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Report to Congressional Requesters:

May 2003:

Combating Terrorism:

Interagency Framework and Agency Programs to Address the 
Overseas Threat:

GAO-03-165:

GAO Highlights:

Highlights of GAO-03-165, a report to Congressional Requesters 

Why GAO Did This Report:

In response to the terrorist attacks of September 11, 2001, the federal 
government has taken unprecedented actions in international diplomacy, 
law enforcement, intelligence, and military operations. Combating 
terrorism is now at the top of the national security agenda and 
significant changes have occurred in the governments organization and 
spending on these matters. For fiscal year 2004, the President 
requested $11.4 billion to combat terrorism overseas.

GAO was asked to develop baseline information on federal agencies 
programs and activities to combat terrorism overseas. This report is 
intended to assist the Congress in its oversight of these efforts. 
Specifically, this report describes the interagency framework for 
planning, executing, and coordinating related federal efforts. 
Additionally, this report identifies and describes the federal 
programs and activities to detect and prevent terrorism overseas, 
disrupt and destroy terrorist organizations overseas, and respond to 
terrorist incidents overseas. Because of the number of agencies and 
wide spectrum of programs involved in combating terrorism overseas, 
this informational report does not evaluate program effectiveness.

Several agencies provided comments on a draft of this report and GAO 
incorporated them, as appropriate, to improve the accuracy of the 
report.

What GAO Found:

The National Security Council manages an interagency framework to 
combat terrorism overseas. The President, National Security Council, 
and federal agencies have published a series of related directives and 
strategies to guide federal efforts. To implement the directives and 
strategies, various federal agencies are assigned key roles and 
responsibilities. Because many agencies are involved, there are 
several mechanisms to coordinate across agencies. Within this 
framework, efforts can be divided into three areas:

* Detect and prevent including efforts to gather 
intelligence, protect facilities and persons overseas, impact foreign 
opinion through public diplomacy, prevent terrorists and their 
materials from entering the United States, and improve other nations 
capabilities.

* Disrupt and destroy terrorist organizations: includes diplomacy; 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.

* Respond to an international terrorist incident: consists of 
pre-event preparations, managing the crisis and consequences of an 
attack, and reviewing incidents for lessons learned.


What GAO Recommends:

In response to the terrorist attacks of September 11, 2001, the 
federal government has taken unprecedented actions in international 
diplomacy, law enforcement, intelligence, and military operations. 
Combating terrorism is now at the top of the national security agenda 
and significant changes have occurred in the governments organization 
and spending on these matters. For fiscal year 2004, the President 
requested $11.4 billion to combat terrorism overseas.

GAO was asked to develop baseline information on federal agencies 
programs and activities to combat terrorism overseas. This report is 
intended to assist the Congress in its oversight of these efforts. 
Specifically, this report describes the interagency framework for 
planning, executing, and coordinating related federal efforts. 
Additionally, this report identifies and describes the federal 
programs and activities to detect and prevent terrorism overseas, 
disrupt and destroy terrorist organizations overseas, and respond to 
terrorist incidents overseas. Because of the number of agencies and 
wide spectrum of programs involved in combating terrorism overseas, 
this informational report does not evaluate program effectiveness.

Several agencies provided comments on a draft of this report and GAO 
incorporated them, as appropriate, to improve the accuracy of the 
report.

www.gao.gov/cgi-bin/getrpt?GAO-03-165.

To view the full product, including the scope and methodology, click 
on the link above. For more information, contact Raymond J. Decker at 
(202) 512-6020 or deckerrj@gao.gov.

[End of section]

Transmittal Letter:

Executive Summary:

Purpose:

Background:

Results in Brief:

GAO's Analysis:

Agency Comments and Our Evaluation:

Chapter 1: Introduction: Terrorism Overseas and the Federal 
Government's Role:

Definitions for Terrorism and Combating Terrorism:

The Threat of Terrorism Overseas:

The Federal Government's Role and Resources for Combating 
Terrorism Overseas:

Objectives, Scope, and Methodology:

Chapter 2: The Interagency Framework for Combating Terrorism Overseas:

Policies, Plans, and Legislation:

Roles and Responsibilities of Key Federal Agencies:

Interagency Coordination Mechanisms:

Agency Comments and Our Evaluation:

Chapter 3: Federal Efforts to Detect and Prevent Terrorism:

Intelligence Gathering and Analysis Help Detect 
Terrorist Activities:

Protecting U.S. Government Facilities and Americans Abroad:

Public Diplomacy Builds International Support for U.S. Foreign Policy:

Visa and Border Controls Are Intended to Prevent Terrorists and Their 
Materials from Entering the United States:

Coalition Capabilities Are Enhanced through Bilateral Programs 
and Activities:

Agency Comments and Our Evaluation:

Chapter 4: Federal Efforts to Disrupt and Destroy Terrorist 
Organizations: 

Diplomatic Initiatives Strengthen International Cooperation:

Law Enforcement Efforts to Disrupt Terrorist Organizations:

Identifying and Freezing Terrorists' Financial Assets Disrupts 
Terrorist Organizations:

Military Operations Provide Means to Destroy Terrorist Organizations:

Covert Actions Can Be Used to Disrupt and Destroy Terrorist 
Organizations:

Agency Comments and Our Evaluation:

Chapter 5: Federal Effforts to Respond to Terrorist Incidents Overseas:

Advance Preparations for Terrorist Incidents:

Response to a Terrorist Incident Overseas:

Evaluations in the Aftermath of a Terrorist Incident:

Agency Comments and Our Evaluation:

Appendixes:

Appendix I: Matrix of Department of Defense Programs and Activities to
Combat Terrorism Overseas:

Appendix II: Matrix of Department of Homeland Security Programs and
Activities to Combat Terrorism Overseas:

Appendix III: Matrix of Department of Justice Programs and Activities 
to Combat Terrorism Overseas:

Appendix IV: Matrix of Department of State Programs and Activities to
Combat Terrorism Overseas:

Appendix V: Matrix of Department of the Treasury Programs and
Activities to Combat Terrorism Overseas:

Appendix VI: United Nations Protocols, Conventions, and Resolutions
Related to Terrorism:

Appendix VII: Organizations Visited or Contacted:

Appendix VIII: Comments from the Department of Defense:

Appendix IX: Comments from the U.S. Agency for International
Development:

Appendix X: GAO Contacts and Staff Acknowledgments:

Related GAO Products:

Tables:

Table 1: Fiscal Year 2004 President's Request for Funding to Combat 
Terrorism Domestically and Overseas (Gross Budget Authority):

Table 2: National Strategies Related to Combating Terrorism:

Table 3: Goals and Objectives in the National Strategy for Combating 
Terrorism:

Table 4: NSC-Sponsored Interagency Working Groups Under the 
Counterterrorism Security Group to Coordinate Efforts to Combat 
Terrorism Overseas:

Table 5: Selected Members of the Interagency Intelligence Committee on 
Terrorism:

Table 6: U.S. Nonproliferation Assistance Programs:

Table 7: Federal Agencies' Roles in Investigating Terrorist-Related 
Incidents Overseas:

Table 8: Reported Extraditions and Renditions of Terrorists to the 
United States, 1987-2001:

Table 9: Significant Military Contributions by Selected Coalition 
Partners in and around Afghanistan in Support of Operation Enduring 
Freedom:

Table 10: Department of Defense Programs and Activities to Combat 
Terrorism Overseas:

Table 11: Department of Homeland Security Programs and Activities to 
Combat Terrorism Overseas:

Table 12: Department of Justice Programs and Activities to Combat 
Terrorism Overseas:

Table 13: Department of State Programs and Activities to Combat 
Terrorism Overseas:

Table 14: Department of the Treasury Programs and Activities to Combat 
Terrorism Overseas:

Table 15: UN Conventions and Protocols Related to Terrorism:

Table 16: UN Security Council Resolutions Related to Terrorism:

Table 17: UN General Assembly Resolutions Related to Terrorism:

Figures:

Figure 1: The Pentagon in Flames Moments after International Terrorists 
Crash a Hijacked Aircraft into the Building on September 11, 2001:

Figure 2: Total International Terrorist Attacks, 1981-2001:

Figure 3: Types of International Terrorist Attacks Against Americans by 
Percentage, 1988-2001:

Figure 4: Terrorist Attacks Against U.S. Targets during 2001 by Type of 
Targets Attacked:

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 :

Figure 7: Relationships Between and Among National Strategies Related to 
Combating Terrorism Overseas:

Figure 8: Host Nation Police Use Buses to Cordon off a U.S. Embassy 
during a Heightened Threat Period:

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:

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:

Figure 11: UN Security Council Unanimously Adopts Resolution 1373, 
Calling for Wide-Ranging International Cooperation to Combat Terrorism:

Figure 12: Air Force B-52H Bomber Drops a Load of M117 750 lb. Bombs:

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:

Figure 15: Camp X-Ray Used as a Temporary Holding Facility for Detainees 
Held at U.S. Naval Air Station Guantnamo Bay, Cuba:

Figure 16: NATO Member France Provided Six Mirage 2000 Aircraft to Fly 
Reconnaissance Missions in Support of Operation Enduring Freedom:

Figure 17: USS Cole Damaged by a Terrorist Bomb Explosion While 
Refueling at the Port of Aden, Yemen:

Figure 18: Federal Response Teams That Could Respond to a Weapons of 
Mass Destruction Incident Overseas:

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

Transmittal Letter May 23, 2003:

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 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:

Signed by Raymond J. Decker:

[End of section]

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 long-standing. 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 for Combating Terrorism:

The National Security Council and its Director 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 national-level 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 Prevent Terrorism:

Gathering and analyzing intelligence outside of the United States are 
the 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 Destroy Terrorist Organizations:

Diplomacy and cooperation with other countries, led by the Department 
of State, enables that department and other federal agencies to 
undertake a 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 Terrorist Incidents:

The federal government takes many advance preparations in anticipation 
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 Our Evaluation:

GAO provided a draft of the report to several federal agencies in March 
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.

[End of section]

Chapter 1: Introduction: Terrorism Overseas and the 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).[Footnote 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 and Combating Terrorism:

"Terrorism" generally is defined as politically motivated violence to 
coerce a government or civilian population. However, no single 
definition of terrorism has gained universal acceptance by the U.S. 
government and 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 
clandestine agents."[Footnote 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."[Footnote 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."[Footnote 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 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:

[See PDF for image]

[End of figure] 

"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."[Footnote 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 Terrorism Overseas:

International terrorists use a variety of tactics in their attacks 
against the 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.

Terrorist Organizations Use Variety of Tactics to Attack American 
Targets Worldwide:

According to the CIA, the threat of terrorist attacks against U.S. 
personnel, facilities, and interests overseas is greater now than ever 
before because of the number and types of terrorist organizations, the 
lethality of terrorists' 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:

[See PDF for image] 

[End of figure] 

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.[Footnote 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 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:

[See PDF for image] 

Note: "Other" consists of drugging, sabotage, physical harassment, 
mortar/landmine, bomb/rocket hoax, banditry, sit-in, and other/
incidental.

[End of figure] 

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:

[See PDF for image] 

[End of figure] 

Terrorism Varies by Region, With Most Attacks Occurring in Latin 
America:

Terrorism--both in the number of attacks and the nature of the threat-
-varies by region. The overwhelming number of attacks have occurred in 
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:

[See PDF for image] 

[End of figure] 

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.[Footnote 7] Finally, 
one African nation--Sudan--has been designated by the State Department 
as one of seven countries worldwide that sponsors terrorism.[Footnote 
8] Figure 6 shows the aftermath of the 1998 terrorist bombing of a U.S. 
embassy in East Africa.

Figure 6: Aftermath of the al Qaeda Terrorist Bombing of the U.S. 
Embassy in Dar es-Salaam, Tanzania, in August 1998:

[See PDF for image] 

[End of figure] 

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 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.[Footnote 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.[Footnote 10] These transnational threats are increasingly 
linked as they share common infrastructure, transit patterns, 
corrupting means, and illicit mechanisms. 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.[Footnote 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 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 Threat of Terrorism:

The increase in the level and severity of international terrorism (and 
other 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 computer-supported 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 Institutions:

Institutional shortcomings in foreign countries exacerbate federal 
efforts 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.[Footnote 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 Terrorism:

In recent years, U.S. intelligence agencies have identified several 
important 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:

Decline in state-sponsorship of terrorism:

Terrorists have become less dependent on sponsorship by sovereign 
states. 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.[Footnote 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 beings, diamond smuggling, and tobacco diversion 
and associated tax fraud.

The Federal Government's Role and Resources for Combating 
Terrorism Overseas:

The federal government's role in combating terrorism overseas involves 
many diplomatic, law enforcement, financial, military, and intelligence 
activities. These roles span numerous departments, agencies, bureaus, 
and offices. In fact, no single government agency possesses the 
authority, responsibility, and capability to effectively detect and 
prevent terrorism, 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 Programs and Activities to Combat Terrorism 
Overseas:

Identifying funding to combat terrorism is inherently difficult, but 
the Office of Management and Budget (OMB), as required by law, has 
reported on these funds annually since 1998.[Footnote 14] Funding to 
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 Difficult to Identify:

There are inherent challenges in identifying federal funding to combat 
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 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.[Footnote 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.[Footnote 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 Overseas Now Identified Separately:

In the June 2002 report, OMB for the first time separately identified 
funds to combat terrorism domestically (for homeland security) from 
those to 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 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.

Department or agency: 
Energy; Fiscal year 2004 request for homeland security (domestic): 
$1,361; Fiscal year 2004 request for overseas combating 
$226; Total fiscal year 2004 request for combating terrorism (domestic 
and overseas): $1,587.

Department or agency: 
Homeland Security; Fiscal year 2004 request for homeland security 
(domestic): 23,890; Fiscal year 2004 request for overseas combating 
[A]; Total fiscal year 2004 request for combating terrorism 
(domestic and overseas): 23,890.

Department or agency: 
Justice; Fiscal year 2004 request for homeland security (domestic): 
2,290; Fiscal year 2004 request for overseas combating [A]; 
Total fiscal year 2004 request for combating terrorism (domestic and 
overseas): 2,290.

Department or agency: 
National Security[B]; Fiscal year 2004 request for homeland security 
(domestic): 6,717; Fiscal year 2004 request for overseas combating 
8,455; Total fiscal year 2004 request for combating 
terrorism (domestic and overseas): 15,172.

Department or agency: 
State; Fiscal year 2004 request for homeland security (domestic): 811; 
Fiscal year 2004 request for overseas combating 1,555; Total 
fiscal year 2004 request for combating terrorism (domestic and 
overseas): 2,366.

Department or agency: 
Treasury; Fiscal year 2004 request for homeland security (domestic): 
91; Fiscal year 2004 request for overseas combating [A]; 
Total fiscal year 2004 request for combating terrorism (domestic and 
overseas): 91.

Department or agency: 
International assistance programs; Fiscal year 2004 request for 
homeland security (domestic): 0; Fiscal year 2004 request for 
overseas combating 1,158; Total fiscal year 2004 request for 
combating terrorism (domestic and overseas): 1,158.

Department or agency: 
All other federal agencies; Fiscal year 2004 request for homeland 
security (domestic): 6,187; Fiscal year 2004 request for 
overseas combating 2; Total fiscal year 2004 request for 
combating terrorism (domestic and overseas): 6,189.

Total; Fiscal year 2004 request for homeland security (domestic): 
$41,347; Fiscal year 2004 request for overseas combating 
$11,396; Total fiscal year 2004 request for combating terrorism 
(domestic and overseas): $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.

[End of table]

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 attachs stationed 
overseas, 
training and assistance provided to other countries, or these 
departments' support to International Law Enforcement Academies around 
the world.[Footnote 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.[Footnote 18]

Funding to Combat Terrorism Overseas Increased:

In response to the terrorist attacks on the United States on 
September 11, 2001, the Congress appropriated a supplemental 
$40 billion to the Emergency Response Fund.[Footnote 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.[Footnote 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.[Footnote 21]

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.[Footnote 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 Methodology:

Based upon your original requests and in subsequent discussions with 
your 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 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.[Footnote 
23] Most of our 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 terrorism-related 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.

[End of section]

Chapter 2: The Interagency Framework for Combating Terrorism Overseas:

[End of section]

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 Legislation:

U.S. policies and plans for combating terrorism overseas have developed 
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 before Terrorist Attacks of September 11, 
2001:

According to the Department of State, four enduring policy principles 
guide U.S. strategies to combat terrorism overseas. They are as 
follows:

* 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.[Footnote 24] 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.[Footnote 25] 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:

respective roles in diplomacy, law enforcement, military planning, and 
intelligence gathering.[Footnote 26]

Current Policies and Plans Include New Areas of Responsibility and 
National Strategies:

Many federal policies and plans changed in the aftermath of the 
September 11, 2001, terrorist attacks. There were changes in both 
positions and offices to manage terrorism-related programs, and changes 
through the publishing of new strategies.

New Areas of Responsibilities Established:

The President divided the responsibilities of the National Coordinator 
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.[Footnote 27]

* Efforts to combat terrorism overseas. National Security Presidential 
Directive 8, dated October 24, 2001, created a National Director for 
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."[Footnote 28] 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,[Footnote 
29] 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 Published:

A series of new national plans were developed and published to help 
guide 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
February 2003. Table 2 summarizes the functions of each of the various 
national strategies and how they relate to combating terrorism 
overseas.[Footnote 30]

Table 2: National Strategies Related to Combating Terrorism:

Strategy: National Security Strategy of the United States of America; 
Issued by the President, September 2002; Description of strategy: This 
document provides a broad framework for strengthening U.S. security in 
the future. It identifies the national security goals of the United 
States, describes the foreign policy and 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. 

Strategy: National Strategy for Homeland Security; Issued by the 
President, July 2002; Description of strategy: This document addresses 
the threat of terrorism within the United States by organizing the 
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. 

Strategy: National Strategy for Combating Terrorism; Issued by the 
President, February 2003; Description of strategy: This document 
elaborates on the terrorism aspects of the National Security Strategy 
of the 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. 

Strategy: National Military Strategy of the United States of America; 
Issued by the Chairman of the Joint Chiefs of Staff, September 1997; 
Description of strategy: This document sets the strategic direction for 
all aspects of the U.S. Armed Forces. This includes force structure, 
acquisition, and doctrine, as well as the strategic environment. The 
1997 strategy notes the rising danger of asymmetric threats, such as 
terrorism. The strategy 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. 

Strategy: National Military Strategic Plan for the War on Terrorism; 
Issued by the Chairman of the Joint Chiefs of Staff, October 2002; 
Description of strategy: This document provides a framework to guide 
the conduct of the "war on terrorism" by U.S. Armed Forces. It provides 
specific guidance from which regional commanders, the military 
services, and other agencies can formulate their own individual action 
plans. Individual 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.

Strategy: National Strategy to Combat Weapons of Mass Destruction; 
Issued by the President, December 2002; Description of strategy: This 
document presents a national strategy to combat weapons of mass 
destruction through three major efforts: (1) nonproliferation, 
(2) counterproliferation, and (3) consequence 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. 

Strategy: National Money Laundering Strategy; Issued by the Secretary 
of the Treasury and the Attorney General, July 2002; Description of 
strategy: This document presents a national strategy to combat money 
laundering and other financial crimes. 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.

Strategy: National Strategy to Secure Cyberspace; Issued by the 
President, February 2003; Description of strategy: This document is 
intended to provide an initial framework for both organizing and 
prioritizing 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, nation-states, and terrorists. 

Strategy: National Strategy for the Physical Protection of Critical 
Infrastructures and Key Assets; Issued by the President, February 2003; 
Description of strategy: This document provides a statement of national 
policy to remain committed to protecting critical infrastructures and 
key assets from terrorist attacks, and it is based on eight guiding 
principles, including establishing responsibility and accountability, 
encouraging and 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 national-level 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.

[End of table]

New Strategies Provide Framework:

As we have recently testified, we view the new strategies, and the 
framework they provide, as a positive step.[Footnote 31] 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.[Footnote 32]

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 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:

[See PDF for image] 

Notes: GAO analysis of national strategies.


[End of figure] 

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 Terrorism:

The key strategy for overseas efforts is the National Strategy for 
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.

Table 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.

[End of table]

New Strategies Will Not Guarantee Success:

As we have testified, the strategies by themselves, no matter how 
cohesive and comprehensive, will not ensure an integrated and effective 
set of programs to combat terrorism.[Footnote 33] 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.[Footnote 34] We have also identified cyber security as a 
high-risk area.[Footnote 35]

Various Laws Address Terrorism:

While there is no single, comprehensive federal law explicitly dealing 
with 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 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.[Footnote 36] 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.[Footnote 37]

Another major piece of legislation that has greatly impacted the war on 
terrorism, both overseas and domestically, is the Homeland Security Act 
of 2002.[Footnote 38] 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.[Footnote 39] In addition, the 
act contains a number of provisions that
encourage the sharing of information between the intelligence and law 
enforcement communities.[Footnote 40]

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.[Footnote 41] 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.[Footnote 42]

Roles and Responsibilities of Key Federal Agencies:

Another key element in the interagency framework for combating 
terrorism overseas is the delineation of roles played by federal 
organizations and agencies. Some play a coordinating role, others serve 
as 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.

National Security Council Leads Coordination Across Agencies:

Located within the Executive Office of the President, the NSC advises 
and assists the President on national security and foreign policy. It 
serves as a 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 Coordinates Related Domestic Issues:

The Office of Homeland Security, also located within the Executive 
Office of the President, coordinates efforts to detect, prepare for, 
prevent, protect 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.[Footnote 43] 
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 and Budget Tracks Funding for Combating Terrorism:

The Office of Management and Budget, also located in the Executive 
Office of the President, assists the President in overseeing the 
preparation of the federal budget and supervises its administration in 
Executive Branch 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 Overall Efforts Overseas:

Below the Executive Office of the President, the State Department is 
the 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 Arrest and Prosecution of Terrorists:

The Department of Justice has the lead in law enforcement and criminal 
matters related to terrorism--both domestically and overseas. The 
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.[Footnote 44] 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 attachs 
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.[Footnote 45]

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.

New Department of Homeland Security Has Variety of Functions to Combat 
Terrorism:

The new Department of Homeland Security also has selected 
responsibilities for combating terrorism overseas. It has an Office of 
International Affairs with responsibilities to promote information and 
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 Identifies and Blocks Terrorist Financing:

The Department of the Treasury has a number of important roles in 
combating terrorism overseas. The department has a key role, working 
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 Leads Military Operations Against Terrorists:

DOD is the lead agency for military operations against terrorist 
organizations and states that sponsor them. If directed by the 
President, 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 Role in Radiological Issues:

DOE is responsible for responding to radiological terrorist incidents 
and 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 non-proliferation missions.

Central Intelligence Agency Leads Overseas Intelligence Activities:

The CIA has the lead for gathering, analyzing, and disseminating 
intelligence on foreign terrorist organizations. This information is 
used to 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.[Footnote 46] 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 International Development Helps with Disasters and 
Institution Building:

USAID has roles in providing immediate emergency assistance after a 
terrorist incident and in providing long-term assistance to strengthen 
other countries' capabilities to combat terrorism. USAID, working under 
the 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 Could Provide Specialized Assistance:

Other federal agencies have more limited roles in combating terrorism 
overseas. These agencies generally have a domestic focus, but have 
unique capabilities to provide technical advice or special response 
teams. These 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 Coordination Mechanisms:

Another part of the interagency framework to combat terrorism overseas 
is coordination. Interagency coordination is important because of the 
large number of agencies and multiple functions involved. Agencies 
involved in 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 Coordination in Washington, D.C.

Formal interagency coordination of national policy and operational 
issues to combat terrorism overseas occurs through the NSC. The NSC 
heads a policy coordination committee called the Counterterrorism 
Security Group.[Footnote 47] The group is comprised of high-level 
representatives (at the 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): Exercise and Readiness Sub-Group; Chairs: State 
Department, the FBI, and FEMA; Functions of working group: This long-
standing group promotes interagency planning, implementation, and 
evaluation of exercises to combat terrorism. The State Department, the 
FBI, and FEMA co-chair the group, taking responsibility for planning 
exercises. The group has regular meetings where agencies address 
interagency issues, plan future exercises, and compare and resolve 
schedule conflicts in agency exercises. 

Working group (Chair): Terrorist Financing Working Group. 
Chair: Treasury Department; Functions of working group: This group 
coordinates U.S. government efforts to identify and deny terrorist 
financing. It coordinates policy, strategy, and operations to disrupt 
terrorist networks by freezing terrorist accounts. The group also helps 
to develop strategies and activities for working with other countries. 

Working group (Chair): Training and Assistance Sub-Group; Chair: State 
Department; Functions of working group: 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 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. 

Working group (Chair): Counterterrorism Finance Training and Technical 
Assistance Working Group; Chair: State Department; Functions of 
working group: This is a subgroup of the above Training and Assistance 
Sub-Group that focuses on assistance to other countries to eliminate 
terrorist funding. The 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. 

Working group (Chair): Hostage Crisis Working Group Chair: NSC; 
Functions of working group: This group develops and coordinates the 
U.S. government's hostage crisis policy. The group meets on an 
emergency basis to monitor and plan actions related to overseas crises 
or incidents where Americans are taken hostage by terrorists. 

Working group (Chair): Technical Support Working Group; Chair: State 
Department; Functions of working group: This long-standing group 
conducts the national interagency research and development program for 
combating terrorism. It operates under the policy oversight of the 
State Department and the 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.


[End of table]

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 Overseas through U.S. Missions:

At U.S. embassies overseas, programs to combat terrorism are 
coordinated through various plans and working groups. Each embassy has 
a mission 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 
attach, Treasury Department financial attach, 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 Commands also Provide Interagency Coordination 
Overseas:

U.S. regional military commands also have plans and interagency working 
groups to coordinate their military operations with other agencies to 
combat terrorism overseas. These regional commands include the U.S. 
Central Command, U.S. European Command, U.S. Southern Command, and U.S. 
Pacific Command.[Footnote 48] 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 long-standing 
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.

Interagency Coordination also Facilitated via Personnel Exchanges:

Agencies also accomplish interagency coordination and information 
sharing through personnel exchanges and agency liaisons. Such 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 attachs 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 Our Evaluation:

The Departments of Defense, Justice, and State and USAID provided 
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.

[End of section]

Chapter 3: Federal Efforts to Detect and Prevent 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 Gathering and Analysis Help Detect Terrorist Activities:

The National Strategy for Combating Terrorism includes objectives to 
identify and locate terrorists and terrorist organizations. There is 
also an objective to attain domain awareness--the knowledge of all 
activities, events, and trends within any specified domain (air, land, 
sea, and cyber) 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 Community Collection and Analysis of Foreign 
Intelligence from Overseas:

The CIA leads the intelligence community in efforts to collect, 
analyze, and disseminate information on terrorist incidents and groups. 
This information and analysis is used to inform government 
decision makers 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 Collection and Analysis of Foreign Intelligence 
from Domestic Sources:

In addition to law enforcement functions, the FBI is designated as an 
intelligence agency by Executive Order 12333.[Footnote 49] As such, 
according to the FBI, it has the primary responsibility for the 
collection of foreign 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 Attachs 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.

Other Agencies also Have Important Intelligence Roles:

The State Department also has a major role in gathering, analyzing, and 
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.[Footnote 50] 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 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.[Footnote 51] 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 Allow Government to Take Preemptive or 
Preventive Actions:

Threat assessments and warnings play a crucial role in the 
dissemination effort, helping to inform and prioritize security 
planning. When the threat of terrorism becomes pronounced, warnings are 
issued to the public and 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. 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 Diplomatic, Law Enforcement, and 
Military Actions:

Intelligence information supports the efforts of other agencies 
involved in combating terrorism overseas. It enhances the diplomatic 
efforts of the Department of State, for example, by providing essential 
information to the 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 Barriers to Information Sharing Within the 
Federal Government:

Before September 11, 2001, much information sharing was handled through 
staff detailed to other agencies and interagency liaison. For example, 
in early 2001, 10 percent of the CIA Counterterrorist Center's staff 
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.[Footnote 52] In 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.[Footnote 53] 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 
power or an agent of a foreign power.[Footnote 54] 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.[Footnote 55] 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.[Footnote 56] Various provisions of the USA PATRIOT Act 
seek to improve the sharing of information between the intelligence and 
law enforcement communities.[Footnote 57] For example, the USA PATRIOT 
Act amended FISA to provide more flexibility to federal investigators 
in sharing information obtained under FISA.[Footnote 58]

International Intelligence Sharing and Cooperation:

U.S. intelligence operations also are augmented by the efforts of 
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, 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 for Intelligence Activities:

Executive responsibility for coordination and information sharing among 
the intelligence community agencies lies with the Director of Central 
Intelligence.[Footnote 59] 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 Committee on Terrorism:

The lead forum for coordination of intelligence activities across 
agencies is 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 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 Terrorism.

Table 5: Selected Members of the Interagency Intelligence Committee on 
Terrorism:

Organization: Central Intelligence Agency; 

Organization: Department of State.

Organization: Department of Defense: * Office of the Secretary of 
Defense; * Defense Intelligence Agency; * National Security Agency; * 
National Reconnaissance Office; * National Imagery and Mapping Agency; 
* Defense Information Systems Agency; * Defense Threat Reduction 
Agency; * Defense Advanced Research Projects Agency; * White House 
Communications Agency; * White House Military Office; * Joint Chiefs of 
Staff; * Unified Commands; * U.S. Army; * U.S. Air Force; * U.S. Marine 
Corps; * U.S. Navy; * Chemical, Biological Incident Response Force; 

Organization: Department of Justice: * Criminal Division; * Federal 
Bureau of Investigation; * Bureau of Alcohol, Tobacco, Firearms and 
Explosives; * Drug Enforcement Administration; * U.S. Marshals Service.

Organization: Department of Transportation: * Federal Aviation 
Administration.

Organization: * Department of Homeland Security: * U.S. Secret Service; 
* U.S. Coast Guard; * Bureau of Immigration and Customs Enforcement; * 
Bureau of Customs and Border Protection; * Federal Emergency Management 
Agency.

Organization: Environmental Protection Agency.

Organization: Executive Office of the President: * National Security 
Council; * Office of Homeland Security; * Executive Office of the Vice 
President.

Organization: U.S. Postal Service.

Organization: Federal Reserve Board.

Organization: National Communications System.

Organization: Nuclear Regulatory Commission.

Organization: Department of Commerce; 

Organization: U.S. Capitol Police.

Organization: Department of Energy; 

Organization: Department of Health and Human Services; 

Source: CIA.

[End of table]

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 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 Integration Center:

In January 2003, the President announced the creation of a Terrorist 
Threat 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 U.S. Government Facilities and Americans Abroad:

The National Strategy for Combating Terrorism includes an objective to 
integrate measures to protect U.S. citizens abroad. According to the 
strategy, the Department of State will take the lead and, in 
conjunction with appropriate agencies, partner with industry to 
establish cost-effective best 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.[Footnote 60] 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.

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.[Footnote 61]

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 Upgrade Program:

The Bureau of Diplomatic Security and Bureau of Overseas Buildings 
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.[Footnote 62] 
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.

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, shatter-resistant window film, and reinforced doors, 
based on the level of the threats.

Overseas Protection of Information program:

The Overseas Protection of Information program implements a 
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.

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:

[See PDF for image] 

[End of figure] 

Military Force Protection Efforts:

The threat of terrorism is one of the most pervasive challenges facing 
DOD, making the protection of U.S. forces against terrorist attacks a 
top priority for the department.[Footnote 63] 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, Joint Staff, and Service Levels:

The Office of the Assistant Secretary of Defense for Special Operations 
and 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.[Footnote 
64] This office had earlier issued a handbook in 1993 containing 
detailed guidance on antiterrorism policies and practices, including 
guidance on assessment methodology.[Footnote 65]

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 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 Commander Responsibilities:

Regional commands merge and prioritize the antiterrorism requirements 
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 Management Approach:

When making these plans and listing their requirements, installation 
commanders employ a "risk management" approach.[Footnote 66] 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.

The risk management approach and these annual assessments form the 
foundation of each installation's antiterrorism plan and support 
decision-making to improve resource allocations.

DOD Personnel at Diplomatic Posts:

Some DOD personnel overseas do not fall under the direct command of the 
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 to Protect Senior-Level Officials:

Federal agencies also have programs to protect senior-level officials 
from terrorism during international travel. The U.S. Secret Service, 
which 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.[Footnote 67] 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.

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.[Footnote 68] 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.

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 Civilians Living, Working, and Traveling Abroad:

The Department of State has several programs to help warn Americans 
living and traveling abroad against potential threats, including those 
posed 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 for Protecting U.S. Government Facilities and 
Americans Abroad:

The Department of State is responsible for maintaining an effective 
security program at U.S. diplomatic missions worldwide and for 
coordinating all federal agencies' efforts to protect U.S. government 
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 
Stuttgart-Vaihingen, 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 Builds International Support for U.S. Foreign Policy:

The National Security Strategy of the United States of America and the 
National Strategy for Combating Terrorism call for the United States to 
wage a "War of Ideas" against international terrorism, through 
effective public diplomacy. Toward these objectives, the State 
Department and 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 Programs Promote Anti-Terrorism Support:

The State Department helps build and influence international opinion in 
support of U.S. foreign policy objectives. Since the terrorist attacks 
on the 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 Governors Promotes U.S. Foreign Policy on 
Combating Terrorism:

The Congress passed the United States International Broadcasting Act of 
1994 with the goal of reorganizing and consolidating U.S. international 
broadcast efforts.[Footnote 69] The act created a bipartisan 
Broadcasting Board of Governors (the Board) to oversee and coordinate 
the efforts of all 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 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.[Footnote 70] 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 Diplomacy Activities:

The newly created Office of Global Communications was designed to 
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.

Visa and Border Controls Are Intended to Prevent Terrorists and Their 
Materials from Entering the United States:

Visa and border controls are additional tools that are designed to help 
detect and prevent terrorism by keeping terrorists and their materials 
out of the United States. The National Strategy for Homeland Security 
has an objective to ensure the integrity of borders and prevent the 
entry of unwanted persons. It also has an objective to increase the 
security of international shipping containers. According to the 
strategy, of the annual 500 million people who enter the United States 
legally, 330 million are not citizens.[Footnote 71] 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.

Visa Controls Designed to Keep Terrorists Out of the United States:

State's Bureau of Consular Affairs, provides overall supervision to 
consular officers at U.S. missions overseas. Consular officers 
adjudicate visa applications from foreign citizens who wish to visit 
the United States.[Footnote 72] 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.

Various Databases Are Used to Screen for Terrorists:

The Consular Lookout and Support System (CLASS) name check system 
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.[Footnote 73]

Level of Visa Screening Varies by Risk Level of Country of Origin:

Depending on their nationality, a visa applicant may require a special 
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.[Footnote 74] 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 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 Do Not Need Visas:

The Visa Waiver Program allows persons to enter the United States for 
tourism or business for 90 days or less without applying for a visa if 
they are a citizen from one of 27 participating countries.[Footnote 75] 
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.[Footnote 
76] 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:

collapse or a breakdown of the rule of law within a country.[Footnote 
77] 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.[Footnote 78] 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.[Footnote 79]

State Department Investigates Visa and Passport Fraud:

The National Strategy for Homeland Security has an objective to combat 
fraudulent travel documents. Toward this objective, the State 
Department 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.

Border Controls Attempt to Deter Entry of Terrorists and 
Their Materials:

Border controls staffed by officers from the Department of Homeland 
Security also play a role in deterring terrorists and their materials 
from 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.[Footnote 80]

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 
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.[Footnote 81]

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 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.[Footnote 82] 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.

* 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 of Entry:

Between U.S. ports of entry, the Department of Homeland Security's 
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 of Entry:

The U.S. Coast Guard, which transferred from the Department of 
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 Efforts to Strengthen Visa and 
Border Controls:

International cooperation is an essential tool in restricting terrorist 
movements around the globe. State's Office of the Coordinator for 
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 Organization:

The International Maritime Organization is responsible for improving 
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.[Footnote 83]

World Customs Organization:

The World Customs Organization is an independent, intergovernmental 
body whose mission is to enhance the effectiveness and efficiency of 
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 for Standardization:

The International Organization for Standardization is another important 
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 Transportation of Dangerous Materials:

The UN Subcommittee of Experts on Transportation of Dangerous Materials 
provides advice on international regulations concerning the 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 Aviation Organization:

The International Civil Aviation Organization is working to set 
improved security standards for travel documents, such as passports and 
visas.

Coordination Mechanisms Related to Border Security:

Border security is an issue that crosses both homeland security and 
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.[Footnote 84] 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.

Coalition Capabilities Are Enhanced through Bilateral Programs 
and Activities:

One of the enduring policy principles that guides U.S. strategies to 
combat terrorism overseas is bolstering the counterterrorist 
capabilities of those countries that work with the United States and 
require assistance. The National Security Strategy of the United States 
of America calls for 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 Countries' Law Enforcement Capabilities to 
Combat Terrorism:

Many U.S. coalition partners that want to eliminate terrorism in their 
own countries do not have the capability to combat terrorism 
effectively in the areas of law enforcement and security. Many are 
developing countries 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 Program:

The Bureau of Diplomatic Security's Office of Antiterrorism Assistance 
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 Training Team:

After the terrorist attacks of September 11, 2001, Antiterrorism 
Assistance 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 Investigative Training Assistance Program:

The purpose of ICITAP, which is located in Justice's Criminal Division, 
is to provide training and development assistance to foreign police 
agencies 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.[Footnote 85]

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.

Office of Overseas Prosecutorial Development, Assistance and Training:

Created in 1991, OPDAT provides justice-sector institution-building 
assistance, including training of foreign judges and prosecutors in 
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.[Footnote 86]

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 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 counter-terrorism 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 Counter-Terrorism 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[Footnote 87] 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 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 Training Center:

The Department of Homeland Security's FLETC, headquartered in Glynn 
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[Footnote 
88] 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, Antiterrorism Assistance program, and the International Law 
Enforcement Academies.

International Law Enforcement Academies:

Much of the technical assistance that the United States provides to 
other 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 Other Countries to Detect Weapons of 
Mass Destruction:

The National Strategy to Combat Weapons of Mass Destruction calls for 
active nonproliferation diplomacy. It also discusses the importance of 
international cooperation in reducing threats and controlling nuclear 
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.[Footnote 89]

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.

Table 6: U.S. Nonproliferation Assistance Programs:

Agency: Department of Energy; Program: Material Protection, Control, 
and Accounting program; Activity description: Installs improved 
security systems for nuclear material at civilian 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. 

Program: Second Line of Defense program; Activity description: 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. 

Program: International Export Control program; Activity description: 
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. 

Program: Nonproliferation and Verification Research and Development 
program; Activity description: Manages projects that cover a wide 
spectrum of activities to improve U.S. capabilities in the areas of 
nuclear explosion monitoring, proliferation detection, and chemical and 
biological response. Projects range from manufacturing specialized 
satellite-based 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. 

Program: Installs radiation detection equipment in countries of the 
former Soviet Union (other than Russia) and Central and Eastern 
Europe. 

Agency: Department of State; Program: Nonproliferation and Disarmament 
Fund; Activity description: Provides radiation detection equipment and 
other assistance for interdicting nuclear smuggling to the former 
Soviet Union and Central and Eastern Europe. 

Program: Export Control and Related Border Security Assistance program; 
Activity description: Provides radiation detection equipment, such as 
vans equipped 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.).

Program: Republic of Georgia Border Security and Law Enforcement 
program; Activity description: Provides a wide range of assistance to 
the Republic of Georgia's border guards and customs service to 
interdict nuclear smuggling; fight other crimes, such as drug 
smuggling; and develop border infrastructure. 

Agency: Department of Defense; Program: Cooperative Threat Reduction 
program; Activity description: Provides funds to various countries for 
the (1) purchase of 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. 

Program: International Counterproliferation program; Activity 
description: 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. 

Agency: Department of Homeland Security, Bureau of Customs and Border 
Protection (formerly run by the U. S. Customs Service under the 
Department of the Treasury); Activity description: With funding 
provided by the Departments of Defense and State, provides training and 
equipment to customs agencies and border 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. 

Agency: Department of Homeland Security, U.S. Coast Guard; Activity 
description: 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. 

Agency: Department of Justice, Federal Bureau of Investigation; 
Activity description: 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.

[End of table]

U.S. Security and Economic Assistance Seeks to Enhance 
Coalition Capabilities:

U.S. security and economic assistance programs, which are managed by 
the Department of State, can enhance the capabilities of coalition 
partners in combating terrorism overseas. Long-standing U.S. security 
and 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 and Training:

The International Military Education and Training program was 
established 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.[Footnote 90] 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, 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 through Military-to-Military Training:

In addition to the security and economic assistance programs mentioned, 
DOD provides military-to-military training to other countries to 
improve 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 and Training:

DOD's Joint Combined Exchange and Training program provides 
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.[Footnote 91] Since the enactment of this legislation, such 
training has commonly been referred to as Joint Combined Exchange 
Training.[Footnote 92] 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); (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 Forces Training for the Republic of Georgia:

The U.S. European Command initiated the Georgia Train and Equip Program 
to enhance Georgia's counter-terrorism capabilities. The 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:

[See PDF for image] 

[End of figure] 

U.S. Special Operations Forces Training for the Philippines:

The U.S. Pacific Command is assisting the Republic of the Philippines 
in 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:

[See PDF for image] 

[End of figure] 

Assisting Other Countries with International Security Events:

Some special events overseas, such as presidential summit meetings 
and the Olympic games, have international significance and thus may 
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.[Footnote 93] 
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.

Coordination Mechanisms for Assistance to Enhance 
Coalition Capabilities:

Programs to assist other countries are coordinated through a variety of 
forums. For those aimed at improving other countries' capabilities to 
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 Sub-Group 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 Our Evaluation:

The Departments of Defense, Justice, and State and the former 
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.

[End of section]

Chapter 4: Federal Efforts to Disrupt and Destroy 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 Strengthen International Cooperation:

The National Strategy for Combating Terrorism includes an objective to 
strengthen and sustain international efforts to combat terrorism. There 
is also an objective to establish and maintain an international 
standard of accountability with regard to combating terrorism. The 
strategy also gives 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 Supports Variety of Activities by U.S. Government 
Agencies:

The Department of State strengthens international cooperation through 
agreements, consultations, and negotiations with other countries to 
assist other U.S. government agencies in their efforts to enforce laws, 
deny 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 through the UN Provides Political Support for 
Coalition Efforts:

The Department of State works with international organizations to 
enhance multilateral support to disrupt and destroy terrorists and 
their organizations. Foremost of these organizations is the United 
Nations. Its 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.[Footnote 94]

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 
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.[Footnote 95] 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.

Figure 11: UN Security Council Unanimously Adopts Resolution 1373, 
Calling for Wide-Ranging International Cooperation to Combat Terrorism:

[See PDF for image] 

[End of figure] 

UN General Assembly Resolutions:

The UN General Assembly consists of the entire membership, currently 
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 With Variety of Other International Multilateral 
Organizations:

In addition to the United Nations, the State Department is working with 
a number of other international organizations to promote multilateral 
cooperation to combat terrorism. The memberships of these other 
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 Organization:

The North Atlantic Treaty Organization is a political and security 
alliance of 19 nations from North America and Europe.[Footnote 96] 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.[Footnote 97] 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 and Cooperation in Europe:

The Organization for Security and Cooperation in Europe consists of 
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.

The Organization of American States:

The Organization of American States consists of 35 nations from the 
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 for Bilateral and Multilateral Diplomacy:

The State Department generally is in charge of efforts to coordinate 
diplomatic initiatives related to combating terrorism overseas. 
Overall, the 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 Efforts to Disrupt Terrorist Organizations:

One of the enduring policy principles that guides U.S. strategies to 
combat terrorism overseas is to bring terrorists to justice for their 
crimes. The National Strategy for Combating Terrorism has an objective 
to destroy 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 attachs 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 Incidents Overseas Are Led by the FBI:

As a principal investigative agency of the federal government for 
terrorism matters, the FBI is responsible for detecting and 
investigating acts of 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[Footnote 98] and the Omnibus Diplomatic Security and 
Antiterrorist Act of 1986,[Footnote 99] 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[Footnote 100] 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 overseas would escape 
justice and flee to countries that oppose the United States.

Other Federal Law Enforcement Agencies Support Terrorism 
Investigations:

Depending upon the nature of a terrorist incident, other federal 
agencies also may participate in or support terrorism investigations 
overseas. For example, several agencies in the Department of the 
Treasury might support 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: Department of Justice; Agency role: Leads law 
enforcement and criminal matters related to terrorism both domestically 
and overseas. Responsible for investigating, indicting, and prosecuting 
terrorists 

Federal agency: Department of Justice, Federal Bureau of Investigation; 
Agency role: Leads efforts to investigate terrorist crimes domestically 
and overseas. Responsible for the apprehension, extradition, and 
rendition of foreign terrorists who are suspected of violating U.S. 
statutes. 

Federal agency: Department of Justice, Bureau of Alcohol, Tobacco, 
Firearms and Explosives (formerly under the Department of the 
Treasury); Agency role: Investigates terrorist bombings and explosive 
blasts overseas using its International Response Team and explosive 
experts. Special agents with post-blast expertise, forensic chemists, 
and bomb technicians are used to overcome difficulties inherent in 
investigations of large-scale fire or explosives crime scenes. 

Federal agency: Department of State, Bureau of Diplomatic Security; 
Agency role: Leads investigations of selected incidents involving U.S. 
diplomatic facilities and/or personnel. Participates in investigations 
of terrorist incidents against U.S. diplomatic personnel and other 
persons under its protection. Also investigates passport and visa 
fraud. 

Federal agency: Department of the Treasury, Financial Crimes 
Enforcement Network; Agency role: Supports lead investigative agencies 
in determining actual or suspected terrorist financial transactions and 
money laundering. 

Federal agency: Department of Homeland Security, Bureau of Customs and 
Border Protection (includes parts of former U.S. Customs Service under 
the Department of the Treasury); Agency role: Investigates suspected 
terrorists or materials crossing U.S. borders, including illegal 
movement of arms, munitions, and WMD components. Also investigates 
violations of economic sanctions, embargoes, and money laundering 
related to financing designated international terrorist 
organizations. 

Federal agency: Department of Homeland Security, Bureau of Immigration 
and Customs Enforcement (includes parts of former Immigration and 
Naturalization Service under the Department of Justice); Agency role: 
Investigates cases of terrorists crossing U.S. borders. Also, it 
investigates cases of terrorists using transnational smuggling 
organizations, using illicit document vendors, and entering the United 
States illegally. Has officers stationed intermittently for flexible 
periods of time at key choke point airports to disrupt the smuggling 
and trafficking of persons, including terrorists, to the United 
States. 

Federal agency: Department of Homeland Security, United States Secret 
Service (formerly under the Department of the Treasury); Agency role: 
Investigates terrorists' threats against officials under its protective 
mission overseas, including the President and Vice President. 

Federal agency: Department of Defense; Agency role: 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.

[End of table]

United States Works With Other Countries in Conducting Investigations:

In conducting terrorist investigations, the United States works with 
other countries to gather or share evidence. Much information and 
evidence are 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 Terrorists via Extraditions and Renditions:

The Department of Justice, in coordination with the Department of 
State, is responsible for obtaining the arrest and return of accused 
persons who 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:

Month and year: September 1987; Name and crime(s): Viken Tcharkhutian; 
(May 1982 bombing of an Air Canada aircraft); Extradition or
rendition: Extradition; Country: Greece.

Month and year: September 1987; Name and crime(s): Fawaz Younis; (June 
1985 hijacking of a Royal Jordanian Airlines aircraft); Extradition or 
rendition: Rendition; Country: Cyprus.

Month and year: January 1991; Name and crime(s): Khalid al Jawary; 
(March 1973 bombing of three vehicles in New York City); Extradition 
or rendition: Extradition; Country: Italy.

Month and year: March 1993; Name and crime(s): Mahmoud Abu Halima; 
(February 1993 bombing of the World Trade Center in New York City); 
Extradition or rendition: Extradition; Country: Egypt.

Month and year: July 1993; Name and crime(s): Mohammed Ali Rezaq; 
(November 1985 hijacking of Egyptair flight 648); Extradition or 
rendition: Rendition; Country: Nigeria.

Month and year: February 1995; Name and crime(s): Ramzi Ahmed Yousef; 
(January 1995 Far East bomb U.S. airlines plot; February 1993 bombing 
of the World Trade Center in New York City); Extradition or rendition: 
Extradition; Country: Pakistan.

Month and year: April 1995; Name and crime(s): Abdul Hakim Murad; 
(January 1995 Far East U.S. airlines bomb plot); Extradition or 
rendition: Rendition; Country: Philippines.

Month and year: August 1995; Name and crime(s): Eyad Mahmoud Ismail 
Najim; (February 1993 bombing of the World Trade Center in New York 
City); Extradition or rendition: Extradition; Country: Jordan.

Month and year: December 1995; Name and crime(s): Wali Khan Amin Shah; 
(January 1995 Far East U.S. airlines bomb plot); Extradition or 
rendition: Rendition; Country: Country not disclosed.

Month and year: September 1996; Name and crime(s): Tsutomu Shirosaki; 
(May 1986 attack on the U.S. Embassy in Jakarta, Indonesia); 
Extradition or rendition: Rendition; Country: Country not disclosed.

Month and year: June 1997; Name and crime(s): Mir Aimal Kansi; (January 
1993 shooting at CIA headquarters in Langley, Virginia); Extradition 
or rendition: Rendition; Country: Country not disclosed.

Month and year: June 1998; Name and crime(s): Mohammed Rashid; (August 
1982 bombing of a Pan American aircraft); Extradition or rendition: 
Rendition; Country: Country not disclosed.

Month and year: August 1998; Name and crime(s): Mohamed Rashed Daoud 
al-Owhali; (August 1998 bombing of the U.S. Embassy in Nairobi, Kenya); 
Extradition or rendition: Rendition; Country: Kenya.

Month and year: August 1998; Name and crime(s): Mohamed Sedeek Odeh; 
(August 1998 bombing of the U.S. Embassy in Nairobi, Kenya); 
Extradition or rendition: Rendition; Country: Kenya.

Month and year: December 1998; Name and crime(s): Mamdouh Mahmud Salim; 
(August 1998 bombing of the U.S. Embassy in Nairobi, Kenya); 
Extradition or rendition: Extradition; Country: Germany.

Month and year: October 1999; Name and crime(s): Khalfan Khamis 
Mohamed; (August 1998 bombing of the U.S. Embassy in Dar es-Salaam, 
Tanzania); Extradition or rendition: Rendition; Country: South Africa.

Month and year: September 2001; Name and crime(s): Zayd Hassan Abd al-
Latif Masud al-Safarini; (1986 hijacking of Pan American flight 73 in 
Karachi, Pakistan); Extradition or rendition: Rendition; Country: 
Country not disclosed.

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.

[End of table]

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 Program Leads to Arrests and Prosecutions:

The State Department's Rewards for Justice Program provides a tool to 
law enforcement for arresting and prosecuting terrorist suspects. The 
program was established under the 1984 Act to Combat International 
Terrorism[Footnote 101] and 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 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 Prosecutes Suspected Terrorists:

Suspected terrorists apprehended and arrested overseas for crimes 
committed against U.S. citizens or interests are prosecuted in the 
United 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 for Law Enforcement:

Investigations of terrorist incidents, including those related to 
international 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.[Footnote 102] 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 
attachs 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 attachs 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 attachs 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 attachs stationed at 45 
overseas posts, and additional positions have been approved. They 
sometimes serve multiple countries in a region. For example, the legal 
attach at the U.S. Embassy in Athens not only covers Greece but also 
Turkey, Cyprus, Lebanon, Syria, and Jordan.

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 attachs. 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 Freezing Terrorists' Financial Assets Disrupts 
Terrorist Organizations:

The National Security Strategy of the United States of America calls 
for the United States to work with its allies to disrupt the financing 
of terrorism by identifying and blocking the sources of funding for 
terrorists and denying them access to the international financial 
system. In addition, the National Strategy for Combating Terrorism 
includes an objective to 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 Organizations and Their Sponsors and 
Supporters Permits Action to Block Assets:

As a prelude to freezing terrorist assets, the U.S. government can 
designate a terrorist organization as a Foreign Terrorist Organization 
and the states, organizations, and individuals that sponsor or support 
them as State-sponsors of terrorism, or organizations or individuals 
that support terrorism, respectively. Different processes exist for 
designating such 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.[Footnote 103] 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,[Footnote 104] 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 designated seven countries as State Sponsors of 
Cuba, Iran, Iraq, Libya, North Korea, Sudan, and Syria. All 
of these countries have held such a designation for several years.

Organizations and Individuals That Support Terrorism:

Executive Order 13224 establishes policies and procedures for 
designating terrorists, their organizations, and others who provide 
financial support or other services to them.[Footnote 105] 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 Efforts to Identify, Track, and Block 
Terrorist Financial Assets:

Since PDD 39 in June 1995, the Secretary of the Treasury has been 
responsible for identifying and blocking terrorist financing. These 
efforts were stepped up after the terrorist attacks of September 11, 
2001, when the 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.

Executive Office for Terrorist Financing and Financial Crimes:

The Executive Office for Terrorist Financing and Financial Crimes was 
created in March 2003 and assumed selected functions of the former 
Office of Enforcement.[Footnote 106] 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 Financing Task Force:

The International Affairs Terrorist Financing Task Force works with 
other 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 Network:

The Financial Crimes Enforcement Network (FinCEN) has a mission is to 
(1) support law enforcement investigative efforts and foster 
interagency and global cooperation against domestic and international 
financial crimes 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 Security Has Role Related to Terrorist 
Financing:

The new Department of Homeland Security also has a role in tracking 
terrorist financing and conducting related investigations. The 
department's Bureau of Immigration and Customs Enforcement and the U.S. 
Secret Service are involved in these activities.

Bureau of Immigration and Customs Enforcement:

The Bureau of Immigration and Customs Enforcement, consisting in part 
of 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 FBI also Track and Investigate Terrorist 
Assets:

The Department of Justice and the FBI also have efforts under way to 
disrupt terrorist financing. According to the department, the FBI has 
the 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 Section:

In response to the events of September 11, 2001, the FBI established 
the 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 to Identify and Freeze Terrorist Assets:

The Departments of State, the Treasury, and Justice work with other 
countries on a bilateral and multilateral basis to identify and freeze 
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 attachs, and FBI legal attachs 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 Supreme Audit Institutions:

International cooperation related to money laundering also occurs 
through 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 for Efforts to Disrupt Terrorist Financing and 
Support:

At the strategy and policy level, interagency coordination of U.S. 
government efforts to deny terrorists financing is intended to occur 
through a NSC-sponsored working group chaired by the Department of the 
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 attachs, FBI legal attachs, and Department of 
Homeland Security customs attachs.

Military Operations Provide Means to Destroy Terrorist Organizations:

The National Strategy for Combating Terrorism includes objectives to 
destroy terrorists and their organizations and to deny them sanctuaries 
and havens. According to the strategy, the intelligence community, in 
conjunction with the Departments of State and Defense, will conduct an 
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 in Military Operations Against Terrorists and 
Their Supporters:

According to the Chairman of the Joint Chiefs of Staff, U.S. forces now 
are deployed to an unprecedented number of locations in the wake of 
the September 11, 2001, terrorist attacks.[Footnote 107] One of the 
most visible deployments relate to operations in and around 
Afghanistan, discussed 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 Enduring Freedom and Topples Taliban Regime:

Following the attacks on September 11, 2001, the Secretary of Defense 
directed the preparation of "credible military options" to respond to 
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.

* 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:

[See PDF for image] 

[End of figure] 

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:

[See PDF for image] 

[End of figure] 

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 Conduct Maritime Interception Operations:

The National Strategy for Combating Terrorism includes an objective to 
interdict and disrupt material support for terrorists. As part of this 
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.[Footnote 108] 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 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:

[See PDF for image] 

[End of figure] 

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 Intelligence Gathering:

Throughout the military operations in Afghanistan, U.S. forces and 
military 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 Guantnamo 
Bay, Cuba. Over 500 detainees from 44 countries were transported to 
Guantnamo Bay. Figure 15 shows part of the newly constructed detention 
facility at Naval Air Station Guantnamo Bay, Cuba.

Figure 15: Camp X-Ray Used as a Temporary Holding Facility for 
Detainees Held at U.S. Naval Air Station Guantnamo Bay, Cuba:

[See PDF for image] 

[End of figure] 

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 Guantnamo 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 U.S. Military Operations:

Following the attacks on September 11, 2001, the Department of State 
led 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.[Footnote 109] 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.

Table 9: Significant Military Contributions by Selected Coalition 
Partners in and around Afghanistan in Support of Operation Enduring 
Freedom:

Type of operations: Ground operations: Special operations forces; 
Contributions in support of Operation Enduring Freedom: 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. 

Type of operations: Ground operations: Infantry support; Contributions 
in support of Operation Enduring Freedom: Canada, France, Italy, 
Pakistan, Turkey, and the United Kingdom deployed infantry and 
equipment in Afghanistan and surrounding regions to perform security 
and combat operations. 

Type of operations: Naval operations: Maritime interception; 
operations; Contributions in support of Operation Enduring Freedom: 
Australia, Canada, France, Italy, the Netherlands, Poland, and the 
United Kingdom deployed ships, aircraft, and forces in the Arabian Gulf 
and surrounding areas to support maritime interception operations. 

Type of operations: Naval operations: Logistical support; 
Contributions in support of Operation Enduring Freedom: Japan, India, 
and Poland deployed ships for logistical support, such as refueling and 
escort assistance. 

Type of operations: Naval operations: Combat operations; Contributions 
in support of Operation Enduring Freedom: 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. 

Type of operations: Air operations: Combat air patrol; Contributions 
in support of Operation Enduring Freedom: 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. 

Type of operations: Air operations: Strategic airlift; Contributions 
in support of Operation Enduring Freedom: 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. 

Type of operations: Air operations: Logistical support; 
Contributions in support of Operation Enduring Freedom: 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. 

Type of operations: Air operations: Surveillance and reconnaissance; 
Contributions in support of Operation Enduring Freedom: France and 
United Kingdom deployed aircraft in Afghanistan and surrounding regions 
to provide support to intelligence, surveillance, and reconnaissance 
missions. 

Type of operations: Other support: Mine clearing operations; 
Contributions in support of Operation Enduring Freedom: Denmark, 
Jordan, Norway, Poland, and the United Kingdom deployed personnel and 
equipment in Afghanistan to conduct mine clearing missions. 

Type of operations: Other support: Civil-military support; 
Contributions in support of Operation Enduring Freedom: 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. 

Type of operations: Other support: Humanitarian support; 
Contributions in support of Operation Enduring Freedom: 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. 

Type of operations: Other support: Consequence; management support; 
Contributions in support of Operation Enduring Freedom: Bulgaria, the 
Czech Republic, and the United Kingdom provided consequence management 
teams (nuclear, biological, and chemical teams) in Afghanistan and 
surrounding regions. 

Source: DOD.

Note: GAO analysis of DOD data.

[End of table]

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:

[See PDF for image] 

[End of figure] 

Coordination Mechanisms for Military Operations:

At the headquarters level, military operations are coordinated at DOD. 
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.[Footnote 110] 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 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 Be Used to Disrupt and Destroy Terrorist 
Organizations:

Another tool that can be used to disrupt and destroy terrorist 
organizations is covert action by the intelligence community.[Footnote 
111] By executive order and statute, the CIA specifically is authorized 
to initiate such actions that are individually authorized by the 
President.[Footnote 112] Other federal agencies and 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."[Footnote 113]

The Director of Central Intelligence, in discussing covert actions in 
an unclassified forum, provided several examples of CIA efforts to 
disrupt terrorist organizations.[Footnote 114] 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 Our Evaluation:

The Departments of Defense, Justice, and State and ATF 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 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.

[End of section]

Chapter 5: Federal Efforts to Respond to Terrorist 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 for Terrorist Incidents:

In anticipation of terrorist incidents overseas, the federal government 
takes 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 Overseas Posts:

As lead agency for interagency coordination of international terrorist 
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 Response:

PDD 39 requires key federal agencies to maintain well-exercised 
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 department-led 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.[Footnote 115] 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 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 Incident Overseas:

PDD 39 divided incident response into crisis management and consequence 
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.[Footnote 
116] 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 Headquarters:

In managing a crisis overseas, the Department of State coordinates 
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 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 Overseas Posts:

In an overseas incident, the ambassador--working with the Emergency 
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 Investigations for Overseas Incidents:

Crisis management has an important law enforcement function, including 
efforts to gather evidence, and arrest and prosecute terrorists. PDD 39 
and 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 
attachs 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:

[See PDF for image] 

[End of figure] 

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 of a Terrorist Incident:

PDD 39 affirmed State as the lead agency for consequence management 
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.[Footnote 117] 
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.

Figure 18: Federal Response Teams That Could Respond to a Weapons of 
Mass Destruction Incident Overseas:

[See PDF for image] 

[End of figure] 

Evaluations in the Aftermath of a Terrorist Incident:

After a terrorist attack, the federal government reviews the facts 
leading up to the incident. These reviews are done to determine whether 
security procedures were followed; to establish accountability within 
the government, if appropriate; and to provide lessons learned to 
prevent or mitigate future attacks.

Reviewing Terrorist Incidents Against Diplomatic Posts:

The Secretary of State convenes an Accountability Review Board in cases 
involving acts of terrorism against U.S. diplomatic installations and 
personnel abroad that involve serious injury, loss of life, or 
significant destruction of property.[Footnote 118] 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.

Reviewing Incidents Against Military Targets:

DOD also has convened ad hoc commissions to evaluate terrorist 
incidents 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.[Footnote 119] 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 Provide Lessons Learned:

In addition to reviewing individual incidents, the State Department's 
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.[Footnote 120] These promote awareness of basic crisis 
management principles.

Agency Comments and Our Evaluation:

The Departments of Defense and State and USAID 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 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.

[End of section]

Appendixes:

Appendix I: Matrix of Department of Defense Programs 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.

Table 10: Department of Defense Programs and Activities to Combat 
Terrorism Overseas:

STRATEGIC :

Agency head's role in combating terrorism:

Department of Defense office or military service: Office of the 
Secretary of Defense; Program or activity: 
The Secretary of Defense is the principal defense policy advisor to 
the President; The Office of the Secretary of Defense is the principal 
staff element of the Secretary of Defense in the exercise of policy 
development, planning, resource management, fiscal, and program 
evaluation responsibilities; 
Description of program or activity:  
The Secretary of Defense is responsible for supporting (1) the lead 
federal agency--the Department of State--in responding to a terrorist 
incident overseas, (2) the Department of Justice (through the Federal 
Bureau of Investigation (FBI)) for crisis management of a domestic 
terrorist incident, and (3) the Federal Emergency Management Agency 
(FEMA) for consequence management of a domestic terrorist incident.

 office in charge of combating terrorism:

Department of Defense office or military service: Office of the 
Assistant Secretary of Defense for Special Operations and Low-Intensity 
Conflict; 

Program or activity: operations and low-intensity conflict; 
Description of program or activity: Serves as the principal staff 
assistant and advisor to the Secretary of Defense and to the Under 
Secretary of Defense for Policy for the broad spectrum of combating 
terrorism policy and support. 

Department of Defense office or military service: Office of the 
Assistant to the Secretary of Defense for Homeland Defense; Program or 
activity: Civil support; Description of program or activity: 
Serves as the 
focal point for the coordination of DOD efforts in preparation for 
requests from civilian agencies on weapons of mass 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. 

Department of Defense office or military service: Chairman of the Joint 
Chiefs of Staff; Program or activity: Principal military advisor to the 
President, Secretary of Defense, and the National Security Council; 
Description of program or activity:  
Serves as the principal advisor and focal 
point to the Secretary of Defense for all DOD antiterrorism issues. 

Department of Defense office or military service: Office of the Under 
Secretary of Defense for Acquisition, Technology and Logistics; Program 
or activity:
Acquisition, technology, and logistics; Description of 
program or activity: Responsible for the development, application, 
testing, and evaluation of new and commercial-off-the-shelf technology 
for combating terrorism.

Department of Defense office or military service: Office of the 
Assistant Secretary of Defense for Command, Control, Communications, 
and Intelligence; Program or activity: Command, control, 
communications, and intelligence; Description of program or activity: 
Provides policy 
guidance and oversight for information, information technology and 
physical security programs, security and investigative matters, 
counterintelligence, DOD foreign counterintelligence, intelligence, 
and information operations programs. 

Department of Defense office or military service: Office of the 
Assistant Secretary of Defense for Reserve Affairs; 
Program or activity: Reserve affairs; Description of program or 
activity:  
Provides policy direction and oversight of the military departments' 
Reserve Component readiness/training policies and funding for Reserve 
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 

Department of Defense office or military service: Office of the 
Assistant Secretary of Defense (Health Affairs); Program or activity: 
Health affairs; Description of program or activity: 
Supports the federal 
interagency process with medical research and development programs and 
interfaces with the National Disaster Medical System 

Department of Defense office or military service: Service Secretaries 
(Secretaries of the Army, the Navy, and the Air Force); Program or 
activity: Military services; Description of program or activity:  
Establish and provide resources for combating terrorism programs, 
incorporating existing physical security, base defense, and law 
enforcement initiatives, which address terrorism as a potential threat 
to DOD elements and personnel, to include the Reserve Components. 

Department of Defense office or military service: Office of the 
Assistant to the Secretary of Defense for Homeland Defense; Program or 
activity: Domestic Preparedness Program and Consequence Management 
Program Integration Office; Description of program or activity: 
Develops and implements the Domestic Preparedness Program's "first 
responder" training and exercise missions and manages the Consequence 
Management Program Integration Office. 

Department of Defense office or military service: Commanders of the 
combatant commands; Program or activity: Command policies and programs; 
Description of program or activity:  
Establish command policies and programs 
for the protection of all forces (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. 

Department of Defense office or military service: Joint Task Force for 
Civilian Support; Program or activity: Support to civilian agencies; 
Description of program or activity:  
Responsible, through the Commander, Joint 
Forces Command, for marshalling the capabilities of the Armed Forces in 
support of civilian agencies responding to domestic consequence 
management contingencies involving weapons of mass destruction 

Department of Defense office or military service: Directors of defense 
agencies and field activities; Program or activity: 
Providing 
resources for combating terrorism programs; Description of program or 
activity: The directors establish and provide resources for combating 
terrorism 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:

Department of Defense office or military service: Chairman of the Joint 
Chiefs of Staff; Program or activity: National Military Strategy of the 
United States of America (Sept. 1997); Description of program or 
activity:   
Sets the strategic direction for all aspects of the Armed 
Forces for 3-5 years. This document includes objectives, force 
structure, capabilities, 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 

Department of Defense office or military service: Chairman of the Joint 
Chiefs of Staff; Program or activity: National Military Strategic Plan 
for the War on Terrorism (Oct. 19, 2002); Description of program or 
activity:   
Provides the strategic framework to guide the conduct of the 
global war on terrorism by the U.S. Armed Forces. This classified plan 
discusses 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 

Department of Defense office or military service: Office of the 
Assistant Secretary of Defense for Special Operations and Low-Intensity 
Conflict; Program or activity:  Combating Terrorism Program; 
Description of program or activity: 
Includes all actions--(1) antiterrorism 
(defensive measures taken to reduce vulnerability to terrorist acts), 
(2) counterterrorism (offensive measures taken to prevent, deter, and 
respond to terrorism), (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 

Department of Defense office or military service: Office of the 
Assistant Secretary of Defense for Special Operations and Low-Intensity 
Conflict; Program or activity:
DOD Directive 2000.12, DOD Antiterrorism/ Force 
Protection Program (Apr. 13, 1999); Description of program or activity: 
This 
directive (1) changes the name of the DOD Combating Terrorism Program 
to the DOD Antiterrorism/Force Protection Program, (2) updates DOD 
policies and assigns responsibilities for implementing 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 

Department of Defense office or military service: Office of the 
Assistant Secretary of Defense for Special Operations and Low-Intensity 
Conflict; Program or activity: 
DOD Instruction 2000.16, DOD Antiterrorism 
Standards (June 14, 2001); Description of program or activity: 
This 
instruction (1) reissues DOD Instruction 2000.16, DOD Antiterrorism 
Standards (Jan. 8, 2001), (2) updates policy implementation, 
(3) assigns responsibilities, (4) prescribes procedures 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. 

Department of Defense office or military service: Office of the 
Assistant Secretary of Defense for Special Operations and Low Intensity 
Conflict; Program or activity: DOD Instruction 2000.14, DOD Combating 
Terrorism Program Procedures (June 15, 1994); Description of program or 
activity:   
This instruction establishes policy, assigns 
responsibility, and prescribes procedures under DOD Directive 0-
2000.12, DOD Combating Terrorism Program, for implementation and use in 
the DOD Antiterrorism Program; 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 attach and security assistance 
organization antiterrorism programs overseas with the chief of mission 
at the U.S. embassy and comply with Department of State standards. 

Department of Defense office or military service: Office of the Under 
Secretary of Defense for Acquisition, Technology and Logistics; Program 
or activity:   
Unified Facilities Criteria 4-010-01, DOD Minimum 
Antiterrorism Standards for Buildings (July 31, 2002); Description of 
program or activity: 
Sets standards to minimize the possibility of mass 
casualties in buildings or portions of buildings owned, leased, 
privatized, or otherwise occupied, managed, or controlled by DOD. The 
standards provide a level of protection against terrorist attacks for 
all inhabited DOD buildings where no known threat of terrorist activity 
currently exists. 

Department of Defense office or military service: Office of the Under 
Secretary of Defense for Acquisition, Technology and Logistics; Program 
or activity:   
Unified Facilities Criteria 4-010-10, DOD Minimum 
Antiterrorism Standoff Distances for Buildings (July 31, 2002); 
Description of program or activity:  
Identifies the minimum standoff distances 
and separation for new and existing buildings and expeditionary and 
temporary structures. 

Department of Defense office or military service: Office of the Under 
Secretary of Defense for Policy; Program or activity:  
DOD Directive 
5200.8, Security of DOD Installations and Resources (Apr. 25, 1991); 
Description of program or activity:  
Outlines the requirements of DOD's 
physical security program. Commanders at the unit, activity, 
installation, and major command levels use the standards outlined in 
this and other guidance documents to determine their physical security 
equipment requirements.

Department of Defense office or military service: Office of the Under 
Secretary of Defense for Policy; Program or activity:  
DOD Regulation 
5200.8-R, Physical Security Program (May 13, 1991); Description of 
program or activity: This regulation, in accordance with DOD Directive 
5200.8, Security of DOD Installations and Resources, prescribes DOD 
policies and 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. 

Department of Defense office or military service: Assistant to the 
Secretary of Defense (Atomic Energy); Program or activity:  
DOD Directive 
3150.3, Nuclear Force Security and Survivability (S2) (Aug. 16, 1994); 
Description of program or activity:  
This directive (1) reissues DOD Directive 
3150.3, Survivability and Security (S2) of Nonstrategic Nuclear Forces 
(NSNF), to add strategic nuclear weapons and forces to the existing DOD 
Nonstrategic Nuclear 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. 

Department of Defense office or military service: Assistant Secretary 
of Defense for Command, Control, Communications, and Intelligence; 
Program or activity: DOD Directive; C-5210.41-M, Nuclear Weapon 
Security Manual (U) (Apr. 1994); Description of program or activity: 
This manual is a classified document. 

Department of Defense office or military service: Assistant Secretary 
of Defense for Command, Control, Communications, and Intelligence; 
Program or activity: DOD Regulation 5200.1-R, Information Security 
Program (Jan. 14, 1997); Description of program or activity:  
This regulation 
implements Executive Order 12958, Classified National Security 
Information, within DOD and establishes the DOD Information Security 
Program to promote proper and effective classification, protection, and 
downgrading of official information requiring protection and the 
declassification of information no longer requiring such protection. 

Department of Defense office or military service: Office of the 
Assistant Secretary of Defense for Special Operations and Low-Intensity 
Conflict; Program or activity: DOD Worldwide Combating Terrorism 
Conference; 
Description of program or activity:  
Serves as a continuing forum to 
communicate guidance, exchange ideas, and generate policy 
recommendations that will reduce DOD vulnerability to terrorism. The 
2001 conference established seven working groups (Intelligence, 
Operations, Policy, Research and Development, Consequence Management, 
Resources, and Interagency Community). 

Department of Defense office or military service: Assistant Secretary 
of Defense for Command, Control, Communications, and Intelligence; 
Program or activity:
DOD Directive 5240.2, DOD Counterintelligence (May 
22, 1997); Description of program or activity: 
 This directive, among other 
things, (1) integrates DOD counterintelligence capabilities and 
coordination procedures into a national counterintelligence structure 
under the direction of the National 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. 

Department of Defense office or military service: Assistant Secretary 
of Defense for Command, Control, Communications, and Intelligence; 
Program or activity:
DOD Instruction 5240.10, DOD Counterintelligence 
Support to Unified and Specified Commands (Apr. 8, 1992); Description 
of program or activity:
This instruction (1) establishes policies, 
assigns responsibilities, and prescribes procedures to ensure that the 
counterintelligence requirements of the combatant commanders of the 
Unified and Specified Commands are met under the parameters established 
by law, Executive 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:

Department of Defense office or military service: Local commander; 
Program or activity:
Antiterrorism/Force Protection (defensive 
measures); Description of program or activity: 
Defensive measures (to 
include force protection) used to reduce the 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:

Department of Defense office or military service: Local commander; 
Program or activity:
Physical security equipment; Description of 
program or activity:
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. 

Department of Defense office or military service: Local commander; 
Program or activity:
Physical security site improvements; Description 
of program or activity:
Facility improvements using operations and 
maintenance or military 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. 

Department of Defense office or military service: Local commander; 
Program or activity:
Physical security management and planning; 
Description of program or activity:  
Includes all personnel who manage physical 
security programs, resources, and assets, such as headquarters staff 
and headquarters staff elements performing such functions. 

Department of Defense office or military service: Local commander; 
Program or activity:
Security forces/technicians; Description of 
program or activity:
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. 

Department of Defense office or military service: Local commander; 
Program or activity:
Law enforcement; Description of program or 
activity:   
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. 

Department of Defense office or military service: Local commander; 
Program or activity:
Security and investigative matters; Description of 
program or activity:
Includes DOD criminal investigative resources, 
conduct of vulnerability assessments (periodic high-level reviews and 
physical security assessments), security and intelligence activities, 
and any cross-discipline security functions, such as (1) terrorism 
investigations; (2) executive antiterrorism training; (3) surveillance 
and counter-surveillance teams; (4) protective service details, 
including advance work; (5) route surveys; (6) antiterrorism awareness 
programs and training; and (7) Joint Staff Integrated Vulnerability 
Assessments. 

Department of Defense office or military service: Local commander; 
Program or activity:
Research, development, test, and evaluation 
(RDT&E); Description of program or activity: 
 Includes any RDT&E resources 
expended in the area of antiterrorism 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. 

Department of Defense office or military service: Technical Support 
Working Group; Program or activity:  
Counterterror Technical Support Program; 
Description of program or activity:  
A fast-track research and development 
program for advanced 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. 

Department of Defense office or military service: Physical Security 
Equipment Action Group; Program or activity: 
Physical Security Equipment Development Program; Description of 
program or activity: A research and 
development program designed to support the rapid 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:

Department of Defense office or military service: Chairman of the Joint 
Chiefs of Staff; Program or activity: Integrated Vulnerability Assessment 
Team; Description of program or activity: Ensures that commanders at 
all levels have an accurate awareness of 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:

Department of Defense office or military service: Office of the Deputy 
Assistant Secretary of Defense for Chemical and Biological Defense; 
Program or activity:
Chemical, biological, and radiological 
monitoring, detection, and identification; Description of program or 
activity:   
Based on an assessment by the Strategic Deterrence Joint 
Warfighting Capabilities Assessment, a monitoring, detection, and 
identification package was developed for protection of the Pentagon and 
other 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. 

Military security assistance:

Department of Defense office or military service: Defense Security 
Cooperation Agency; Program or activity: Foreign Military Financing; 
Description of program or activity:  
The Department of State provides grants to 
foreign governments for the 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. 

Department of Defense office or military service: Defense Security 
Cooperation Agency; Program or activity: 
Foreign Military Sales; Description 
of program or activity:
A U.S. security assistance program used to sell 
defense articles or 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 Political-Military 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. 

Department of Defense office or military service: Defense Security and 
Cooperation Agency; Program or activity: 
International Military Education 
and Training; Description of program or activity: 
Serves 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. 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 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. 

Embassy security:

Department of Defense office or military service: U.S. Marine Corps; 
Program or activity:
Protection of information at U.S. diplomatic 
missions overseas; Description of program or activity:  
U.S. Marine 
security guards control access to 130 U.S. embassies and missions 
worldwide. 

Military training (with foreign governments):

Department of Defense office or military service: U.S. Special 
Operations Command; Program or activity: 
Joint Combined Exchange and 
Training; Description of program or activity: 
 Provides 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 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. 

Department of Defense office or military service: U.S. European 
Command; Program or activity:
Republic of Georgia Train and Equip Program; 
Description of program or activity:  
Enhances the Republic of Georgia's 
counter-terrorism capabilities. The 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. 

Department of Defense office or military service: U.S. Pacific Command; 
Program or activity:
U.S. Special Operations Forces Training for the 
Philippines; Description of program or activity: 
 Develops a counter-terrorist 
capability within the Philippines 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. 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. 

Department of Defense office or military service: U.S. Special 
Operations Command; Program or activity: 
U.S. Special Operations Forces 
Training for Yemen; Description of program or activity:  
U.S. Special 
Forces trained approximately 200 Yemeni military forces in 
counterterrorism tactics. 

Border security:

Department of Defense office or military service: U.S. Air Force; 
Program or activity:
Combat Air Patrols; Description of program or 
activity:   
Provides protection of U.S. air space 

DISRUPT AND DESTROY TERRORIST ORGANIZATIONS ABROAD.

Counterterrorism:

Department of Defense office or military service: Office of the 
Assistant Secretary of Defense for Special Operations and Low-Intensity 
Conflict; Program or activity: Counterterrorism (offensive measures); 
Description of program or activity:  
Offensive measures taken to prevent, 
deter, and respond to terrorism. The Nunn-Cohen Amendment of the 
Goldwater-Nichols Act of 1986 established the (1) U.S. Special 
Operations Command, (2) Assistant 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. 

Department of Defense office or military service: Counterterrorism 
categories.

Department of Defense office or military service: U.S. Special 
Operations Command; Program or activity: 
Special Operations Forces; 
Description of program or activity:  
U.S. Special Operations Forces conduct 
offensive counterterrorism 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. 

Department of Defense office or military service: Regional Special 
Operations Commands; Program or activity: 
Special Operations Forces and 
Geographic Combatant Commands; Description of program or activity:  
Regional Special Operations Commands are subordinate unified commands 
assigned to the Geographic Combatant Commands. The 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. 

Department of Defense office or military service: U.S. Army Special 
Operations Command; Program or activity: 
Special Operations Forces; 
Description of program or activity:  
The command is responsible to the U.S. 
Special Operations 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. 

Department of Defense office or military service: Naval Special Warfare 
Command; Program or activity in Special Operations Forces; 
Description of program or activity:
The command is responsible to the U.S. Special 
Operations 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. 

Department of Defense office or military service: U.S. Air Force 
Special Operations Command; Program or activity: 
 Special Operations Forces; 
Description of program or activity:  
The command is responsible to the U.S. 
Special 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. 

Department of Defense office or military service: U.S. Air Force; 
Program or activity:
Transportation support to the Foreign Emergency 
Support Team; Description of program or activity: 
 Provides transport 
capability to the Foreign Emergency Support Team (FEST) through use of 
two C-32B (Boeing 757-200) aircraft. The U.S. Air Force supports 
worldwide operations to select U.S. government agencies on the 
recommendation of the Deputies Committee and approval by the Secretary 
of Defense. 

Department of Defense office or military service: Office of the 
Assistant Secretary of Defense for Special Operations and Low-Intensity 
Conflict; Program or activity
in RDT&E; Description of program or activity: 
Like the antiterrorism component, the counterterrorism component has 
two RDT&E programs as well: (1) Counterterror Technical Support Program 
(renamed the Combating Terrorism Technology Support 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. 

Department of Defense office or military service: Office of the 
Assistant Secretary of Defense for Special Operations and Low-Intensity 
Conflict; Program or activity
in Counterterror Technical Support Program 
(renamed the Combating Terrorism Technology Support Program); 
Description of program or activity:  
Originally established to help fund 
research and development activities of the TSWG, this program was 
renamed and enlarged to fund its international component and to better 
focus DOD's research 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. 

Department of Defense office or military service: Office of the 
Assistant Secretary of Defense for Special Operations and Low-Intensity 
Conflict; Program or activity
Counterproliferation Support to Special 
Operations Forces; Description of program or activity:  
A specialized 
RDT&E program to develop and demonstrate special operations forces 
unique devices. These projects enable Special Operations Forces and 
special mission units to detect, disable, and 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. 

Department of Defense office or military service: Defense Advanced 
Research Projects Agency; Program or activity: 
Counterterrorism research and development; Description of program or 
activity: Conducts research 
and development on ways to counter asymmetric 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. 

Military operations:

Department of Defense office or military service: U.S. Central Command; 
Program or activity:
Operation Enduring Freedom; Description of program 
or activity:   
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. 

Department of Defense office or military service: U.S. Central Command; 
Program or activity:
Combined Joint Task Force-Horn of Africa; 
Description of program or activity:  
To detect, disrupt, and defeat terrorists 
who pose an imminent threat to 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. 

Department of Defense office or military service: U.S. Central Command; 
Program or activity:
Combined Joint Task Force 150; Description of 
program or activity:
Constitutes a flotilla of coalition warships from 
France, Germany, Spain, 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. 

Department of Defense office or military service: U.S. Central Command; 
Program or activity:
Combined Joint Task Force 180; Description of 
program or activity:
Serves as the forward headquarters of the primary 
U.S. force in Afghanistan. Combined Joint Task Force 180 is located at 
Bagram Airfield outside of Kabul, Afghanistan. (See Operation Enduring 
Freedom above.).

Department of Defense office or military service: U.S. Central Command; 
Program or activity:
Operation Iraqi Freedom; Description of program or 
activity:   
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:

Department of Defense office or military service: Defense Intelligence 
Agency; Program or activity:
Intelligence Support to Combating Terrorism (first 
line of defense); Description of program or activity:  
Collection, 
analysis, and dissemination of all-source intelligence on terrorist 
groups and activities intended to protect, deter, preempt, or counter 
the terrorist threat to U.S. personnel, forces, critical 
infrastructures, and interests 

Department of Defense office or military service: DOD; Program or 
activity:   
National Foreign Intelligence Program; Description of 
program or activity:
This program has two mission areas: (1) Support to 
Military 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 

Department of Defense office or military service: U.S. Army, Deputy 
Chief of Staff for Intelligence, Counterintelligence/ Human 
Intelligence Division, and U.S. Marine Corps, Headquarters, 
Intelligence Department, Director of Intelligence; Program or activity: 
Tactical Counterintelligence; Description of program or activity: 
 Defense 
intelligence support to combating terrorism includes personnel and 
funding associated with U.S. Army and U.S. Marine Corps tactical 
counterintelligence resources, U.S. Army security and intelligence 
activities, Tactical Intelligence and Related Activities, and Joint 
Military Intelligence Program activities; 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. 

Department of Defense office or military service: U.S. Army; Program or 
activity:   
Counterintelligence activities; Description of program or 
activity:   
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. 

Department of Defense office or military service: U.S. Marine Corps; 
Program or activity:
Counterintelligence activities; Description of 
program or activity:
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. 

RESPOND TO TERRORIST INCIDENTS ABROAD:

Terrorism consequence management[A].

Department of Defense office or military service: U.S. Army, Office of 
the Director, Operations, Readiness, and Mobilization; Military Support 
Division, Operation Directorate; and the U.S. Army Soldier and 
Biological Chemical Command, Aberdeen Proving Ground, Md; U.S. 
Marine Corps, Marine Corps Systems Command, Quantico, Va; U.S. Navy, 
Combatant Commander, Atlantic Command, Norfolk, Va; U.S. Air Force, 
Readiness and Installation Support Division, Air Force Deputy Chief of 
Staff for Installations and Logistics, and Force Protection Division, 
Office of the Air Force Surgeon General; Assistant Secretary of 
Defense for Health Affairs, Services' Surgeon General's Offices, and 
local commanders; 
Program or activity: Terrorism Consequence Management 
Response; Description of program or activity: 
Terrorism consequence 
management is an emerging component in DOD's efforts to combat 
terrorism. DOD focuses its terrorism consequence management activities 
in two areas: (1) installation preparedness and (2) support to the lead 
federal agency. Under this component, DOD brings to the interagency 
arena a wide variety of unique warfighting technical and operational 
support capabilities that could be used to provide assistance to state 
and local authorities, if requested by the lead federal agency. DOD's 
response assets are found in both its Active and Reserve Components. 
DOD's role is to support the lead federal agency: the Department of 
State for terrorist incidents overseas, the Department of Justice 
(through the FBI) for crisis management of domestic terrorist 
incidents, and FEMA for consequence management of domestic terrorist 
incidents. DOD's focus is to provide assistance using its unique 
resources and capabilities, which are not found in the other federal 
agencies. These include the ability to mass mobilize and provide 
extensive logistical support. Because DOD's assets are structured, 
manned, and equipped for a warfighting mission, the Secretary of 
Defense must first determine that DOD's special capabilities and 
expertise are both necessary and critical to respond to an act of 
terrorism and that the provision of such assistance will not adversely 
the military preparedness of the U.S. Armed Forces; In foreign 
consequence management, DOD cooperates closely with the Department of 
State. Regional combatant commands are conducting exercises of their 
functional consequence management plans, both in combined capacity with 
partner nations in their areas of responsibility and with interagency 
counterparts. 

Terrorism consequence management-installation preparedness:

Department of Defense office or military service: Office of the 
Assistant Secretary of Defense for Special Operations and Low-Intensity 
Conflict; Program or activity
Deputy Secretary of Defense Memorandum, 
Preparedness of U.S. Military Installations and Facilities Worldwide 
Against Chemical, Biological, Radiological, Nuclear, and High-Yield 
Explosive Attack (Sept. 5, 2002); Description of program or activity: 
Establishes the DOD policy to protect personnel on military 
installations and DOD-owned or leased facilities against chemical, 
biological, radiological, nuclear, and high-yield explosive attacks; to 
respond to these attacks with trained and equipped emergency 
responders; and to ensure installations are able to continue critical 
operations during an attack and to resume essential operations after an 
attack. The memorandum also promulgated the actions necessary to 
accomplish this policy in terms of (1) installation preparedness, 
(2) personnel protection, (3) concept of operations, (4) standards and 
guidelines, and (5) budget and programs 

Department of Defense office or military service: Military services; 
Program or activity:
Installation First Response Preparedness; 
Description of program or activity:  
This was a new initiative in fiscal year 
2001. The military services were directed to develop requirements, 
train personnel, and procure equipment for first response preparedness 
at DOD installations and facilities. 

Department of Defense office or military service: U.S. Army Deputy 
Chief of Staff for Operations and Plans; Program or activity:  
Installation 
Preparedness Program (planned); Description of program or activity:  
Conducts a complete assessment of U.S. Army installations WMD 
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. 

Department of Defense office or military service: U.S. Navy; Program or 
activity:   
First Responder Preparedness; Description of program or 
activity:   
Provides planning, training, medical equipment, and non-
medical equipment for personnel who will respond to chemical, 
biological, and radiological incidents. 

Department of Defense office or military service: U.S. Air Force; 
Program or activity:
Disaster Response Force; Description of program or 
activity:   
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). 

Department of Defense office or military service: Defense Advanced 
Research Projects Agency; Program or activity: 
RDT&E; Description of program or activity:
Like the antiterrorism and counterterrorism 
components, the 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. 

Department of Defense office or military service: Defense Advanced 
Research Projects Agency; Program or activity: 
Counterterror Technical Support Program; Description of program or 
activity: Research and 
development initiatives to support all facets of combating 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. 

Department of Defense office or military service: Defense Advanced 
Research Projects Agency; Program or activity: 
Biological Warfare Defense Program; Description of program or 
activity: Applied research program to 
develop and demonstrate technologies to 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 

DOD terrorism consequence management support to lead federal agency 
and response assets:

Department of Defense office or military service: DOD; Program or 
activity:   
Joint Task Force for Civil Support; Description of program 
or activity:   
Plans and carries out military assistance to civil 
authorities for 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. 

Department of Defense office or military service: U.S. Army; Program or 
activity:   
Chemical-Biological Rapid Response Team; Description of 
program or activity:
Coordinates and integrates DOD's technical 
assistance for the detection, 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. 

Department of Defense office or military service: Defense Threat 
Reduction Agency; Program or activity: 
Defense Nuclear Advisory Team; 
Description of program or activity:  
Provides unique nuclear-related technical 
assistance to the Response 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. 

Department of Defense office or military service: Defense Threat 
Reduction Agency; Program or activity: 
head's Consequence Management Advisory 
Team; Description of program or activity: 
Assists other DOD organizations in 
matters involving weapons of mass 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 reach-back 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. 

Department of Defense office or military service: U.S. Air Force; 
Program or activity:
Radiological Assessment Team; Description of 
program or activity:
A rapidly deployable team with the personnel and 
equipment necessary 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. 

Department of Defense office or military service: U.S. Army; Program or 
activity:   
52[ND] Ordnance Group (Explosive Ordnance Disposal); 
Description of program or activity:  
Provides military explosive ordnance 
disposal/bomb squad units to defeat or mitigate the hazards from 
conventional, nuclear, or chemical 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 render-safe/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; Program or activity: Technical Escort Unit; Description of 
program or activity:  
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. 

Department of Defense office or military service: U.S. Army; Program or 
activity:   
Edgewood Chemical and Biological Forensic Analytical Center 
Modular On-site Laboratory; Description of program or activity: 
 
Provides on-site laboratory capability to analyze chemical safety 
materials, foreign chemical warfare agents, and other hazardous 
industrial chemicals. The laboratory consists of a series of 
transportable 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.

Department of Defense office or military service: U.S. Army; Program or 
activity:   
U.S. Army Medical Research Institute of Chemical Defense, 
Medical Chemical Biological Advisory Team; Description of program or 
activity:   
Provides the primary source of medical information dealing 
with the management of chemical warfare agent casualties for the 
federal government. The team assists the WMD incident commander by 
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. 

Department of Defense office or military service: U.S. Army; Program or 
activity:   
U.S. Army Medical Research Institute of Infectious Diseases; 
Description of program or activity:  
Conducts research to develop strategies, 
products, procedures, and training programs for medical defense against 
biological warfare threats 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. 

Department of Defense office or military service: U.S. Army; Program or 
activity:   
Special Medical Augmentation Response Team--Nuclear/ 
Biological/Chemical; Description of program or activity:  
Provides 
technical advice in the detection, neutralization, and containment of 
chemical, biological, or radiological hazardous materials 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 

Department of Defense office or military service: U.S. Army; Program or 
activity:   
Special Medical Augmentation Response Team-- Aero-Medical 
Isolation; Description of program or activity: 
Provides a rapid response 
evacuation unit to any area of the world to transport and provide 
patient care under conditions of biological 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 

Department of Defense office or military service: U.S. Army; Program or 
activity:   
Radiological Advisory Medical Team; Description of program 
or activity:   
Assists and furnishes radiological health hazard guidance to 
the on-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. 

Department of Defense office or military service: U.S. Army and U.S. 
Navy; Program or activity:
Radiological Control Teams; Description of program 
or activity:   
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. 

Department of Defense office or military service: U.S. Marine Corps; 
Program or activity:
Chemical-Biological Incident Response Force; 
Description of program or activity:  
A highly trained, rapid response force 
that is capable of providing 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. 

Department of Defense office or military service: U.S. Navy; Program or 
activity:   
U.S. Navy Environmental and Preventive Medical Unit, 
Chemical, Biological, Radiological, Environmental Defense Response 
Team; Description of program or activity: 
Provides doctors, industrial 
hygienists, environmental health officers, microbiologists, preventive 
medical technicians, and other related professional who could be 
deployed in response to an incident. Teams remain on alert for a rapid 
response and can advise the Chemical/ Biological Rapid Response Team 
and local public health authorities and augment other Chemical/
Biological Rapid Response Team medical assets. 

Department of Defense office or military service: U.S. Navy; Program or 
activity:   
U.S. Navy Medical Research Institute; Description of program 
or activity:   
Provides a transportable biological field laboratory that is 
capable of rapid identification of biological warfare agent. With a 
team of two operators, the laboratory can be ready to deploy within 4 
hours. 

Department of Defense office or military service: Assistant Secretary 
of Defense (Health Affairs); Program or activity: 
 Response Teams; Description 
of program or activity:
Provide short-duration medical augmentation to 
federal and defense 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. 

Department of Defense office or military service: Military assistance 
to other countries for international special security events.

Department of Defense office or military service: Regional military 
commanders; Program or activity:  
International special security events; 
Description of program or activity:  
Provides a military response, if needed, 
to a terrorist incident overseas 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.

[End of table]

[End of section]

Appendix II: Matrix of Department of Homeland Security Programs and 
Activities to Combat Terrorism 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.

Table 11: Department of Homeland Security Programs and Activities to 
Combat Terrorism Overseas:

STRATEGIC :

Special agency official or office in charge of counterterrorism:

Department of Homeland Security office or bureau: Secretary of Homeland 
Security; Program or activity: Serves as head of the 
department; Description of program or activity: 
Responsible for preventing terrorist attacks within the United States 
and 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. 

Agency plans or strategies to combat terrorism:

Department of Homeland Security office or bureau: Department of 
Homeland Security; Program or activity: National 
Strategy for Homeland Security (September 2002); Description of program 
or activity: The strategy addresses the threat of 
terrorism within the United States, but does mention various 
initiatives related to combating terrorism overseas. 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:

Department of Homeland Security office or bureau: Information Analysis 
and Infrastructure Protection Directorate; Program or activity:  
Implementation of the Homeland Security Act of 2002; 
Description of program or activity: 
Helps implement 
Department of Homeland Security critical infrastructure protection 
responsibilities in (1) developing a comprehensive national plan 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. 

Department of Homeland Security office or bureau: Law enforcement 
training (with foreign governments).

Department of Homeland Security office or bureau: Federal Law 
Enforcement Training Center; Program or activity: 
Glynn 
County ("Glynco"), Georgia, facility; Description of program or 
activity: Serves as an interagency law enforcement 
training organization for federal 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.

Department of Homeland Security office or bureau: Federal Law 
Enforcement Training Center; Program or activity: 

International Programs Division; Description of program or activity: 
 
Under agreement with the Department of State, the 
Federal Law 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. 

Department of Homeland Security office or bureau: Bureau of Customs and 
Border Protection; Program or activity: 
Nunn-Lugar 
Cooperative Threat Reduction Program; Description of program or 
activity: Provides basic and specialized border 
control training and equipment to customs and law enforcement agencies 
with a focus on Russia, Belarus, Kazakhstan, and the Ukraine. This 
program is funded through the Department of Defense. 

Department of Homeland Security office or bureau: Bureau of Customs and 
Border Protection; Program or activity: 
Project Amber; 
Description of program or activity: 
Provides basic border 
control training and advanced courses on cross-country tracking, 
targeting of high-risk shipments, and proper utilization of Department 
of State-provided x-ray vans to detect nuclear materials. 

Department of Homeland Security office or bureau: Bureau of Customs and 
Border Protection; Program or activity: 
Service counter-proliferation Program; Description of program or 
activity: Cooperative effort with the Department of Defense 
that provides border control training and equipment, including large 
consignments of high-and low-tech interdiction and detection tools and 
advanced investigative techniques. 

Department of Homeland Security office or bureau: Bureau of Customs and 
Border Protection; Program or activity: 
Export Control/Border Security Program; Description of program or 
activity: Provides on-site technical assistance by 13 customs 
advisors in 9 offices 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:

Department of Homeland Security office or bureau: Bureau of Immigration 
and Customs Enforcement; Program or activity: 
Customs Air and Marine Interdiction; Description of program or 
activity: Responsible for protecting the nation's 
borders and the American people from smuggling of narcotics and other 
contraband terrorist activity with an integrated air and marine 
interdiction force. 

Department of Homeland Security office or bureau: Bureau of Customs and 
Border Protection; Program or activity: 
Operation Shield America; Description of program or activity: 
Cooperative initiative with American companies to 
help prevent international terrorist groups from obtaining sensitive 
U.S. technology, weapons, and equipment. Operating internationally, 
customs attach 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. 

Department of Homeland Security office or bureau: Bureau of Customs and 
Border Protection; Program or activity: 
Advanced Passenger Information System; Description of program or 
activity: Provides mandatory information on arriving airline 
passengers that is 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. 

Department of Homeland Security office or bureau: Bureau of Customs and 
Border Protection; Program or activity: Automated 
Manifest System; Description of program or activity:  
Provides extensive data to customs inspectors on the 
shipping industry, its patterns, and all who participate. Customs 
officials report that they receive information on 98 percent of all 
containers entering the United States. 

Department of Homeland Security office or bureau: Bureau of Customs and 
Border Protection; Program or activity: Trade 
Partnership Against Terrorism; Description of program or activity: 
Cooperative agreement to work with the trade 
community to improve border 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. 

Department of Homeland Security office or bureau: Bureau of Customs and 
Border Protection; Program or activity: 
Smart Border 
Declaration; Description of program or activity: 
Cooperative agreement between the United States and Canada whereby 
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. 

Department of Homeland Security office or bureau: Bureau of Customs and 
Border Protection; Program or activity: NEXUS Program; 
Description of program or activity: Allows low-risk 
Canadian and U.S. citizens to travel across the U.S.-Canadian border 
with minimal customs or immigration processing by either country. This 
is a pilot program. 

Department of Homeland Security office or bureau: Bureau of Customs and 
Border Protection; Program or activity: Container 
Security Initiative; Description of program or activity:  
Protects the use of ocean-going sea containers in 
international trade. Initially the focus will be on the largest ports 
of entry and focus on pre-screening of cargo prior to shipment to the 
United States. The initiative is expected to (1) establish criteria for 
identifying high-risk containers, (2) pre-screen 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. 

Department of Homeland Security office or bureau: U.S. Coast Guard; 
Program or activity:  Maritime border controls between 
ports of entry; Description of program or activity: 
The U.S. Coast Guard participates in efforts to 
detect terrorists and their 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. 

Department of Homeland Security office or bureau: U.S. Border Patrol; 
Program or activity:  Land border controls between 
ports of entry; Description of program or activity: 
The U.S. Border Patrol has the mission to detect and 
apprehend illegal 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, all-terrain vehicles, and horse 
units. 

DISRUPT AND DESTROY TERRORIST ORGANIZATIONS ABROAD:

Law enforcement Investigations:

Department of Homeland Security office or bureau: Bureau of Immigration 
and Customs Enforcement; Program or activity: Customs Attachs; 
Description of program or activity: Work closely with host government 
customs services 
and other law enforcement agencies to coordinate law enforcement 
actions domestically and internationally against terrorists cells and 
networks. 

Department of Homeland Security office or bureau: Bureau of Immigration 
and Customs Enforcement; Program or activity: 
Operation Global Shield; Description of program or activity:  
Immigration Control Officers deployed at transit 
points around the world to 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. 

Department of Homeland Security office or bureau: Bureau of Immigration 
and Customs Enforcement; Program or activity: Operation Oasis; 
Description of program or activity: 
Operation is directed at identifying, detecting, and 
halting the illegal exportation of unreported currency to terrorist 
activity. 

Department of Homeland Security office or bureau: Bureau of Immigration 
and Customs Enforcement; Program or activity: Customs investigations; 
Description of program or activity: Responsible for investigating a 
range of issues including terrorist financing, export enforcement, 
money laundering, smuggling, fraud, and cyber crimes. 

Department of Homeland Security office or bureau: U.S. Secret Service; 
Program or activity: Investigates terrorists' threats; 
Description of program or activity: Investigates 
terrorists' threats against officials under its protective mission 
overseas, including the President and Vice President. 

Identifying, freezing, and seizing terrorist organizations' assets:

Department of Homeland Security office or bureau: Bureau of Immigration 
and Customs Enforcement; Program or activity: Operation Green Quest; 
Description of program or activity: Multi-agency financial enforcement 
initiative 
intended to augment existing 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. 

Department of Homeland Security office or bureau: U.S. Secret Service; 
Program or activity: Investigates; financial crimes; 
Description of program or activity: Responsible for 
enforcing laws related 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. 

Military Operations:

Department of Homeland Security office or bureau: U.S. Coast Guard; 
Program or activity:  
rMaritime interception operations; 
Description of program or activity: Conducts 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. 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:

Department of Homeland Security office or bureau: U.S. Secret Service; 
Program or activity: Protection of senior officials overseas; 
Description of program or activity: 
Responsible for the security of the President and Vice President, as 
well as other designated individuals under its protective mission 
overseas. 

RESPOND TO TERRORIST INCIDENTS ABROAD:

Crisis and consequence management domestic and abroad[A]:

Department of Homeland Security office or bureau: Department of 
Homeland Security; Program or activity: 
Emergency Response Teams; Description of program or activity:  
Includes a number of response teams with unique 
capabilities that are 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.

[End of table]

[End of section]

Appendix III: Matrix of Department of Justice Programs and 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.

Table 12: Department of Justice Programs and Activities to Combat 
Terrorism Overseas:

STATEGIC FRAMEWORK:

Agency head's roll in counterterrorism:

Department of Justice 
office or bureau: Justice, Attorney General; Program or activity: 
 Head of 
the Department of Justice and chief law enforcement officer of the 
federal government; Description of program or activity:  
Represents the 
United States in legal matters related to terrorism and gives advice 
and opinions to the President and to the heads of the executive 
departments of the government. Also, the Attorney General, 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:

Department of Justice 
office or bureau: Justice, Deputy Assistant Attorney General; Program 
or activity: Criminal Division, Counterterrorism Section; 
Description of program or activity:  
This section is responsible for the design, 
implementation, and support 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. 

Department of Justice 
office or bureau: Justice, U.S. Attorney District Offices; Program or 
activity: 
Anti-Terrorism Task Forces; Description of program or activity: 
 Integrates 
and coordinates 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. 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 Anti-Terrorism Task Forces also develop the U.S. investigative and 
prosecution strategy throughout the country. 

Department of Justice 
office or bureau: Justice, Deputy Attorney General; Program or 
activity: 
National Security Coordination Council; Description of program or 
activity: 
Coordinates policy, resource allocation, operations, long-term 
planning, 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:

Department of Justice 
office or bureau: Justice, U.S. Attorney General; Program or activity: 
 Five-Year 
Interagency Counterterrorism and Technology Crime Plan (Sept. 1999); 
Description of program or activity:  
Serves as a baseline strategy for 
coordination of national policy and operational capabilities to combat 
terrorism in the United States and against American interests 
overseas. 

Department of Justice 
office or bureau: Justice, U.S. Attorney General; Program or activity: 
 Strategic 
Plan for Fiscal Years 2001-2006 (Sept. 2000); Description of program or 
activity: 
Provides a multi-year plan for carrying out the department's mission. 
The 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. 

Department of Justice 
office or bureau: Justice, U.S. Attorney General; Program or activity: 
 National 
Money Laundering Strategy, jointly issued by the Attorney General and 
the Secretary of the Treasury in July 2002; Description of program or 
activity: 
The strategy includes, for the first time, a comprehensive national 
plan to attack the financing of terrorist groups. Goal 2 of the 
Strategy focuses law enforcement and regulatory resources on 
identifying terrorist financing networks by (1) implementing a multi-
pronged 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, 
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. 

Department of Justice 
office or bureau: FBI; Program or activity: 
Strategic Plan 1998-2003 (May 1998); 
Description of program or activity:  
Concentrates on specific 5-year strategic 
goals and key functional 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. 

DETECT AND PREVENT TERRORISM ABROAD.

Law enforcement training (with foreign governments):

Department of Justice 
office or bureau: FBI; Program or activity: 
International Law Enforcement Academy 
(ILEA)--; Budapest, Hungary; Description of program or activity: 
 Trains law 
enforcement officers from Central Europe and the newly independent 
states of the former Soviet Union. The academy provides specialized 
short-term courses and an 8-week professional development 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; Program or activity:  
International Training and Assistance Unit; Description of program or 
activity: 
Conducts worldwide in-country training through the International 
Training and Assistance Unit for foreign law enforcement entities. The 
unit responds to training requests from the legal attachs 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 

Department of Justice 
office or bureau: Justice, Criminal Division, International Training 
and Development Programs; Program or activity: 
 International Criminal 
Investigative Training Assistance Program; Description of program or 
activity: 
Provides training and development assistance to police organizations 
worldwide. The training also helps foreign governments develop the 
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 

Department of Justice 
office or bureau: Justice, Criminal Division, International Training 
and Development Programs; Program or activity: 
 Office of Overseas 
Prosecutorial Development Assistance and Training; Description of 
program or activity:
counterProvides justice-sector institution building 
assistance, including training of foreign judges and prosecutors, in 
coordination with various 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 

Department of Justice 
office or bureau: Bureau of Alcohol, Tobacco, Firearms and Explosives; 
Program or activity:
International Programs Branch training; Description 
of program or activity:
counterTrains foreign nationals in conjunction with the 
Department of State's 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. 

Department of Justice 
office or bureau: Border security (including visa processing issues).
Department of Justice 
office or bureau: Justice; Program or activity: 
National Security Entry-Exit 
Registration System; Description of program or activity:  
Tracks up to 200,000 
foreign visitors each year and stops suspected 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. 

Department of Justice 
office or bureau: Justice; Program or activity: 
Foreign Terrorist Tracking Task 
Force; Description of program or activity: 
Coordinates a multi-agency effort to 
identify, locate, and deny entry to, or 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.

Department of Justice 
office or bureau: FBI, Executive Assistant Director for Law Enforcement 
Services; Program or activity
Office of Law Enforcement Coordination; 
Description of program or activity:  
Establishes relationships and enhances 
information sharing with state and local police professionals. In 
addition, helps the FBI tap into the strengths and capabilities of its 
partners. 

Department of Justice 
office or bureau: FBI, Counterterrorism Division; Program or activity: 
 National 
Joint Terrorism Task Force; Description of program or activity: 
 Serves as 
the national coordinating mechanism for sharing information 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. 

Department of Justice 
office or bureau: FBI, Field Offices; Program or activity:  
Joint Terrorism Task 
Forces; Description of program or activity: 
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-to-cop" 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. 

Department of Justice 
office or bureau: Justice, Criminal Division; Program or activity: 
Terrorist Financing Task Force; Description of program or activity:  
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 

Department of Justice 
office or bureau: FBI, Executive Assistant Director for Law Enforcement 
Services; Program or activity:
International Operations; Description of program 
or activity:
Promotes relations with both foreign and domestic law 
enforcement agencies and security services and facilitates 
investigative activities. Also provides managerial support of the Legal 
Attach Program. 

Department of Justice 
office or bureau: FBI, International Operations; Program or activity: 
Legal Attach Program; Description of program or activity:  
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 Attachs 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 attach offices 
worldwide. 

Department of Justice 
office or bureau: Justice, Criminal Division, Office of International 
Affairs; Program or activity: Negotiates bilateral and multilateral 
agreements; Description of program or activity:  
In conjunction with the Department of State, 
the Office of International 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. 

Department of Justice 
office or bureau: Justice; Program or activity: 
 U.S. National Central Bureau of 
the International Criminal Police Organization (INTERPOL); Description 
of program or activity:
Represents the United States as a member of INTERPOL. 
It facilitates international law enforcement cooperation by 
transmitting law enforcement-related information between the National 
Central Bureaus 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. 

Department of Justice 
office or bureau: Bureau of Alcohol, Tobacco, Firearms and Explosives; 
Program or activity:
Law enforcement cooperation; Description of program 
or activity:
counterWorks directly and in cooperation with other agencies 
to enforce federal laws and regulations related to firearms, 
explosives, and fire-related violent crimes. 

Law enforcement investigations.

Department of Justice 
office or bureau: FBI, Counterterrorism Division; Program or activity: 
Lead agency in charge of investigating international terrorist 
incidents; Description of program or activity:  
As principal investigative agency of the 
federal government, it serves as lead agency for international 
counterterrorism investigations. The FBI 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. 

Department of Justice 
office or bureau: Justice; Program or activity: 
Attorney General Guidelines for 
FBI Foreign Intelligence Collection and Foreign Counter-intelligence 
Investigations; Description of program or activity:  
Establishes 
prediction levels and limits on international counterterrorism 
investigations involving U.S. persons or foreign nationals overseas. 

Department of Justice 
office or bureau: FBI; Program or activity: 
National Crime Information Center 
Database; Description of program or activity: 
Provides the names and identifying information of terrorist suspects 
under domestic and international investigations. The data is 
accessible to state and local law enforcement officers. 

Department of Justice 
office or bureau: FBI; Program or activity: 
Integrated Automated Fingerprint; 
Identification System; Description of program or activity:  
Provides the 
capability to search and match fingerprints of suspected terrorists 
against millions of fingerprints contained in the criminal fingerprint 
repository. 

Department of Justice 
office or bureau: FBI; Program or activity: 
National Center for the Analysis of 
Violent Crime; Description of program or activity: 
 Provides investigative and 
operational support functions to federal, state, 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. 

Department of Justice 
office or bureau: Justice, Criminal Division, Office of International 
Affairs; Program or activity:
Mutual legal assistance treaties; Description of 
program or activity:
Provides for the exchange of evidence between parties 
to a treaty, often 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. 

Department of Justice 
office or bureau: Justice, Criminal Division, Office of International 
Affairs; Program or activity:
Letters rogatory; Description of program or 
activity: 
Letters rogatory are requests that come from judicial officials in one 
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. 

Department of Justice 
office or bureau: Bureau of Alcohol, Tobacco, Firearms and Explosives; 
Program or activity:
International Programs Branch; Description of 
program or activity:
Combats the illegal movement of firearms, explosives, 
and ammunition 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 Attachs 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.

Department of Justice 
office or bureau: Justice, Criminal Division, Office of International 
Affairs; Program or activity
Extradition treaties; Description of program or 
activity: 
Enables parties to a treaty to obtain custody of accused terrorists. 
The 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.

Department of Justice 
office or bureau: FBI; Program or activity: 
Renditions; Description of program or 
activity: 
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. 

Department of Justice 
office or bureau: Justice, U.S. Marshals Service; Program or activity: 
Extraditions-prisoner custody and transportation; Description of 
program or activity: Escort agents apprehend and transport suspected 
terrorists to the United States for prosecution once the extradition 
proceedings in a foreign country are complete and the suspected 
terrorist is ready for surrender. 

Law enforcement arrests and prosecutions.

Department of Justice 
office or bureau: Justice, Criminal Division, Counterterrorism Section; 
Program or activity:
Prosecutions; Description of program or activity: Prosecutes 
suspected terrorists for acts of terrorism against U.S. citizens or 
interests through the Department of Justice, Criminal Division's 
Terrorism Section. 

Intelligence on terrorist groups and threat assessments.

Department of Justice 
office or bureau: FBI, Executive Assistant Director for 
Counterterrorism and Counterintelligence; Program or activity:  
Counterterrorism Division; Description of program or activity:  
Centralizes operational and analytical functions to combat terrorism on 
three fronts: (1) international terrorism operations both within the 
United 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.".

Department of Justice 
office or bureau: FBI, Counterterrorism Division; Program or activity: 
 "Flying Squads"; Description of program or activity: 
 Enables agents with specific 
counterterrorism knowledge to rapidly access knowledge and expertise in 
the field to ensure it is relayed to FBI headquarters for analysis. 

Department of Justice 
office or bureau: FBI, Counterterrorism Division; Program or activity: 
Information Integration Initiative; Description of program or activity: 
 Improves 
interagency terrorism-related information sharing by facilitating 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. 

Department of Justice 
office or bureau: FBI, Counterterrorism Division; Program or activity: 
Terrorist Financing Operations Section; Description of program or 
activity: The Terrorist Financing Operations Section works jointly with the law 
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. 

Department of Justice 
office or bureau: FBI, Executive Assistant Director for 
Counterterrorism and Counterintelligence; Program or activity: 
Counter-intelligence Division; Description of program or activity:  
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 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.

Department of Justice 
office or bureau: FBI, Counterintelligence Division; Program or 
activity: Counter-Espionage Section; Description of program or 
activity: Manages 
espionage investigations and evaluates and prioritizes all existing 
espionage cases to ensure effective allocation of human resources and 
expertise. 

Department of Justice 
office or bureau: FBI, Executive Assistant Director for 
Counterterrorism and Counterintelligence; Program or activity: 
Office of Intelligence; Description of program or activity: 
Serves as a strategic and 
tactical intelligence and analytical mechanism for pulling information 
from various sources. Also supports 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. 

Department of Justice 
office or bureau: FBI, Counterterrorism Division; Program or activity: 
Threat Assessment/Prevention Unit; Description of program or activity: 
Assesses the potential threats existing in short-and long-term 
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. 

Department of Justice 
office or bureau: FBI, Counterterrorism Division; Program or activity: 
National Threat Warning System; Description of program or activity:  
Provides threat 
warning information to the law enforcement and intelligence 
communities. The system also enables the FBI to communicate threat 
information directly to U.S. citizens. 

Department of Justice 
office or bureau: FBI; Program or activity: 
Terrorism Watch List; Description of 
program or activity:
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. 

Department of Justice 
office or bureau: FBI, Counterterrorism Division, Counterterrorism 
Threat Assessment and Warning Unit; Program or activity:  
Publishes annual 
report on Terrorism in the United States; Description of program or 
activity: 
The annual report, Terrorism in the United States, is published to 
provide a comprehensive picture of the security threats that American 
citizens and interests have encountered in the United States. 

Department of Justice 
office or bureau: FBI, Counterintelligence Division; Program or 
activity: 
Awareness of national security issues and response; Description of 
program or activity:
Serves as the public voice of the FBI for espionage, 
counterintelligence, 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. 

Department of Justice 
office or bureau: FBI, Counterterrorism; Division; Program or activity: 
 National 
Infrastructure Protection Center; Description of program or activity: 
 Serves as 
the focal point for interagency efforts to warn of and respond 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. 

Department of Justice 
office or bureau: FBI, Counterterrorism Division; Program or activity: 
Information Sharing and Analysis Center; Description of program or 
activity: 
Increases security for the nation's critical infrastructures through a 
two-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 

Department of Justice 
office or bureau: Bureau of Alcohol, Tobacco, Firearms and Explosives; 
Program or activity:
National Firearms Tracing Center; Description of 
program or activity:
Traces crime guns taken into police custody in the 
United States as well as U.S.-source firearms recovered in foreign 
countries. The center is an effort to curb the flow of illegal 
firearms. 

Department of Justice 
office or bureau: Bureau of Alcohol, Tobacco, Firearms and Explosives; 
Program or activity:
Transnational Intelligence Branch; Description of 
program or activity:
In response to the terrorist attacks of September 11, 
2001, the ATF 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]:

Department of Justice 
office or bureau: FBI, Counterterrorism Division; Program or activity: 
 WMD 
Operations Unit; Description of program or activity:  
Coordinates the 
interagency threat assessment process and determines 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. 

Department of Justice 
office or bureau: FBI; Program or activity: 
Strategic Information and Operations 
Center; Description of program or activity: 
Serves as a focal point for 
information management, coordination, and 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. 

Department of Justice 
office or bureau: FBI, Executive Assistant Director for Law Enforcement 
Services; Program or activity
Laboratory Division; Description of program or 
activity: 
Provides forensic and technical services to federal, state, and local 
law enforcement agencies. The division collects and conducts analysis 
of 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. 

Department of Justice 
office or bureau: FBI, Executive Assistant Director for Law 
Enforcement; Program or activity:  
Investigative Technologies Division; 
Description of program or activity:  
Provides technical and tactical services in 
support of investigators and 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. 

Department of Justice 
office or bureau: FBI, Laboratory Division, Enforcement Services; 
Program or activity:
Mobile Crime Laboratory; Description of program or 
activity: 
Provides the capability to collect and analyze a range of evidence at 
the crime scene. The laboratory also has analytical instrumentation for 
rapid screening and triage of explosives and other trace evidence 
recovered at the crime scene. 

Department of Justice 
office or bureau: FBI, Laboratory Division, Enforcement Services; 
Program or activity:
Flyaway Laboratory; Description of program or 
activity: 
Provides the capacity to rapidly respond to criminal acts involving the 
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.

Department of Justice 
office or bureau: FBI, Laboratory Division; Program or activity: 
 Explosives 
Unit; Description of program or activity: 
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. 

Department of Justice 
office or bureau: FBI, Laboratory Division; Program or activity: 
 Firearms 
Unit; Description of program or activity: 
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. 

Department of Justice 
office or bureau: FBI, Laboratory Division, Enforcement Services; 
Program or activity:
Evidence Response Team; Description of program or 
activity: 
FBI Special Agents who specialize in conducting major evidence 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. 

Department of Justice 
office or bureau: FBI, Enforcement Services, Critical Incident Response 
Group; Program or activity:
Critical Incident Response Group; Description of 
program or activity:
This group facilities the rapid response to--and the 
management of--crisis incidents. The group deploys investigative 
specialists to respond to terrorist activities, hostage taking, child 
abductions, and other high-risk repetitive violent crimes. 

Department of Justice 
office or bureau: FBI, Enforcement Services, Critical Incident Response 
Group; Program or activity:
Crisis Negotiation Unit; Description of program or 
activity: 
Maintains an immediate operational response capability to conduct and 
manage on-scene negotiations during any significant crisis event in 
which the FBI is involved. The unit deploys overseas to assist in the 
management of kidnapping situations involving U.S. citizens. 

Department of Justice 
office or bureau: FBI, Enforcement Services, Critical Incident Response 
Group; Program or activity:
Crisis Management Unit; Description of program or 
activity: 
Operationally supports FBI field and headquarters entities during 
critical incident or major investigations. The unit conducts crisis 
management 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. 

Department of Justice 
office or bureau: FBI, Enforcement Services, Critical Incident Response 
Group; Program or activity:
Rapid Deployment Logistics Unit; Description of 
program or activity:
Coordinates administrative and logistical matters 
for deploying the Rapid Deployment Team. The unit also coordinates 
military and commercial 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. 

Department of Justice 
office or bureau: FBI; Program or activity: 
Rapid Deployment Team; Description of 
program or activity:
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. 

Department of Justice 
office or bureau: FBI, Enforcement Services, Critical Incident Response 
Group; Program or activity: Hostage Rescue Team; Description of 
program or activity: 
Conducts rescues of U.S. persons and others held illegally by a hostile 
force, either terrorist or criminal in nature. The team is capable of 
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. 

Department of Justice 
office or bureau: FBI, Enforcement Services, Laboratory Division; 
Program or activity:
Hazardous Materials Response Unit; Description of 
program or activity:
Provides the capability to safely and effectively 
respond to incidents involving the use of hazardous materials. The unit 
also develops technical proficiency and readiness procedures for crime 
scene and evidence-related operations. 

Department of Justice 
office or bureau: Bureau of Alcohol, Tobacco, Firearms and Explosives; 
Program or activity:
International Incident Response Team; Description of 
program or activity:
Responds with investigative assistance and 
laboratory support to assist 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.

[End of table]

[End of section]

Appendix IV: Matrix of Department of State Programs and 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:

STRATEGIC FRAMEWORK:

Agency head's role in counterterrorism:

Department of State office or bureau: Office of the Secretary; Program 
or activity:
Directs State Department, the lead U.S. agency for 
terrorism activities abroad; Description of program or activity: 
 The 
Secretary of State is responsible for the coordination of all U.S. 
civilian departments and agencies that provide counterterrorism 
assistance overseas. The Secretary also is responsible for the 
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

Special agency official or office in charge of counterterrorism:

Department of State office or bureau: Office of the Coordinator for 
Counterterrorism; Program or activity: 
Coordinates all State Department 
counterterrorism activities and leads U.S. government efforts to 
improve counterterrorism cooperation with foreign governments; 
Description of program or activity:  
Coordinates U.S. overseas counterterrorism 
policy and response to international terrorist incidents that take 
place outside of U.S. territory; Engages in bilateral, multilateral, 
and public diplomacy to deter terrorism through a policy of making no 
concessions to terrorists, prosecuting or 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 

Department of State office or bureau: Each U.S. ambassador; Program or 
activity: 
Responsible for the full array of counterterrorism activities at each 
U.S. mission; Description of program or activity: 
See below for descriptions of counterterrorism activities at U.S. 
missions 

Agency plans or strategies to combat terrorism:

Department of State office or bureau: Office of the Secretary; Program 
or activity:
State Department's Annual Performance Plan; 
Description of program or activity:  
The State Department's 2002 Annual 
Performance Plan highlights its 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 

Department of State office or bureau: U.S. embassies (ambassador); 
Program or activity:
Mission Performance Plan; Description of program or 
activity: 
Lists each embassy's priorities and includes implementation and 
budgeting plans. If counterterrorism activities are an embassy 
priority, then the plan should include specific goals and actions to 
counter the threat 

DETECT AND PREVENT TERRORISM ABROAD.

Military security assistance.

Department of State office or bureau: Bureau of Political-Military 
Affairs; Program or activity
Regional security and arms controls to enhance 
regional stability; Description of program or activity:  
Supports the war on 
terrorism and Operation Enduring Freedom with security assistance 
programs such as (1) foreign military financing, (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 

Department of State office or bureau: Embassy security.

Department of State office or bureau: Bureau of Diplomatic Security; 
Program or activity:
Responsible for providing a secure environment for 
the conduct of American diplomacy worldwide; Description of program or 
activity: 
Manages a broad range of programs to create and maintain the 
highest appropriate levels of security possible for more than 50,000 
U.S. government personnel, staff, and dependents who work and live at 
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 

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Review of standards and risk management; Description of program or 
activity: 
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 
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 

Department of State office or bureau: Bureau of Overseas Buildings 
Operations; Program or activity:  
Embassy construction program; Description of 
program or activity:
Replaces State Department's less secure facilities on 
an accelerated 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. 

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Embassy construction program; Description of program or activity: 
Participates with Overseas Buildings Operations in developing embassy 
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. 

Department of State office or bureau: Diplomatic Security and Overseas 
Buildings Operations; Program or activity: 
Worldwide Security Upgrade Program; 
Description of program or activity:  
Provides a physically secure environment for 
all U.S. government personnel under the jurisdiction of the Chief of 
Mission. Diplomatic 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. 

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Residential security; Description of program or activity:  
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. 

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Overseas Protection of Information; Description of program or activity: 
 Implements 
a 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. 

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Surveillance Detection Program; Description of program or activity: 
 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" of embassy facilities or personnel, and includes 
capabilities intended to resolve all suspicious activity. 

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Local Guard Services; Description of program or activity:  
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. 

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Overseas Protective Vehicles; Description of program or activity: 
 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 

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Security Liaison Officers; Description of program or activity: 
 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. 

Department of State office or bureau: Warnings to and information-
sharing with Americans abroad.

Department of State office or bureau: Bureau of Consular Affairs; 
Program or activity:
Travel warnings, public announcements, and Consular 
Information Sheets; Description of program or activity:  
Ensures that 
important threat warnings and security information reach U.S. citizens 
and assets abroad in a timely and effective manner; 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. 

Department of State office or bureau: Consular Affairs; Program or 
activity: 
Warden system for notifying registered Americans of threats; 
Description of program or activity:  
Notifies 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. 

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Overseas Security Advisory Council; Description of program or activity: 
 Provides 
security support to U.S. businesses and private-sector 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).

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Antiterrorism Assistance; Description of program or activity:  
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. 

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Antiterrorism Assistance's proposed Center for Antiterrorism and 
Security Training; Description of program or activity:  
Antiterrorism 
Assistance proposes to build the Center for Antiterrorism and Security 
Training, a consolidated facility for training in various antiterrorism 
disciplines. 

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Antiterrorism Assistance's Mobile Emergency Training Team; Description 
of program or activity: Provides quick in-country training to allied 
nations. 

Department of State office or bureau: Bureau for International 
Narcotics and Law Enforcement Affairs; Program or activity:  
International Law 
Enforcement Academy; Description of program or activity:  
Provides law 
enforcement to foreign governments. International Narcotics and Law 
Enforcement Affairs manages the U.S. government's 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. 

Department of State office or bureau: International Narcotics and Law 
Enforcement Affairs; Program or activity: 
Law enforcement and police science; 
Description of program or activity:  
Provides training and technical assistance to 
foreign law enforcement 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. 

Department of State office or bureau: Office of the Coordinator for 
Counterterrorism and International Narcotics and Law Enforcement 
Affairs; Program or activity:
Countering terrorist financing; Description of 
program or activity:
Provides, with the Departments of Justice and the 
Treasury, training and assistance to foreign governments to strengthen 
their financial and regulatory regimes to reduce terrorist financing. 

Border security (including visa processing issues).

Department of State office or bureau: Consular Affairs; Program or 
activity: Visas; Description of program or activity: 
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. 

Department of State office or bureau: Consular Affairs; Program or 
activity: 
Consular Consolidated Database (visa data, including photographs); 
Description of program or activity:  
Supports the antiterrorist task forces since 
September 11, 2001. In fiscal year 2002, Consular Affairs performed 
numerous searches of visa 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. 

Department of State office or bureau: Bureau of Intelligence and 
Research; Program or activity
TIPOFF program; Description of program or 
activity: 
Manages the TIPOFF program, a database of sensitive intelligence 
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. 

Department of State office or bureau: Consular Affairs/Visa Services; 
Program or activity:
TIPOFF to impede terrorist entry into the United 
States; Description of program or activity: 
Uses TIPOFF in the visa program to 
identify and stop potential terrorists 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. 

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Investigation of visa and passport fraud; Description of program or 
activity: 
Impedes terrorist entry into the United States. 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. Diplomatic Security has 450 special agents in 
over 160 countries and approximately 700 special agents assigned 
throughout the United States. 

Department of State office or bureau: Office of the Coordinator for 
Counterterrorism; Program or activity: 
Terrorist Interdiction Program; 
Description of program or activity:  
Enhances 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 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. 

Department of State office or bureau: Office of the Inspector General; 
Program or activity:
Investigation of visa and passport fraud; Description 
of program or activity:
Conducts visa and passport investigations. The Office 
of the Inspector 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.

Department of State office or bureau: Office of International 
Information Programs; Program or activity: 
Build international support for U.S. 
foreign policy; Description of program or activity:  
Influence 
international opinion in support of U.S. foreign policy objectives. 
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.

Department of State office or bureau: Political-Military Affairs; 
Program or activity: State's primary liaison with the Department of 
Defense; Description of program or activity: Facilitates Defense-State 
actions concerning military operations. 

Department of State office or bureau: Political-Military Affairs; 
Program or activity:
Supporting U.S. military war on terrorism; 
Description of program or activity:  
Assists in developing and maintaining the 
global military coalition against 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, Political-Military Affairs processed 120 
deployment orders and 72 requests for coalition forces in support of 
Operation Enduring Freedom in Afghanistan. 

Department of State office or bureau: Political-Military Affairs; 
Program or activity:
Political Advisor to U.S. regional military commands; 
Description of program or activity:  
Political-Military Affairs provides 
personnel to DOD and the principal 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.

Department of State office or bureau: Office of the Secretary; Program 
or activity:
Worldwide diplomatic support for war on terrorism and 
Operation Enduring Freedom; Description of program or activity: 
 Received 
offers of military assistance for the war on terrorism from 
136 countries; 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 

Department of State office or bureau: U.S. embassies (ambassador); 
Program or activity:
Bilateral diplomatic support for war on terrorism and 
Operation Enduring Freedom; Description of program or activity: 
 Implements 
the above activities of the Office of the Secretary, in support of the 
war on terrorism and Operation Enduring Freedom 

Department of State office or bureau: Bureau of International 
Organization Affairs; Program or activity: 
Works with international organizations 
on counterterrorism issues; Description of program or activity: 
 Develops 
and implements U.S. counterterrorism policy in the UN and other 
international organizations, serving as State's primary liaison; 
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. 

Department of State office or bureau: Office of the Coordinator for 
Counterterrorism, International Narcotics and Law Enforcement Affairs, 
and the Economic Bureau, in coordination with the Department of the 
Treasury and other agencies; Program or activity: 
 Reduce the flow of money and 
other material support to terrorists; Description of program or 
activity: 
Blocks terrorism-related financing. The Office of the Coordinator for 
Counterterrorism, with the concurrence of the Departments of Justice 
and the Treasury, designates foreign terrorist organizations, 
individuals, and groups for a variety of purposes, including to block 
terrorism-related financing. The Economic Bureau is responsible for 
leading the effort to build international coalition support to also 
block these assets. According to State, since September 11, 2001, the 
United States has blocked $34.3 million in terrorist-related assets. 

Department of State office or bureau: Office of the Legal Adviser; 
Program or activity:
Negotiates international agreements; Description of 
program or activity:
Pursues extradition and mutual legal assistance 
treaties with foreign governments and works with the UN and with other 
nations in drafting multilateral agreements, treaties, and conventions 
on counterterrorism. 

Department of State office or bureau: Office of the Legal Adviser; 
Program or activity:
Works with Department of Justice on international law 
enforcement issues; Description of program or activity:  
Works closely with 
the Department of Justice's Office of International Affairs on specific 
cases and on building consensus on broad international counterterrorism 
and crime issues. 

Department of State office or bureau: Office of the Legal Adviser; 
Program or activity:
Drafts U.S. counterterrorism-related legislation; 
Description of program or activity:  
The Office of the Legal Adviser works with 
the Office of the Coordinator for Counterterrorism, the Economic 
Bureau, and the Department of Justice when U.S. legislation is needed 
to combat terrorism abroad. 

Department of State office or bureau: Law enforcement.

Department of State office or bureau: Diplomatic Security and Regional 
Security Officer; Program or activity: 
Law enforcement cooperation; 
Description of program or activity:  
Cooperates with local intelligence, security, 
and law enforcement entities to track and capture terrorists in country 
and to block attempted terrorist attacks on U.S. citizens and U.S. 
assets abroad. 

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Investigations of terrorist incidents; Description of program or 
activity: 
Conducts investigations of terrorist incidents involving U.S. 
diplomatic 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. 

Department of State office or bureau: Office of the Coordinator for 
Counterterrorism; Program or activity: 
Coordinates State's role in 
negotiating and conducting renditions; Description of program or 
activity: 
Captures suspected terrorists overseas. 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. 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. 

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Rewards for Justice Program; Description of program or activity: 
 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.

Department of State office or bureau: Intelligence and Research; 
Program or activity:
Intelligence support for Secretary of State and for 
U.S. missions; Description of program or activity: 
 Prepares intelligence reports 
for the Secretary of State, department officials, and ambassadors at 
U.S. missions. Monitors governmentwide intelligence activities to 
ensure their compatibility with U.S. counterterrorism foreign policy 
objectives. Seeks to expand interagency data sharing on known terrorist 
suspects. 

Department of State office or bureau: Intelligence and Research; 
Program or activity:
Intelligence assessments and policy guidance; 
Description of program or activity:  
Conducted the first public opinion survey 
inside Taliban-controlled 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. 

Department of State office or bureau: Intelligence and Research; 
Program or activity:
Electronic Read-and-Burn Pilot Project; Description 
of program or activity:
Provides intelligence products, especially threat 
information, to chiefs of mission who could not previously receive this 
type of highly classified material. 

Department of State office or bureau: Office of the Coordinator for 
Counterterrorism; Program or activity: 
Studies terrorist groups worldwide; 
Description of program or activity:  
Publishes an unclassified report called 
Patterns of Global Terrorism, as called for under 22, U.S.C.  2656f 
(a). 

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Publishes annual security reports; Description of program or activity: 
 The annual 
reports, Significant Incidents of Political Violence against 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. 

Department of State office or bureau: Diplomatic Security and Regional 
Security Officer; Program or activity: 
Threat and intelligence assessments; 
Description of program or activity:  
Interacts with police and intelligence 
contacts in other countries. A 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).

Department of State office or bureau: Diplomatic Security and Regional 
Security Officer; Program or activity: 
Information sharing and cooperation 
with host country governments; Description of program or activity: 
 Cooperates 
with foreign governments and their law enforcement and security forces 
in sharing threat and security information; 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].

Department of State office or bureau: Office of the Coordinator for 
Counterterrorism; Program or activity: 
Headquarters leadership of the U.S. 
government response to a terrorist incident overseas; Description of 
program or activity:
Serves as the lead for crisis and consequence 
management in directing the U.S. government response to a terrorist 
incident overseas. The Office of the Coordinator for Counterterrorism 
would lead a task force and work through the State Department 
Operations Center (discussed below). 

Department of State office or bureau: State Department Operations 
Center; Program or activity:
Headquarters task force for coordinating the U.S. 
government response to a terrorist incident overseas; Description of 
program or activity:
State's Operations Center maintains a 24-hour global 
watch and crisis management support staff. The watch is the initial 
point of contact for posts experiencing emergency crises, including 
terrorist attacks. In a 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. 

Department of State office or bureau: U.S. embassies (ambassador); 
Program or activity:
Serves as the U.S. government on-scene coordinator 
for terrorist incidents overseas; Description of program or activity: 
 In a given 
country, the ambassador would act as the on-scene coordinator in a 
terrorist incident. The ambassador would lead the Emergency Action 
Committee to manage the response. The ambassador could request a 
Foreign Emergency Support Team (discussed below) for assistance and to 
help coordinate the U.S. government's interagency response. 

Department of State office or bureau: Office of the Coordinator for 
Counterterrorism; Program or activity: 
Foreign Emergency Support Team to 
provide on-scene support; Description of program or activity:  
In coordination with 
the NSC, the Office of the Coordinator for Counterterrorism would lead 
an interagency Foreign Emergency 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. 

Department of State office or bureau: Diplomatic Security; Program or 
activity: 
Special Diplomatic Security teams to assist and investigate crisis 
situations; Description of program or activity: 
 Deploys its Mobile Support 
Teams and Security Support Teams to respond to increased threats or 
critical security needs at U.S. missions in 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. 

Department of State office or bureau: Political-Military Affairs; 
Program or activity:
Consequence management; Consequence Management 
Support Team; Description of program or activity: 
 Serves as the lead for 
consequence management in directing the U.S. government response to a 
terrorist incident outside of U.S. territory. The 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. 

Department of State office or bureau: Overseas Buildings Operations; 
Program or activity: Emergency Response Team; Description of program or 
activity: Helps secure embassy grounds and restore communications 
following a crisis. 

Department of State office or bureau: Consular Affairs; Program or 
activity: Medical needs; Description of program or activity: 
 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. 

Department of State office or bureau: Consular Affairs; Program or 
activity: 
Liaison with U.S. citizens under duress; Description of program or 
activity: 
Provides assistance for Americans stranded overseas by the closure of 
U.S. air space. 

Department of State office or bureau: Consular Affairs; Program or 
activity: 
Liaison with foreign nationals in the United States; Description of 
program or activity:
Provided assistance to New York City officials 
handling the deaths of 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. 

Planning and exercises at headquarters and abroad.

Department of State office or bureau: Office of the Coordinator for 
Counterterrorism; Program or activity: 
Counterterrorism Security Group, 
Exercise and Readiness Subgroup; Description of program or activity: 
 Manages 
the interagency exercise program for combating terrorism overseas and 
coordinates these exercises with other departments. The exercise 
program is designed to strengthen the U.S. government's ability to deal 
with terrorist attacks. 

Department of State office or bureau: Office of the Coordinator for 
Counterterrorism; Program or activity: 
International Senior Officials 
Workshops; Description of program or activity: 
 Conducts Senior Policy 
Workshops with friendly foreign governments. 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. 

Department of State office or bureau: Political-Military Affairs; 
Program or activity:
Contingency planning; Description of program or 
activity: 
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. 

Department of State office or bureau: Political-Military Affairs; 
Program or activity:
Consequence management exercises; Description of 
program or activity:
Sponsors consequence management exercises, in 
conjunction with other 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. 

Department of State office or bureau: Diplomatic Security; Program or 
activity: Emergency Planning Handbook; Description of program or 
activity: Serves as 
a consolidated source of guidance for overseas missions on 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. 

Department of State office or bureau: U.S. embassies; Program or 
activity: 
Emergency Action Committee; Description of program or activity: 
 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. 

Department of State office or bureau: U.S. embassies; Program or 
activity: 
Emergency Action Plan; Description of program or activity:  
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. 

Department of State office or bureau: Foreign Service Institute; 
Program or activity:
Emergency Action Committee exercises; Description of 
program or activity:
Trains Emergency Action Committee members in their 
emergency action 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. 

Department of State office or bureau: Deputy Chief of Mission and 
Regional Security Officer; Program or activity: 
 Emergency Action Committee/ 
Emergency Action Plan exercises; Description of program or activity: 
 Tests its 
Emergency Action Plan to prepare for management of crises, including 
terrorist attacks. The Emergency Action Committee at each mission is 
responsible for periodic drills, including their preparation, 
execution, and evaluation. 

Department of State office or bureau: U.S. embassies (ambassador); 
Program or activity:
Plans and coordinates evacuations and military 
noncombatant evacuation operations; Description of program or activity: 
 The 
Secretary of State is responsible for the protection and evacuation of 
U.S. citizens. In a crisis such as a terrorist incident, an ambassador 
can order the evacuation of U.S. government personnel and dependents. 
The 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. 

Department of State office or bureau: Alternative command centers.

Department of State office or bureau: Office of the Secretary; Program 
or activity:
Alternate operations center; Description of program 
or activity:
Transformed State's Alternate Operations Center from 
a part-time facility to a full-time alternate site to carry out 
critical State functions. 

Department of State office or bureau: Overseas Buildings Operations; 
Program or activity:
Alternate operations centers; Description of program 
or activity:
Maintains an alternate operations center for its 
headquarters operations and maintains facilities or the ability to 
establish alternate operations centers for its overseas U.S. mission 
operations. 

Post-incident law enforcement investigation.

Department of State office or bureau: U.S. embassies (ambassador); 
Program or activity:
Point of contact during any investigation; 
Description of program or activity:  
Serves as the point of contact for any post-
incident law enforcement 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.

[End of table]

[End of section]

Appendix V: Matrix of Department of the Treasury Programs and Activities 
to Combat Terrorism 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.

Table 14: Department of the Treasury Programs and Activities to Combat 
Terrorism Overseas:

STRATEGIC FRAMEWORK:

Agency head's role in counterterrorism:

Department of the Treasury office or 
bureau: Office of the Secretary of the Treasury; Program or activity: 
 The 
Secretary of the Treasury is the principal economic advisor to the 
President; Description of program or activity: 
 The Secretary of the Treasury 
plays a critical role in policy-making by bringing an economic and 
government financial policy perspective to issues facing the 
government. Among other duties, the Secretary is 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. 

Special agency official or office in charge of counterterrorism.

Agency plans or strategies to combat terrorism.

Department of the Treasury office or 
bureau: Department of the Treasury; Program or activity:  
National Money 
Laundering Strategy, jointly issued by the Secretary of the Treasury 
and the Attorney General in July 2002; Description of program or 
activity: 
The strategy includes, for the first time, a comprehensive national 
plan to attack the financing of terrorist groups. Goal 2 of the 
National Money Laundering Strategy focuses law enforcement and 
regulatory resources on identifying terrorist financing networks by 
(1) implementing a multi-pronged 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.

Department of the Treasury office or 
bureau: Treasury, Office of International Affairs; Program or activity: 
 Maintain 
international coalition against terrorist finances; Description of 
program or activity:
The Office of International Affairs works bilaterally 
and multilaterally to build and maintain the international coalition 
against terrorist finances along with other federal agencies, including 
the Departments of State and Justice, the Federal Bureau of 
Investigation (FBI), and the intelligence community 

Department of the Treasury office or 
bureau: Treasury, Office of International Affairs; Program or activity: 
 Financial 
Action Task Force on Money Laundering; Description of program or 
activity: 
Consists of an international group of 31 member-states, which focuses 
on 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. 

Department of the Treasury office or 
bureau: Treasury, Office of International Affairs; Program or activity: 
 Task Force 
on Terrorist Financing; Description of program or activity:  
Works with countries 
and monitors their efforts to track and block terrorists' 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. 

Department of the Treasury office or 
bureau: Treasury, Office of International Affairs; Program or activity: 
 Financial 
Attachs; Description of program or activity: 
 Develop extensive contacts with 
foreign finance ministries, foreign regulatory authorities, central 
banks and financial market participants. Financial Attachs 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. 

Prevent undermining of economic reforms.

Department of the Treasury office or 
bureau: Treasury, Office of International Affairs; Program or activity: 
 Office of 
Technical Assistance/Enforcement Policy and Administration Program; 
Description of program or activity:  
Provides specialist teams to countries 
through an advisor-based program to help prevent corruption, organized 
criminal enterprises, and other criminal activities that were 
undermining Treasury's economic reforms. 

Law enforcement training (with foreign governments).

DISRUPT AND DESTROY TERRORIST ORGANIZATIONS ABROAD.

Identifying, freezing, and seizing terrorist organizations' assets.

Department of the Treasury office or 
bureau: Treasury; Program or activity: 
Executive Office for Terrorist 
Financing and Financial Crimes; Description of program or activity: 
 This 
office was created in March 2003 and assumed the main functions of the 
former Office of Enforcement. The office is 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. 

Department of the Treasury office or bureau: Treasury; Program or 
activity: Financial Crimes Enforcement Network; 
Description of program or activity:  
Supports law enforcement investigations to 
prevent and detect money 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. 

Department of the Treasury office or 
bureau: Treasury, Office of Foreign Assets Control; Program or 
activity: 
Administers Economic Sanctions; Description of program or activity: 
 This 
office 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. 

RESPOND TO TERRORIST INCIDENTS ABROAD.

Crisis and consequence management domestic and abroad[A].

Department of the Treasury office or bureau: Treasury; Program or 
activity: Counter-terrorism Fund; Description of program or activity:
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 , 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 terrorism 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.

[End of table]

[End of section]

Appendix VI: United Nations Protocols, Conventions, and 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: International Convention for the Suppression 
of the Financing of Terrorism, New York; Dec. 9, 1999; Purpose: Commits 
member states to prevention and action of the financing of 
terrorists; holds those who finance terrorists liable; and provides for 
the identification, freezing and seizure of funds for terrorist 
activities. 

UN convention or protocol: International Convention for the Suppression 
of Terrorist Bombings, New York; Dec. 15, 1997; Purpose: Creates a 
regime of universal jurisdiction over the use of explosives and other 
lethal devices. 

UN convention or protocol: Convention on the Marking of Plastic 
Explosives for the Purpose of Detection, Montreal; Mar. 1, 1991; 
Purpose: Combats aircraft sabotage. Designed to control and limit the 
use of undetectable plastic explosives. 

UN convention or protocol: Protocol for the Suppression of Unlawful 
Acts Against the Safety of Fixed Platforms located on the Continental 
Shelf, Rome; Mar. 10, 1988; Purpose: Obligates member states to 
establish jurisdiction over unlawful acts and punish offences with 
appropriate penalties 

UN convention or protocol: Convention for the Suppression of Unlawful 
Acts Against the Safety of Maritime Navigation, Rome; Mar. 10, 1988; 
Purpose: Establishes a legal regime applicable to acts against 
international maritime navigation. Makes it an offence for a person to 
unlawfully and intentionally seize or exercise control over a ship by 
force.

UN convention or protocol: Protocol for the Suppression of Unlawful 
Acts of Violence at Airports Serving International Civil Aviation, 
supplementary to the Convention for the Suppression of Unlawful Acts 
Against the Safety of Civil Aviation, Montreal; Feb. 24, 1988; Purpose: 
Extends provisions of the Montreal Convention to include terrorist acts 
at international airports.

UN convention or protocol: Convention on the Physical Protection of 
Nuclear Material, Vienna; Mar. 3, 1980; Purpose: Criminalizes the 
unlawful possession, use, transfer, of nuclear material, the theft of 
nuclear material, and threats to use nuclear material to cause death or 
serious injury. 

UN convention or protocol: International Convention Against the Taking 
of Hostages, New York; Dec. 17, 1979; Purpose: Defines the taking of 
hostages and requires state parties to make this offense punishable by 
appropriate penalties. 

UN convention or protocol: Convention on the Prevention and Punishment 
of Crimes Against Internationally Protected Persons, including 
Diplomatic Agents, New York; Dec. 14, 1973; Purpose: Defines 
internationally protected persons; requires appropriate penalties for 
those who commit attacks against internationally protected persons and 
for those who support them. 

UN convention or protocol: Convention for the Suppression of Unlawful 
Acts Against the Safety of Civil Aviation, Montreal; Sept. 23, 1971; 
Purpose: Outlaws acts of violence on aircraft, placement of explosives 
on aircraft, and supporting those who attempt such acts. 

UN convention or protocol: Convention for the Suppression of Unlawful 
Seizure of Aircraft, The Hague; Dec. 16, 1970; Purpose: Outlaws the use 
of intimidation to take control of aircraft; hijackers must be 
prosecuted or extradited. 

UN convention or protocol: Convention on Offences and Certain Other 
Acts Committed on Board Aircraft, Tokyo; Sept. 14, 1963; Purpose: 
Applies to acts affecting in-flight safety; authorizes pilot to take 
measures to protect aircraft; requires contracting states to take 
custody of offenders and return aircraft to pilot. 

Source: United Nations.

[End of table]

Table 16: UN Security Council Resolutions Related to Terrorism:

UN Security Council Resolution: 1465; Feb. 13, 2003; Key provisions: 
Condemns the bomb attack in Bogota, Colombia, on February 7, 2003. 
Also, urges all states, in accordance 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. 

UN Security Council Resolution: 1456; Jan. 20, 2003; Key provisions: 
Calls on states to prevent and suppress all active and passive support 
to terrorism and comply with UN 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. 

UN Security Council Resolution: 1455; Jan. 17, 2003; Key provisions: 
Calls on all states to enforce and strengthen measures, where 
appropriate, against their nationals or other 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 

UN Security Council Resolution: 1452; Dec. 20, 2002; Key provisions: 
Decides that the provisions of resolution 1267 and 1390 do not apply to 
funds and other financial assets or economic resources that have been 
determined by the state to be necessary for basic expenses and 
extraordinary expenses. 

UN Security Council Resolution: 1450; Dec. 13, 2002; Key provisions: 
Condemns the terrorist bomb attack at the Paradise Hotel in Kikambala, 
Kenya, and the attempted missile 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. 

UN Security Council Resolution: 1440; Oct. 24, 2002; Key provisions: 
Condemns the act of taking hostages in Moscow, Russia, on October 23, 
2002. Also, urges all states, in 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. 

UN Security Council Resolution: 1438; Oct. 14, 2002; Key provisions: 
Condemns the bomb attacks in Bali, Indonesia, on October 12, 2002. 
Also, urges all states, in accordance with 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. 

UN Security Council Resolution: 1390; Jan. 16, 2002; Key provisions: 
Calls on member states to continue sanctions against the Taliban, Osama 
bin Laden, and al Qaeda. Requires 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. 

UN Security Council Resolution: 1377; Nov. 12, 2001; Key provisions: 
Calls on member states to implement UN Security Council Resolution 1373 
and to assist each other in doing so. Also, invites states to inform 
the Counterterrorism Committee of areas where they require support. 

UN Security Council Resolution: 1373; Sept. 28, 2001; Key provisions: 
Calls on member states to work together to prevent and suppress 
terrorist acts, through cooperation and 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. 

UN Security Council Resolution: 1372; Sept. 28, 2001; Key provisions: 
Recalls UN Security Council Resolution 1044 and notes steps taken by 
the Government of Sudan to comply with UN Security Council Resolutions 
1044 and 1070. Terminates the measures brought against Sudan in UN 
Security Council Resolutions 1054 and 1070. 

UN Security Council Resolution: 1368; Sept. 12, 2001; Key provisions: 
Calls on member states to bring to justice the perpetrators and 
sponsors of the terrorist attacks on September 11, 2001. Also, calls on 
the international community to increase cooperation and implementation 
of anti-terrorist conventions and UN Security Council Resolutions. 

UN Security Council Resolution: 1363; July 30, 2001; Key provisions: 
Establishes a mechanism to monitor the implementation of the measures 
imposed by UN Security Council Resolutions 1267 and 1333. 

UN Security Council Resolution: 1333; Dec. 19, 2000; Key provisions: 
Calls on member states to freeze funds and other financial assets of 
Osama bin Laden and individuals and 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. 

UN Security Council Resolution: 1269; Oct. 19, 1999; Key provisions: 
Calls on member states to implement the international anti-terrorist 
conventions to which they are a party and encourages the speedy 
adoption of the pending conventions. 

UN Security Council Resolution: 1267; Oct. 15, 1999; Key provisions: 
Calls on member states to freeze funds and other financial resources 
owned or controlled directly or indirectly by the Taliban. 

UN Security Council Resolution: 1214; Dec. 8, 1998; Key provisions: 
Demands that the Taliban stop providing sanctuary and training for 
international terrorists and their operations, and that all Afghan 
factions cooperate with efforts to bring indicted terrorists to 
justice. 

UN Security Council Resolution: 1189; Aug. 13, 1998; Key provisions: 
Calls on member states and international institutions to cooperate with 
and provide support to the investigations in Kenya, Tanzania, and the 
United States, to apprehend the perpetrators of the criminal acts and 
bring them to justice. 

UN Security Council Resolution: 1070; Aug. 16, 1996; Key provisions: 
Demands the Government of Sudan comply with UN Security Council 
Resolutions 1044 and 1054 and also decides that member states shall 
deny Sudanese aircraft permission to take off, land, or over fly their 
territories. 

UN Security Council Resolution: 1054; Apr. 26, 1996; Key provisions: 
Demands the Government of Sudan extradite three suspects to Ethiopia 
who are wanted for the assassination 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. 

UN Security Council Resolution: 1044; Jan. 31, 1996; Key provisions: 
Calls upon the Government of Sudan to extradite three suspects wanted 
in the connection with assassination attempt on the President of the 
Arab Republic of Egypt. 

UN Security Council Resolution: 883; Nov. 11, 1993; Key provisions: 
Demands that the Libyan government comply with UN Security Council 
Resolutions 731 and 748 and decides that member states freeze the funds 
and financial resources of the government of Libya and all Libyan 
undertakings. 

UN Security Council Resolution: 748; Mar. 31, 1992; Key provisions: 
Decides that the Libyan government must commit itself to cease all 
forms of terrorist action and all assistance to terrorist groups. Also 
decides that states shall prohibit the provision of weapons to Libya. 

UN Security Council Resolution: 731; Jan. 21, 1992; Key provisions: 
Condemns the destruction of Pan American flight 103 and urges the 
Libyan government to provide a full and effective response to UN member 
states' requests to eliminate international terrorism. 

UN Security Council Resolution: 687; Apr. 3, 1991; Key provisions: 
Recalls the International Convention Against the Taking of Hostages, 
which categorizes all hostage-taking acts as manifestations of 
international terrorism. 

UN Security Council Resolution: 635; June, 14, 1989; Key provisions: 
Condemns all acts of unlawful interference against the security of 
civil aviation. Calls upon all member states 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. 

UN Security Council Resolution: 337; Aug. 15, 1973; Key provisions: 
Condemns the Government of Israel for the forcible diversion and 
seizure of a Lebanese airline from Lebanon's air space. 

UN Security Council Resolution: 286; Sept. 9, 1970; Key provisions: 
Appeals to all parties concerned for the immediate release of all 
passengers and crews held as a result of hijackings. Calls on member 
states to take legal steps to prevent hijackings or other interference 
with international civil air travel. 

Source: United Nations.

[End of table]

Table 17: UN General Assembly Resolutions Related to Terrorism:

UN General Assembly Resolution: 56/1; Sept. 18, 2001; Key provisions: 
Condemns the September 11, 2001, terrorist attacks and expresses 
condolences and solidarity with the people and Government of the United 
States. Calls for urgent international cooperation to bring the 
perpetrators to justice. 

UN General Assembly Resolution: 55/158; Jan. 30, 2001; Key provisions: 
Reiterates General Assembly Resolution 54/110. Welcomes the efforts of 
the Terrorism Branch of the Centre for International Crime Prevention. 
Continues the previous work of the Ad Hoc Committee. 

UN General Assembly Resolution: 54/164; Feb. 24, 2000; Key provisions: 
Recalls General Assembly Resolution 52/133. Commends those governments 
that supplied the Secretary 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. 

UN General Assembly Resolution: 54/110; Feb. 2, 2000; Key provisions: 
Recalls General Assembly Resolution 53/108. Notes the establishment of 
the Terrorism Prevention Branch of 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. 

UN General Assembly Resolution: 54/109; Feb. 25, 2000; Key provisions: 
Adopts the International Convention for the Suppression of the 
Financing of Terrorism and urges all states to sign and ratify, accept, 
approve, or accede to the Convention. 

UN General Assembly Resolution: 53/108; Jan. 26, 1999; Key provisions: 
Recalls General Assembly Resolution 52/165. Reaffirms that actions by 
states to combat terrorism should be 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. 

UN General Assembly Resolution: 52/165; Dec. 15, 1997; Key provisions: 
Reiterates General Assembly Resolution 51/210. Reaffirms the 
Declaration on Measures to Eliminate 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. 

UN General Assembly Resolution: 52/133; Dec. 12, 1997; Key provisions: 
Recalls General Assembly resolution 50/186. Condemns incitement of 
ethnic hatred, violence, and terrorism. Requests the Secretary General 
seek the views of member states on the implications of terrorism in all 
its forms and manifestations. 

UN General Assembly Resolution: 51/210; Dec. 17, 1996; Key provisions: 
Calls upon states to adopt further measures to prevent and combat 
terrorism. Some of these include: 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. 

UN General Assembly Resolution: 50/186; Dec. 22, 1995; Key provisions: 
Recalls General Assembly Resolution 49/185. Requests the Secretary-
General continue to seek the views of 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. 

UN General Assembly Resolution: 50/53; Dec. 11, 1995; Key provisions: 
Reaffirms the Declaration on Measures to Eliminate International 
Terrorism. Urges all states to cooperate in 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. 

UN General Assembly Resolution: 49/185; Dec. 23, 1994; Key provisions: 
Recalls General Assembly Resolution 48/122. Expresses solidarity with 
the victims of terrorism. Requests the UN Secretary General seek views 
of member states on the establishment of a UN voluntary fund for 
victims of terrorism. 

UN General Assembly Resolution: 49/60; Dec. 9, 1994; Key provisions: 
Approves the Declaration on Measures to Eliminate International 
Terrorism, which, among other things, 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. 

UN General Assembly Resolution: 48/122; Dec. 20, 1993; Key provisions: 
Condemns terrorism as an activity aimed at the destruction of human 
rights, fundamental freedoms, and 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. 

UN General Assembly Resolution: 46/51; Dec. 9, 1991; Key provisions: 
Recalls General Assembly Resolution 44/29. Welcomes the recent adoption 
of the Convention on the Marking of Plastic Explosives for the Purpose 
of Detection. 

UN General Assembly Resolution: 44/29; Dec. 4, 1989; Key provisions: 
Recalls General Assembly Resolution 42/159. Expresses concern at the 
growing link between terrorist groups, 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. 

UN General Assembly Resolution: 42/159; Dec. 7, 1987; Key provisions: 
Reaffirms General Assembly Resolution 40/61. Urges all states to (a) 
prevent the preparation and organization 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. 

UN General Assembly Resolution: 40/61; Dec. 9, 1985; Key provisions: 
Recalls General Assembly Resolution 38/130. Unequivocally condemns all 
acts of terrorism. Urges all states 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. 

UN General Assembly Resolution: 39/159; Dec. 17, 1984; Key provisions: 
Condemns policies and practices of terrorism between states as a method 
of dealing with other states and 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. 

UN General Assembly Resolution: 38/130; Dec. 19, 1983; Key provisions: 
Recalls General Assembly Resolution 34/145. Deeply deplores the loss of 
innocent human lives and the 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. 

UN General Assembly Resolution: 36/109; Dec. 10, 1981; Key provisions: 
Re-endorses the recommendations made to the General Assembly by the Ad 
Hoc Committee on International Terrorism and calls upon all states to 
observe and implement these recommendations. 

UN General Assembly Resolution: 34/145; Dec. 17, 1979; Key provisions: 
Unequivocally condemns all acts of international terrorism. Adopts the 
recommendations of the Ad Hoc 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. 

UN General Assembly Resolution: 31/102; Dec. 15, 1976; Key provisions: 
Urges states to continue to seek just and peaceful solutions to the 
problem of international terrorism. Reaffirms 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. 

UN General Assembly Resolution: 30/34; Dec. 18, 1972; Key provisions: 
Urges states to devote their immediate attention to the growing problem 
of international terrorism. Reaffirms 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.

[End of table]

[End of section]

Appendix VII: 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 Attachs at selected U.S. embassies (see Department of 
State):

Department of Homeland Security:

* Bureau of Immigration and Customs Enforcement, Washington, D.C.

* 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 Attach Program, Washington, D.C.

* Bureau of Alcohol, Tobacco, Firearms and Explosives, Washington, D.C.

* International Law Enforcement Academy, Budapest, Hungary:

* Legal Attach 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 President:

* National Security Council, Washington, D.C.

* Office of Homeland Security, Washington, D.C.

* Office of Management and Budget, Washington, D.C.

[End of section]

Appendix VIII Comments from the Department of Defense:

OFFICE OF THE ASSISTANT SECRETARY OF DEFENSE:

WASHINGTON, D.C. 20301-2500:

SPECIAL OPERATIONS/ LOW-INTENSITY CONFLICT:

April 14, 2003:

Mr. Neal P. Curtin:

Director, Defense Capabilities and Management:

U.S. General Accounting Office Washington, DC 20548:

Dear Mr. Curtin,

This is the Department of Defense (DoD) response to the General 
Accounting Office (GAO) Draft Report, GAO-03-165, "COMBATING TERRORISM: 
Interagency Framework and Agency Programs to Combat Terrorism 
Overseas." The Department of Defense notes that the portion of Draft 
Report GAO-03-165 detailing DoD's role in the overall effort in 
combating terrorism overseas is accurate as presented.

The Department of Defense appreciates the opportunity to comment on the 
draft report. While the Department of Defense accepts the findings of 
the draft report, DoD has provided comments and corrections of a 
technical nature directly to your staff in an effort to improve the 
accuracy of the final report.

Sincerely,

Michael A. Westphal:

Deputy Assistant Secretary of Defense for Special Operations and 
Combating Terrorism:

Signed by Michael A. Westphal:

[End of section]

Appendix IX: Comments from the U.S. Agency for International 
Development:

USAID:
U.S. AGENCY FOR INTERNATIONAL DEVELOPMENT:

MAY 2 103:

Mr. Raymond J. Decker Director, Defense Capabilities and Management:

U.S. General Accounting Office 441 G Street, N.W. Washington, DC 20548:

Dear Mr. Decker:

I am pleased to provide the U.S. Agency for International Development's 
(USAID's) formal response on the draft GAO report entitled Combating 
Terrorism: Interagency Framework and Agency Programs to Combat 
Terrorism Overseas (May 2003).

The Agency is in general agreement with the draft report, however 
several technical comments are included in the enclosed appendix.

Thank you for the opportunity to respond to the GAO draft report and 
for the courtesies extended by your staff in the conduct of this 
review.

Sincerely,

John Marshall:

Assistant Administrator Bureau for Management:

Signed by John Marshall:

Enclosure: a/s:

1300 PENNSYLVANIA AVENUE, N.W WASHINGTON, D.C. 20523:

[End of section]

Appendix 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.

[End of section]

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 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 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 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 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 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 Selected Challenges and Related Recommendations. 
GAO-01-822. Washington, D.C.: September 20, 2001.

Combating 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 Observations on Options to Improve the Federal 
Response. GAO-01-660T. Washington, D.C.: April 24, 2001.

Combating 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 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 Linking Threats to Strategies and Resources. 
GAO/T-NSIAD-00-218. Washington, D.C.: July 26, 2000.

Combating 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 Comments on Bill H.R. 4210 to Manage Selected 
Counterterrorist Programs. GAO/T-NSIAD-00-172. Washington, D.C.: 
May 4, 2000.

Combating How Five Foreign Countries Are Organized to Combat 
Terrorism. GAO/NSIAD-00-85. Washington, D.C.: April 7, 2000.

Combating 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 Observations on the Threat of Chemical and 
Biological Terrorism. GAO/T-NSIAD-00-50. Washington, D.C.: 
October 20, 1999.

Combating 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 Analysis of Federal Counterterrorist Exercises. 
GAO/NSIAD-99-157BR. Washington, D.C.: June 25, 1999.

Combating 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 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 FBI's Use of Federal Funds for Counterterrorism-
Related Activities (FYs 1995-1998). GAO/GGD-99-7. Washington, D.C.: 
November 20, 1998.

Combating Observations on Crosscutting Issues. 
GAO/T-NSIAD-98-164. Washington, D.C.: April 23, 1998.

Combating Threat and Risk Assessments Can Help Prioritize 
and Target Program Investments. GAO/NSIAD-98-74. Washington, D.C.: 
April 9, 1998.

Combating Spending on Governmentwide Programs 
Requires Better Management and Coordination. GAO/NSIAD-98-39. 
Washington, D.C.: December 1, 1997.

Combating Efforts to Protect U.S. Forces in Turkey and the 
Middle East. GAO/T-NSIAD-98-44. Washington, D.C.: October 28, 1997.

Combating Federal Agencies' Efforts to Implement 
National Policy and Strategy. GAO/NSIAD-97-254. Washington, D.C.: 
September 26, 1997.

Combating 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 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 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.

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):

FOOTNOTES

[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.

[2] This definition is derived from 22 U.S.C.  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.  0.85 (2002).

[4] DOD Directive 2000.12, DOD Antiterrorism/Force Protection Program, 
Apr. 13, 1999.

[5] See Office of Homeland Security, National Strategy for Homeland 
Security, July 16, 2002, p. 2.

[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.

[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, GAO-02-678 (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.

[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.  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.  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.

[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.

[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.

[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.

[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.

[14] P.L. 105-85  1051, Nov. 18, 1997, as amended by P.L. 105-261  
1403, Oct. 17, 1998.

[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 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.

[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).

[22] See Written Statement for the Record, Director of Central 
Intelligence, Before the Joint Inquiry Committee, Oct. 17, 2002.

[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).

[24] 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).

[25] 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.

[26] U.S. General Accounting Office, Combating 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.

[27] 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 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.

[28] 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).

[29] The White House, Executive Order 13231--Critical Infrastructure 
Protection in the Information Age (Washington, D.C.: Oct. 16, 2001).

[30] 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.

[31] For a more detailed discussion and evaluation of these collective 
strategies, see U.S. General Accounting Office, Combating 
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.

[32] 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.

[33] GAO-03-519T.

[34] 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).

[35] 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).

[36] P.L. 107-56, Oct. 26, 2001.

[37] Terrorist Bombings Convention Implementation Act of 2002 (P.L. 
107-197), Jun. 25, 2002.

[38] P.L. 107-296, Nov. 25, 2002.

[39] See appendix II for the Matrix of Department of Homeland Security 
Programs and Activities to Combat Terrorism Overseas.

[40] 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.

[41] P.L. 107-173, May 14, 2002.

[42] P.L. 107-71, Nov. 19, 2001.

[43] 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 non-homeland 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.

[44] 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).

[45] GAO currently has additional work under way to evaluate the FBI's 
efforts to reorganize.

[46] 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.

[47] The Counterterrorism Security Group was formerly known as the 
Coordinating Sub-Group of the NSC Deputies' Committee.

[48] 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.

[49] Executive Order 12333, United States Intelligence Activities, 
Dec. 4, 1981.

[50] The State Department prepares this annual publication for the 
Congress as required by 22 U.S.C.  2656f (2002).

[51] Section 201, P.L. 107-296, Nov. 25, 2002.

[52] Written Statement for the Record of the Director of Central 
Intelligence before the Joint Inquiry Committee, Oct. 17, 2002.

[53] Title III of the Omnibus Crime Control and Safe Streets Act of 
1968 (P.L. 90-351), Jun. 19, 1968, as amended.

[54] P.L. 95-511, Oct. 25, 1978, as amended.

[55] 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).

[56] 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.

[57] P.L. 107-56. For example, see sections 203, 218, and 504.

[58] 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.

[59] See Executive Order 12333, United States Intelligence Activities, 
Dec. 4, 1981.

[60] 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.

[61] See U.S. General Accounting Office, Combating 
Department of State Programs to Combat Terrorism Abroad, GAO-02-1021 
(Washington, D.C.: Sept. 6, 2002).

[62] 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.

[63] For a more detailed discussion and our evaluation of DOD force 
protection efforts, see U.S. General Accounting Office, Combating 
Actions Taken but Considerable Risks Remain for Forces 
Overseas, GAO/NSIAD-00-181 (Washington, D.C.: July 19, 2000); Combating 
Actions Needed to Improve DOD Antiterrorism Program 
Implementation and Management, GAO-01-909 (Washington, D.C.: Sept. 19, 
2001); and Combating Actions Needed to Guide Services' 
Antiterrorism Efforts at Installations, GAO-03-14 (Washington, D.C.: 
Nov. 1, 2002).

[64] DOD Instruction 2000.16, DOD Antiterrorism Standards, June 14, 
2001.

[65] DOD Handbook O-2000.12-H, Protection of DOD Personnel and 
Activities Against Acts of Terrorism and Political Turbulence, Feb. 19, 
1993.

[66] See GAO-03-14.

[67] The U.S. Secret Service is authorized under 18 U.S.C.  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.

[68] 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.

[69] Title III, P.L. 103-236, Apr. 30, 1994. 

[70] Marrying the Mission to the Market: Strategic Plan 2002-2007, 
Broadcasting Board of Governors.

[71] The actual number of different travelers into the United States is 
unknown because some people enter the country many times a year.

[72] 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.

[73] See GAO-03-132NI.

[74] 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.

[75] 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.

[76] 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.

[77] GAO-03-38.

[78] 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.

[79] Enhanced Border Security and Visa Entry Reform Act of 2002 (P.L. 
107-173), May 14, 2002.

[80] 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).

[81] 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.

[82] 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.

[83] 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.

[84] 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.

[85] ICITAP's Newly Independent States Regional Assistance Program 
includes Belarus, Georgia, Moldova, Kazakhstan, Kyrgyzstan, 
Turkmenistan, Ukraine, and Uzbekistan.

[86] 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.

[87] 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.

[88] 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.

[89] 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.

[90] 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.  2751 et seq.), Jun. 30, 1976.

[91] National Defense Authorization Act for Fiscal Years 1992 and 1993 
(P.L. 102-190), Dec. 5, 1991.

[92] 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.

[93] 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.

[94] 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.

[95] The current 10 rotating members of the UN Security Council are 
Angola, Bulgaria, Cameroon, Chile, Germany, Guinea, Mexico, Pakistan, 
Spain, and Syria.

[96] 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.

[97] G-8 members include Canada, France, Germany, Italy, Japan, Russia, 
the United Kingdom, and the United States.

[98] P.L. 98-473, Oct. 12, 1984.

[99] P.L. 99-399, Aug. 27, 1986.

[100] P.L. 104-132, Apr. 24, 1996, as amended.

[101] P.L. 98-533, Oct. 19, 1984.

[102] 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.

[103] P.L. 104-132, Apr. 24, 1996, as amended.

[104] 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).

[105] Executive Order 13224 "Blocking Property and Prohibiting 
Transactions with Persons Who Commit, Threaten to Commit, or Support 
Terrorism," Sept. 23, 2001.

[106] 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.

[107] 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.

[108] 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.

[109] 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.

[110] 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.

[111] 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.

[112] Executive Order 12333, Dec. 4, 1981 and P.L. 102-88, Aug. 14, 
1991.

[113] P.L. 104-132  324, Apr. 24, 1996.

[114] 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.

[115] For a more detailed description and evaluation of these 
exercises, see GAO/NSIAD-99-135 and U.S. General Accounting Office, 
Combating 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.

[116] 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.

[117] For more details on these teams, see U.S. General Accounting 
Office, Combating 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.

[118] Required by the 1986 Omnibus Diplomatic and Anti-Terrorism Act 
(P.L. 99-399), Aug. 27, 1986.

[119] 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.

[120] 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.

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