and calls
upon all states to observe and implement these recommendations.
34/ 145 Unequivocally condemns all acts of international terrorism. Adopts
the recommendations of the Ad Hoc Dec. 17, 1979 Committee relating to
cooperation for the elimination of international terrorism. Calls upon
states to refrain from organizing, instigating, assisting or participating
in acts of civil strife or terrorism in another state. Appeals
to states to become parties to existing international conventions relating
to terrorism. Invites states to harmonize their domestic laws with
international conventions on terrorism and cooperate with each other more
closely in the areas of information sharing, terrorist extradition, and
terrorist prosecution. 31/ 102
Urges states to continue to seek just and peaceful solutions to the
problem of international terrorism. Reaffirms Dec. 15, 1976 the
inalienable right to self- determination of all people, and condemns the
continuation of repressive and
terrorist acts by colonial, racist, and alien regimes. Continues the work
of the Ad Hoc Committee on Terrorism in studying the underlying causes of
terrorism and requests that it submit practical measures to combat
terrorism to the Secretary General.
30/ 34 Urges states to devote their immediate attention to the growing
problem of international terrorism. Reaffirms Dec. 18, 1972 the
inalienable right to self- determination of all people under colonial
regimes and upholds the legitimacy of
national liberation movements. Also, establishes an Ad Hoc Committee on
terrorism to study the root causes and devise solutions to terrorism.
Source: United Nations.
Appendi VI x I
Organizations Visited or Contacted During the course of our review, we
visited and/ or contacted officials from the following organizations.
Cabinet Departments and Related Agencies
Department of Defense Office of the Assistant Secretary of Defense for
Special Operations and Low- Intensity Conflict, Washington, D. C.
Office of the Joint Chiefs of Staff, Washington, D. C. Unified
Combatant Commands
U. S. Central Command, MacDill Air Force Base, Florida U. S. European
Command, Patch Barracks, Stuttgart- Vaihingen, Germany
U. S. Southern Command, Miami, Florida U. S. Special Operations
Command, MacDill Air Force Base, Florida Defense Intelligence Agency,
Washington, D. C.
Defense Attaches at selected U. S. embassies (see Department of State)
Department of Homeland Bureau of Immigration and Customs Enforcement,
Washington, D. C.
Security Bureau of Customs and Border Protection, Washington, D. C.
U. S. Secret Service, Washington, D. C. Headquarters, Federal Law
Enforcement Training Center, Glynco,
Georgia
Department of Justice Criminal Division, Washington, D. C. Terrorism
Section, Washington, D. C. Federal Bureau of Investigation, Washington,
D. C.
Counterterrorism Division, Washington, D. C. Investigative Services
Division, Washington, D. C. International Operations Branch, Washington,
D. C. Legal Attache Program, Washington, D. C. Bureau of Alcohol,
Tobacco, Firearms and Explosives, Washington, D. C. International Law
Enforcement Academy, Budapest, Hungary Legal Attache at a selected U. S.
embassy (see Department of State)
Department of State Bureau of Administration, Washington, D. C. Bureau
of Consular Affairs, Washington, D. C. Bureau of Diplomatic Security,
Washington, D. C. Bureau of Economic and Business Affairs, Washington,
D. C. Bureau of Intelligence and Research, Washington, D. C. Bureau
for International Narcotics and Law Enforcement Affairs,
Washington, D. C. Bureau of International Organization Affairs,
Washington, D. C. Bureau of Overseas Buildings Operations, Washington,
D. C. Bureau of Political- Military Affairs, Washington, D. C.
Geographic Bureaus, Washington, D. C.
African Affairs, Washington, D. C. East Asian and Pacific Affairs,
Washington, D. C. European and Eurasian Affairs, Washington, D. C.
Near Eastern Affairs, Washington, D. C. South Asian Affairs, Washington,
D. C. Western Hemisphere Affairs, Washington, D. C. Office of the
Coordinator for Counterterrorism, Washington, D. C. Office of
International Information Programs, Washington, D. C. Office of the
Legal Adviser, Washington, D. C. Overseas Security Advisory Council,
Washington, D. C. U. S. Agency for International Development,
Washington, D. C.
Office of Foreign Disaster Assistance, Washington, D. C. U. S.
Embassy, Athens, Greece
Department of the Treasury Office of Foreign Assets Control, Washington,
D. C. Financial Crimes Enforcement Network, Washington, D. C. Treasury
personnel at a selected U. S. embassy (see Department of
State)
Other Agencies Central Intelligence Agency Counterterrorist Center,
Langley, Virginia Executive Office of the
National Security Council, Washington, D. C. President
Office of Homeland Security, Washington, D. C. Office of Management
and Budget, Washington, D. C.
Appendi VI x I I Comments from the Department of Defense
Comments from the U. S. Agency for
Appendi X I x International Development
Appendi X x GAO Contacts and Staff Acknowledgments GAO Contacts Raymond J.
Decker (202) 512- 6020 Stephen L. Caldwell (202) 512- 9610 Acknowledgments
In addition to those named above, Mark A. Pross; James C. Lawson; Lori L.
Kmetz; David W. Hancock; Cheryl L. Goodman; Edward J. George, Jr.;
J. Addison Ricks; Susan K. Woodward; Rebecca Shea; Harry L. (Lee) Purdy;
Michael S. (Shawn) Arbogast; John W. Van Schaik; Michael C. Zola; and
Douglas E. Cole made key contributions to this report.
Related GAO Products
Information Technology: Terrorist Watch Lists Should Be Consolidated to
Promote Better Integration and Sharing. GAO- 03- 322. Washington, D. C.:
April 15, 2003.
Combating Terrorism: Observations on National Strategies Related to
Terrorism. GAO- 03- 519T. Washington, D. C.: March 3, 2003.
Weaknesses in Screening Entrants into the United States. GAO- 03- 438T.
Washington, D. C.: January 30, 2003.
High- Risk Series: Protecting Information Systems Supporting the Federal
Government and the Nation*s Critical Infrastructures. GAO- 03- 121.
Washington, D. C.: January 1, 2003.
Major Management Challenges and Program Risks: Department of Homeland
Security. GAO- 03- 102. Washington, D. C.: January 1, 2003.
Homeland Security: Management Challenges Facing Federal Leadership.
GAO- 03- 260. Washington, D. C.: December 20, 2002.
Combating Terrorism: Funding Data Reported to Congress Should Be Improved.
GAO- 03- 170. Washington, D. C.: November 26, 2002.
Border Security: Implications of Eliminating the Visa Waiver Program. GAO-
03- 38. Washington, D. C.: November 22, 2002.
Container Security: Current Efforts to Detect Nuclear Materials, New
Initiatives, and Challenges. GAO- 03- 297T. Washington, D. C.: November
18, 2002.
Technology Assessment: Biometrics for Border Security. GAO- 03- 174.
Washington, D. C.: November 14, 2002.
Combating Terrorism: Actions Needed to Guide Services' Antiterrorism
Efforts at Installations. GAO- 03- 14. Washington, D. C.: November 1,
2002.
Border Security: Visa Process Should Be Strengthened as an Antiterrorism
Tool. GAO- 03- 132NI. Washington, D. C.: October 21, 2002.
Combating Terrorism: Department of State Programs to Combat Terrorism
Abroad. GAO- 02- 1021. Washington, D. C.: September 6, 2002.
Homeland Security: Effective Intergovernmental Coordination Is Key to
Success. GAO- 02- 1013T. Washington, D. C.: August 23, 2002.
Nonproliferation R & D: NNSA's Program Develops Successful Technologies,
but Project Management Can Be Strengthened. GAO- 01- 904. Washington, D.
C.: August 23, 2002.
Port Security: Nation Faces Formidable Challenges in Making New
Initiatives Successful. GAO- 02- 993T. Washington, D. C.: August 5, 2002.
Combating Terrorism: Preliminary Observations on Weaknesses in Force
Protection for DOD Deployments Through Domestic Seaports. GAO- 02- 955TNI.
Washington, D. C.: July 23, 2002.
International Trade: Critical Issues Remain in Determining Conflict
Diamond Trade. GAO- 02- 678. Washington, D. C.: June 14, 2002.
Nuclear Nonproliferation: U. S. Efforts to Help Other Countries Combat
Nuclear Smuggling Need Strengthened Coordination and Planning. GAO- 02-
426. Washington, D. C.: May 16, 2002.
Federal Funding for Selected Surveillance Technologies. GAO- 02- 438R.
Washington, D. C.: March 14, 2002.
Department of State: Status of Achieving Key Outcomes and Addressing Major
Management Challenges. GAO- 02- 42. Washington, D. C.: December 7, 2001.
European Security: U. S. and European Contributions to Foster Stability
and Security in Europe. GAO- 02- 174. Washington, D. C.: November 28,
2001.
Illegal Aliens: INS* Processes for Denying Aliens Entry into the United
States. GAO- 02- 220T. Washington, D. C.: November 13, 2001.
Combating Terrorism: Selected Challenges and Related Recommendations. GAO-
01- 822. Washington, D. C.: September 20, 2001.
Combating Terrorism: Actions Needed to Improve DOD Antiterrorism Program
Implementation and Management. GAO- 01- 909. Washington, D. C.: September
19, 2001.
International Crime Control: Sustained Executive- Level Coordination of
Federal Response Needed. GAO- 01- 629. Washington, D. C.: August 13, 2001.
FBI Intelligence Investigations: Coordination Within Justice on
Counterintelligence Criminal Matters Is Limited. GAO- 01- 780. Washington,
D. C.: July 16, 2001.
Combating Terrorism: Observations on Options to Improve the Federal
Response. GAO- 01- 660T. Washington, D. C.: April 24, 2001.
Combating Terrorism: Comments on Counterterrorism Leadership and National
Strategy. GAO- 01- 556T. Washington, D. C.: March 27, 2001.
Nuclear Nonproliferation: Security of Russia's Nuclear Material Improving;
Further Enhancements Needed. GAO- 01- 312. Washington, D. C.: February 28,
2001.
Embassy Construction: Better Long- term Planning Will Enhance Program
Decision- making. GAO- 01- 11. Washington, D. C.: January 22, 2001.
State Department: Serious Problems in the Anthrax Vaccine Immunization
Program. GAO- 01- 21. Washington, D. C.: December 13, 2000.
Combating Terrorism: Federal Response Teams Provide Varied Capabilities:
Opportunities Remain to Improve Coordination. GAO- 01- 14. Washington, D.
C.: November 30, 2000.
No Information to Link Irish Terrorist Organizations to International
Narcotics Trafficking. GAO/ OSI- 00- 18R. Washington, D. C.: September 29,
2000.
Combating Terrorism: Linking Threats to Strategies and Resources. GAO/ T-
NSIAD- 00- 218. Washington, D. C.: July 26, 2000.
Combating Terrorism: Action Taken but Considerable Risks Remain for Forces
Overseas. GAO/ NSIAD- 00- 181. Washington, D. C.: July 19, 2000.
Observations on the Department of State's Fiscal Year 1999 Performance
Report and Fiscal Year 2001 Performance Plan. GAO/ NSIAD- 00- 189R.
Washington, D. C.: June 30, 2000.
Weapons of Mass Destruction: DOD*s Actions to Combat Weapons Use Should Be
More Integrated and Focused. GAO/ NSIAD- 00- 97. Washington, D. C.: May
26, 2000.
Combating Terrorism: Comments on Bill H. R. 4210 to Manage Selected
Counterterrorist Programs. GAO/ T- NSIAD- 00- 172. Washington, D. C.: May
4, 2000.
Combating Terrorism: How Five Foreign Countries Are Organized to Combat
Terrorism. GAO/ NSIAD- 00- 85. Washington, D. C.: April 7, 2000.
Combating Terrorism: Issues in Managing Counterterrorist Programs. GAO/ T-
NSIAD- 00- 145. Washington, D. C.: April 6, 2000.
State Department: Overseas Emergency Security Program Progressing, but
Costs Are Increasing. GAO/ NSIAD- 00- 83. Washington, D. C.: March 8,
2000.
State Department: Progress and Challenges in Addressing Management Issues.
GAO/ T- NSIAD- 00- 124. Washington, D. C.: March 8, 2000.
Chemical and Biological Defense: Observations on Actions Taken to Protect
Military Forces. GAO/ T- NSIAD- 00- 49. Washington, D. C.: October 20,
1999.
Combating Terrorism: Observations on the Threat of Chemical and Biological
Terrorism. GAO/ T- NSIAD- 00- 50. Washington, D. C.: October 20, 1999.
Combating Terrorism: Need for Comprehensive Threat and Risk Assessments of
Chemical and Biological Attacks. GAO/ NSIAD- 99- 163. Washington, D. C.:
September 7, 1999.
Military Training: Management and Oversight of Joint Combined Exchange
Training. GAO/ NSIAD- 99- 173. Washington, D. C.: July 23, 1999.
Combating Terrorism: Analysis of Federal Counterterrorist Exercises. GAO/
NSIAD- 99- 157BR. Washington, D. C.: June 25, 1999.
Combating Terrorism: Issues to Be Resolved to Improve Counterterrorism
Operations. GAO/ NSIAD- 99- 135. Washington, D. C.: May 13, 1999.
Terrorism and Drug Trafficking: Testing Status and Views on Operational
Viability of Pulsed Fast Neutron Analysis Technology. GAO/ GDD- 99- 54.
Washington, D. C.: April 13, 1999.
Combating Terrorism: Observations on Federal Spending to Combat Terrorism.
GAO/ T- NSIAD/ GGD- 99- 107. Washington, D. C.: March 11, 1999.
Major Management Challenges and Program Risks: Department of State. GAO/
OCG- 99- 12. Washington, D. C.: January 1, 1999.
Combating Terrorism: FBI's Use of Federal Funds for
CounterterrorismRelated Activities (FYs 1995- 1998). GAO/ GGD- 99- 7.
Washington, D. C.: November 20, 1998.
Combating Terrorism: Observations on Crosscutting Issues. GAO/ T- NSIAD-
98- 164. Washington, D. C.: April 23, 1998.
Combating Terrorism: Threat and Risk Assessments Can Help Prioritize and
Target Program Investments. GAO/ NSIAD- 98- 74. Washington, D. C.: April
9, 1998.
Combating Terrorism: Spending on Governmentwide Programs Requires Better
Management and Coordination. GAO/ NSIAD- 98- 39. Washington, D. C.:
December 1, 1997.
Combating Terrorism: Efforts to Protect U. S. Forces in Turkey and the
Middle East. GAO/ T- NSIAD- 98- 44. Washington, D. C.: October 28, 1997.
Combating Terrorism: Federal Agencies' Efforts to Implement National
Policy and Strategy. GAO/ NSIAD- 97- 254. Washington, D. C.: September 26,
1997.
Combating Terrorism: Status of DOD Efforts to Protect Its Force Overseas.
GAO/ NSIAD- 97- 207. Washington, D. C.: July 21, 1997.
State Department: Efforts to Reduce Visa Fraud. GAO/ T- NSIAD- 97- 167.
Washington, D. C.: May 20, 1997.
Aviation Security: FAA's Procurement of Explosives Detection Devices. GAO/
RCED- 97- 111R. Washington, D. C.: May 1, 1997.
Department of Energy: Information on the Distribution of Funds for
Counterintelligence Programs and the Resulting Expansion of These
Programs. GAO/ RCED- 97- 128R. Washington, D. C.: April 25, 1997.
Aviation Security: Commercially Available Advanced Explosives Detection
Devices. GAO/ RCED- 97- 119R. Washington, D. C.: April 24, 1997.
Terrorism and Drug Trafficking: Responsibilities for Developing Explosives
and Narcotics Detection Technologies. GAO/ NSIAD- 97- 95. Washington, D.
C.: April 15, 1997.
Terrorism and Drug Trafficking: Technologies for Detecting Explosives and
Narcotics. GAO/ NSIAD/ RCED- 96- 252. Washington, D. C.: September 4,
1996.
Aviation Security: Immediate Action Needed to Improve Security. GAO/ T-
RCED/ NSIAD- 96- 237. Washington, D. C.: August 1, 1996.
Passports and Visas: Status of Efforts to Reduce Fraud. GAO/ NSIAD- 96-
99. Washington, D. C.: May 9, 1996.
Terrorism and Drug Trafficking: Threats and Roles of Explosives and
Narcotics Detection Technology. GAO/ NSIAD/ RCED- 96- 76BR. Washington, D.
C.: March 27, 1996.
Nuclear Nonproliferation: Status of U. S. Efforts to Improve Nuclear
Material Controls in Newly Independent States. GAO/ NSIAD/ RCED- 96- 89.
Washington, D. C.: March 8, 1996.
Nonimmigrant Visa Processing. GAO/ NSIAD- 95- 122R. Washington, D. C.:
April 17, 1995.
Aviation Security: Additional Actions Needed to Meet Domestic and
International Challenges. GAO/ RCED- 94- 38. Washington, D. C.: January
27, 1994.
Foreign Assistance: Meeting the Training Needs of Police in New
Democracies. GAO/ NSIAD- 93- 109. Washington, D. C.: January 21, 1993.
Foreign Assistance: Promising Approach to Judicial Reform in Colombia.
GAO/ NSIAD- 92- 269. Washington, D. C.: September 24, 1992.
Russian Nuclear Weapons: U. S. Implementation of the Soviet Nuclear Threat
Reduction Act of 1991. GAO/ T- NSIAD- 92- 47. Washington, D. C.: July 27,
1992.
Foreign Aid: Police Training and Assistance. GAO/ NSIAD- 92- 118.
Washington, D. C.: March 5, 1992.
Economic Sanctions: Effectiveness as Tools of Foreign Policy. GAO/ NSIAD-
92- 106. Washington, D. C.: February 19, 1992.
State Department: Management Weaknesses in the Security Construction
Program. GAO/ NSIAD- 92- 2. Washington, D. C.: November 29, 1991.
Preliminary Inquiry into Alleged 1980 Negotiations to Delay Release of
Iranian Hostages until after November Election. GAO/ T- OSI- 92- 4.
Washington, D. C.: November 21, 1991.
Preliminary Inquiry into Alleged 1980 Negotiations to Delay Release of
Iranian Hostages until after November Election. GAO/ T- OSI- 92- 1.
Washington, D. C.: November 7, 1991.
State Department: Status of the Diplomatic Security Construction Program.
GAO/ NSIAD- 91- 143BR. Washington, D. C.: February 20, 1991.
International Terrorism: FBI Investigates Domestic Activities to Identify
Terrorists. GAO/ GGD- 90- 112. Washington, D. C.: September 7, 1990.
Aviation Security: Training Standards Needed for Extra Security Measures
at Foreign Airports. GAO/ RCED- 90- 66. Washington, D. C.: December 15,
1989.
International Terrorism: Status of GAO's Review of the FBI's International
Terrorism Program. GAO/ T- GGD- 89- 31. Washington, D. C.: June 22, 1989.
Embassy Security: Background Investigations of Foreign Employees. GAO/
NSIAD- 89- 76. Washington, D. C.: January 5, 1989.
Security Assistance: Update of Programs and Related Activities. GAO/
NSIAD- 89- 78FS. Washington, D. C.: December 28, 1988.
Aviation Security: FAA's Assessments of Foreign Airports. GAO/ RCED- 89-
45. Washington, D. C.: December 7, 1988.
Passports: Implications of Deleting the Birthplace in U. S. Passports.
GAO/ NSIAD- 87- 201. Washington, D. C.: August 27, 1987.
Terrorism: Laws Cited Imposing Sanctions on Nations Supporting Terrorism.
GAO/ NSIAD- 87- 133FS. Washington, D. C.: April 17, 1987.
Obstacles to U. S. Ability to Control and Track Weapons- Grade Uranium
Supplied Abroad. GAO/ ID- 82- 21. Washington, D. C.: August 2, 1982.
(350092)
a
GAO United States General Accounting Office
Page i GAO- 03- 165 Combating Terrorism
Contents
Contents
Page ii GAO- 03- 165 Combating Terrorism
Contents
Page iii GAO- 03- 165 Combating Terrorism
Contents
Page iv GAO- 03- 165 Combating Terrorism
Contents
Page v GAO- 03- 165 Combating Terrorism
Contents Page vi GAO- 03- 165 Combating Terrorism
Page 1 GAO- 03- 165 Combating Terrorism United States General Accounting
Office Washington, D. C. 20548
Page 1 GAO- 03- 165 Combating Terrorism
A
Page 2 GAO- 03- 165 Combating Terrorism
Page 3 GAO- 03- 165 Combating Terrorism
Page 4 GAO- 03- 165 Combating Terrorism
Executive Summary Page 5 GAO- 03- 165 Combating Terrorism
Executive Summary Page 6 GAO- 03- 165 Combating Terrorism
Executive Summary Page 7 GAO- 03- 165 Combating Terrorism
Executive Summary Page 8 GAO- 03- 165 Combating Terrorism
Executive Summary Page 9 GAO- 03- 165 Combating Terrorism
Executive Summary Page 10 GAO- 03- 165 Combating Terrorism
Executive Summary Page 11 GAO- 03- 165 Combating Terrorism
Page 12 GAO- 03- 165 Combating Terrorism
Chapter 1
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 13 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 14 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 15 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 16 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 17 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 18 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 19 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 20 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 21 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 22 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 23 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 24 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 25 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 26 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 27 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 28 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 29 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 30 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 31 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 32 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 33 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 34 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 35 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 36 GAO- 03- 165 Combating Terrorism
Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
Role
Page 37 GAO- 03- 165 Combating Terrorism
Page 38 GAO- 03- 165 Combating Terrorism
Chapter 2
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 39 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 40 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 41 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 42 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 43 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 44 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 45 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 46 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 47 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 48 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 49 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 50 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 51 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 52 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 53 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 54 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 55 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 56 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 57 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 58 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 59 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 60 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 61 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 62 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 63 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 64 GAO- 03- 165 Combating Terrorism
Chapter 2 The Interagency Framework for Combating Terrorism Overseas
Page 65 GAO- 03- 165 Combating Terrorism
Page 66 GAO- 03- 165 Combating Terrorism
Chapter 3
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 67 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 68 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 69 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 70 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 71 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 72 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 73 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 74 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 75 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 76 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 77 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 78 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 79 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 80 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 81 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 82 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 83 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 84 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 85 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 86 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 87 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 88 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 89 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 90 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 91 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 92 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 93 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 94 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrorism
Page 95 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 96 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 97 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 98 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 99 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 100 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrorism
Page 101 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 102 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 103 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 104 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 105 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 106 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 107 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 108 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 109 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrorism
Page 110 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 111 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 112 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 113 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 114 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 115 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 116 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 117 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 118 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 119 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrorism
Page 120 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 121 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrorism
Page 122 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 123 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 124 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 125 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 126 GAO- 03- 165 Combating Terrorism
Chapter 3 Federal Efforts to Detect and Prevent Terrori sm
Page 127 GAO- 03- 165 Combating Terrorism
Page 128 GAO- 03- 165 Combating Terrorism
Chapter 4
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 129 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 130 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 131 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 132 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 133 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 134 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 135 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 136 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 137 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 138 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 139 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 140 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 141 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 142 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 143 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 144 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 145 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 146 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 147 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 148 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 149 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 150 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 151 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 152 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 153 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 154 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 155 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 156 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 157 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 158 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 159 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 160 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 161 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 162 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 163 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 164 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 165 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 166 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 167 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 168 GAO- 03- 165 Combating Terrorism
Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations
Page 169 GAO- 03- 165 Combating Terrorism
Page 170 GAO- 03- 165 Combating Terrorism
Chapter 5
Chapter 5 Federal Efforts to Respond to Terrorist Incidents Overseas
Page 171 GAO- 03- 165 Combating Terrorism
Chapter 5 Federal Efforts to Respond to Terrorist Incidents Overseas
Page 172 GAO- 03- 165 Combating Terrorism
Chapter 5 Federal Efforts to Respond to Terrorist Incidents Overseas
Page 173 GAO- 03- 165 Combating Terrorism
Chapter 5 Federal Efforts to Respond to Terrorist Incidents Overseas
Page 174 GAO- 03- 165 Combating Terrorism
Chapter 5 Federal Efforts to Respond to Terrorist Incidents Overseas
Page 175 GAO- 03- 165 Combating Terrorism
Chapter 5 Federal Efforts to Respond to Terrorist Incidents Overseas
Page 176 GAO- 03- 165 Combating Terrorism
Chapter 5 Federal Efforts to Respond to Terrorist Incidents Overseas
Page 177 GAO- 03- 165 Combating Terrorism
Chapter 5 Federal Efforts to Respond to Terrorist Incidents Overseas
Page 178 GAO- 03- 165 Combating Terrorism
Chapter 5 Federal Efforts to Respond to Terrorist Incidents Overseas
Page 179 GAO- 03- 165 Combating Terrorism
Chapter 5 Federal Efforts to Respond to Terrorist Incidents Overseas
Page 180 GAO- 03- 165 Combating Terrorism
Chapter 5 Federal Efforts to Respond to Terrorist Incidents Overseas
Page 181 GAO- 03- 165 Combating Terrorism
Chapter 5 Federal Efforts to Respond to Terrorist Incidents Overseas
Page 182 GAO- 03- 165 Combating Terrorism
Chapter 5 Federal Efforts to Respond to Terrorist Incidents Overseas
Page 183 GAO- 03- 165 Combating Terrorism
Page 184 GAO- 03- 165 Combating Terrorism
Appendix I
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 185 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 186 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 187 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 188 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 189 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 190 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 191 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 192 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 193 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 194 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 195 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 196 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 197 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 198 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 199 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 200 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 201 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 202 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 203 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 204 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 205 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 206 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 207 GAO- 03- 165 Combating Terrorism
Appendix I Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas
Page 208 GAO- 03- 165 Combating Terrorism
Page 209 GAO- 03- 165 Combating Terrorism
Appendix II
Appendix II Matrix of Department of Homeland Security Programs and
Activities to Combat Terrorism Overseas
Page 210 GAO- 03- 165 Combating Terrorism
Appendix II Matrix of Department of Homeland Security Programs and
Activities to Combat Terrorism Overseas
Page 211 GAO- 03- 165 Combating Terrorism
Appendix II Matrix of Department of Homeland Security Programs and
Activities to Combat Terrorism Overseas
Page 212 GAO- 03- 165 Combating Terrorism
Appendix II Matrix of Department of Homeland Security Programs and
Activities to Combat Terrorism Overseas
Page 213 GAO- 03- 165 Combating Terrorism
Appendix II Matrix of Department of Homeland Security Programs and
Activities to Combat Terrorism Overseas
Page 214 GAO- 03- 165 Combating Terrorism
Page 215 GAO- 03- 165 Combating Terrorism
Appendix III
Appendix III Matrix of Department of Justice Programs and Activities to
Combat Terrorism Overseas
Page 216 GAO- 03- 165 Combating Terrorism
Appendix III Matrix of Department of Justice Programs and Activities to
Combat Terrorism Overseas
Page 217 GAO- 03- 165 Combating Terrorism
Appendix III Matrix of Department of Justice Programs and Activities to
Combat Terrorism Overseas
Page 218 GAO- 03- 165 Combating Terrorism
Appendix III Matrix of Department of Justice Programs and Activities to
Combat Terrorism Overseas
Page 219 GAO- 03- 165 Combating Terrorism
Appendix III Matrix of Department of Justice Programs and Activities to
Combat Terrorism Overseas
Page 220 GAO- 03- 165 Combating Terrorism
Appendix III Matrix of Department of Justice Programs and Activities to
Combat Terrorism Overseas
Page 221 GAO- 03- 165 Combating Terrorism
Appendix III Matrix of Department of Justice Programs and Activities to
Combat Terrorism Overseas
Page 222 GAO- 03- 165 Combating Terrorism
Appendix III Matrix of Department of Justice Programs and Activities to
Combat Terrorism Overseas
Page 223 GAO- 03- 165 Combating Terrorism
Appendix III Matrix of Department of Justice Programs and Activities to
Combat Terrorism Overseas
Page 224 GAO- 03- 165 Combating Terrorism
Page 225 GAO- 03- 165 Combating Terrorism
Appendix IV
Appendix IV Matrix of Department of State Programs and Activities to
Combat Terrorism Overseas
Page 226 GAO- 03- 165 Combating Terrorism
Appendix IV Matrix of Department of State Programs and Activities to
Combat Terrorism Overseas
Page 227 GAO- 03- 165 Combating Terrorism
Appendix IV Matrix of Department of State Programs and Activities to
Combat Terrorism Overseas
Page 228 GAO- 03- 165 Combating Terrorism
Appendix IV Matrix of Department of State Programs and Activities to
Combat Terrorism Overseas
Page 229 GAO- 03- 165 Combating Terrorism
Appendix IV Matrix of Department of State Programs and Activities to
Combat Terrorism Overseas
Page 230 GAO- 03- 165 Combating Terrorism
Appendix IV Matrix of Department of State Programs and Activities to
Combat Terrorism Overseas
Page 231 GAO- 03- 165 Combating Terrorism
Appendix IV Matrix of Department of State Programs and Activities to
Combat Terrorism Overseas
Page 232 GAO- 03- 165 Combating Terrorism
Appendix IV Matrix of Department of State Programs and Activities to
Combat Terrorism Overseas
Page 233 GAO- 03- 165 Combating Terrorism
Appendix IV Matrix of Department of State Programs and Activities to
Combat Terrorism Overseas
Page 234 GAO- 03- 165 Combating Terrorism
Appendix IV Matrix of Department of State Programs and Activities to
Combat Terrorism Overseas
Page 235 GAO- 03- 165 Combating Terrorism
Appendix IV Matrix of Department of State Programs and Activities to
Combat Terrorism Overseas
Page 236 GAO- 03- 165 Combating Terrorism
Appendix IV Matrix of Department of State Programs and Activities to
Combat Terrorism Overseas
Page 237 GAO- 03- 165 Combating Terrorism
Appendix IV Matrix of Department of State Programs and Activities to
Combat Terrorism Overseas
Page 238 GAO- 03- 165 Combating Terrorism
Page 239 GAO- 03- 165 Combating Terrorism
Appendix V
Appendix V Matrix of Department of the Treasury Programs and Activities to
Combat Terrorism Overseas
Page 240 GAO- 03- 165 Combating Terrorism
Appendix V Matrix of Department of the Treasury Programs and Activities to
Combat Terrorism Overseas
Page 241 GAO- 03- 165 Combating Terrorism
Appendix V Matrix of Department of the Treasury Programs and Activities to
Combat Terrorism Overseas
Page 242 GAO- 03- 165 Combating Terrorism
Page 243 GAO- 03- 165 Combating Terrorism
Appendix VI
Appendix VI United Nations Protocols, Conventions, and Resolutions Related
to Terrorism
Page 244 GAO- 03- 165 Combating Terrorism
Appendix VI United Nations Protocols, Conventions, and Resolutions Related
to Terrorism
Page 245 GAO- 03- 165 Combating Terrorism
Appendix VI United Nations Protocols, Conventions, and Resolutions Related
to Terrorism
Page 246 GAO- 03- 165 Combating Terrorism
Appendix VI United Nations Protocols, Conventions, and Resolutions Related
to Terrorism
Page 247 GAO- 03- 165 Combating Terrorism
Appendix VI United Nations Protocols, Conventions, and Resolutions Related
to Terrorism
Page 248 GAO- 03- 165 Combating Terrorism
Page 249 GAO- 03- 165 Combating Terrorism
Appendix VII
Appendix VII Organizations Visited or Contacted
Page 250 GAO- 03- 165 Combating Terrorism
Appendix VII Organizations Visited or Contacted
Page 251 GAO- 03- 165 Combating Terrorism
Appendix VII Organizations Visited or Contacted
Page 252 GAO- 03- 165 Combating Terrorism
Page 253 GAO- 03- 165 Combating Terrorism
Appendix VIII
Page 254 GAO- 03- 165 Combating Terrorism
Appendix IX
Page 255 GAO- 03- 165 Combating Terrorism
Appendix X
Page 256 GAO- 03- 165 Combating Terrorism
Related GAO Products Page 257 GAO- 03- 165 Combating Terrorism
Related GAO Products Page 258 GAO- 03- 165 Combating Terrorism
Related GAO Products Page 259 GAO- 03- 165 Combating Terrorism
Related GAO Products Page 260 GAO- 03- 165 Combating Terrorism
Related GAO Products Page 261 GAO- 03- 165 Combating Terrorism
Related GAO Products Page 262 GAO- 03- 165 Combating Terrorism
Related GAO Products Page 263 GAO- 03- 165 Combating Terrorism
GAO*s Mission The General Accounting Office, the audit, evaluation and
investigative arm of Congress, exists to support Congress in meeting its
constitutional responsibilities
and to help improve the performance and accountability of the federal
government for the American people. GAO examines the use of public funds;
evaluates federal programs and policies; and provides analyses,
recommendations, and other assistance to help Congress make informed
oversight, policy, and funding decisions. GAO*s commitment to good
government is reflected in its core values of accountability, integrity,
and reliability.
Obtaining Copies of GAO Reports and Testimony
The fastest and easiest way to obtain copies of GAO documents at no cost
is through the Internet. GAO*s Web site (www. gao. gov) contains abstracts
and fulltext files of current reports and testimony and an expanding
archive of older products. The Web site features a search engine to help
you locate documents using key words and phrases. You can print these
documents in their entirety, including charts and other graphics.
Each day, GAO issues a list of newly released reports, testimony, and
correspondence. GAO posts this list, known as *Today*s Reports,* on its
Web site daily. The list contains links to the full- text document files.
To have GAO e- mail this
list to you every afternoon, go to www. gao. gov and select *Subscribe to
GAO Mailing Lists* under *Order GAO Products* heading.
Order by Mail or Phone The first copy of each printed report is free.
Additional copies are $2 each. A check or money order should be made out
to the Superintendent of Documents. GAO
also accepts VISA and Mastercard. Orders for 100 or more copies mailed to
a single address are discounted 25 percent. Orders should be sent to:
U. S. General Accounting Office 441 G Street NW, Room LM Washington, D. C.
20548 To order by Phone: Voice: (202) 512- 6000 TDD: (202) 512- 2537 Fax:
(202) 512- 6061
To Report Fraud, Waste, and Abuse in Federal Programs
Contact: Web site: www. gao. gov/ fraudnet/ fraudnet. htm E- mail:
fraudnet@ gao. gov Automated answering system: (800) 424- 5454 or (202)
512- 7470
Public Affairs Jeff Nelligan, Managing Director, NelliganJ@ gao. gov (202)
512- 4800 U. S. General Accounting Office, 441 G Street NW, Room 7149
Washington, D. C. 20548
United States General Accounting Office Washington, D. C. 20548- 0001
Official Business Penalty for Private Use $300 Address Service Requested
Presorted Standard Postage & Fees Paid
GAO Permit No. GI00
*** End of document. ***