# 2006 Sanaa prison escape

On 3 February 2006, a group of 23 convicts escaped from a prison administered by the Political Security Organization (PSO) in Sanaa, Yemen. The prisoners had spent two months digging a 44-meter long tunnel from their cell, which they had all shared, using makeshift tools such as spoons and cooking pots. They escaped through the tunnel into the women's bathroom of a nearby mosque, where they recited prayers and left through the front doors. Among the escapees included several militants affiliated with al-Qaeda and its local organization in Yemen, most prominently Jamal al-Badawi, a mastermind of the USS Cole bombing, Fawaz al-Rabeiee, the leader of a militant cell responsible for the MV Limburg bombing, and Jaber Elbanah, a US citizen associated with the Lackawanna Six.
The escape was a major embarrassment for the Yemeni government and strained its relations with the United States. Several commentators and officials suspected that members of the PSO may have facilitated the escape. An investigation launched by the Yemeni Interior Ministry concluded that the prison guards did not take sufficient precautions to prevent the escape, with 12 officers being tried and found guilty of gross negligence. Yemeni authorities and security forces launched an intense manhunt for the 23 fugitives, with all but six of them remaining free by late 2007. Retrospectively, the escape has been seen by commentators and analysts as the catalyst for the revival of al-Qaeda's presence in Yemen. Two of the escapees, Nasir al-Wuhayshi and Qasim al-Raymi, would go on to serve as leaders of al-Qaeda in Yemen and its successor organization, al-Qaeda in the Arabian Peninsula.

## Context

Al-Qaeda in Yemen was perceived as mostly defeated by the end of 2003. The killing of leader Abu Ali al-Harithi in 2002 along with the arrest of his replacement Muhammad al-Ahdal the following year crippled the groups operational capacity. As written by The Washington Institute, "with the leadership dead or in jail, its infrastructure largely destroyed, and its militants more attracted to the insurgency in Iraq than jihad at home, al-Qaeda in Yemen appeared largely defeated." With al-Qaeda contained, the Yemeni government shifted its focus elsewhere, primarily the Houthi war in Sadaa Governorate which began in June 2004. President Ali Abdullah Saleh viewed the Houthi movement as a legitimate threat to his power rather than al-Qaeda, which was primarily seen as a Western issue which indirectly affected the country. Simultaneously, the United States had also deprioritized al-Qaeda as its main foreign policy approach with Yemen. Counterterrorism-focused ambassador Edmund Hull left the country in the summer of 2004, just as the US began pressuring Saleh to address election reform and corruption within the country. In November 2005, the American government announced that they would cut $20 million in USAID funding for Yemen. The World Bank also stated that they would their aid to the country from $420 million a year to $280 million.

## Escape

All 23 individuals shared the same cell in an underground prison beneath the headquarters of the PSO. The militants may have came up with the idea for the prison break through a prisoner from Iraq who described to them the foiled tunnel escape in Camp Bucca the previous year. It may have also come from a colluding visitor who had "looked it up on the Internet or any other media outlets." Initial estimates reported that the tunnel may have taken approximately two months to have completed. Several improvised tools were used to dig the tunnel, such as shovels made from fan parts and spoons attached to broomsticks and three pots tied together to form a u-shaped scoop. Authorities found four soccer balls with plastic tubing attached to them, creating a device which allowed the prisoners to breathe while they were digging below surface. Dirt from the tunnel was removed with two buckets and hid in various parts of their cells, such as under plies of clothing and in the cell bathroom, which was "filled with dirt to the ceiling."
The prisoners played with a soccer ball and recited loud chants as they were digging in order to mask the sound of their work. In one instance, the prisoners attacked a PSO officer and soldier who attempted to enter their ward in order to quell the chants. The tunnel itself was 60 by 80 centimeters wide, 44 meters-long, nearly a third being within prison grounds, and went down 3 meters below the surface. The southern wall of the PSO prison, the direction which the tunnel was dug, is 40 meters away from the cell of the prisoners. A 12 meter dead-end street then separates the wall with the al-Awkaf Mosque. Several guards outside the prison reported sounds of digging at different places and times, though their reports were not further investigated.
On 3 February, at around 4:30 a.m. AST (UTC+3), the prisoners crawled through the tunnel to the women's bathroom of the mosque, the least frequented part of the building due to most Muslim women praying at home. They proceeded to recite morning prayers in the mosque and then left among the attendants. The hole in the bathroom was eventually discovered by a janitor at the mosque, who reported it to the imam who later informed authorities, who discovered the escape the next day.

## Escapees

The Yemeni Ministry of Interior distributed a list containing the identities for 22 of the 23 escaped convicts on 3 February. The Jamestown Foundation identifies the 23 fugitives as:
* Jamal al-Badawi, a central facilitator of the USS Cole bombing who was sentenced to death on 29 September 2004 for orchestrating it. He had previously escaped from an Aden prison on 10 April 2003 alongside nine other suspects involved in the bombing, though he was recaptured by 19 March 2004.
* Fawaz al-Rabeiee, the ringleader of a 15-man al-Qaeda cell responsible for several attacks and plots, including the attempted shootdown of a Hunt Oil helicopter and the MV Limburg bombing. He was sentenced to death by a court in February 2005.
* Umar Saeed Jarallah, Muhammed al-Umda and Fawzi al-Wajayhi, members of Rabeiee's cell sentenced to prison in August 2004 for plotting the MV Limburg bombing. Jarallah's sentence was raised to 15 years in an appeal in February 2005, while the sentences of Umda and Wajayhi were upheld at 10 years.
* Ibrahim al-Huwaydi, Aref Saleh Mujali, Muhammad al-Daylami and Qasim al-Raymi, tried as part of Rabeiee's cell and found guilty in August 2004 of plotting to bomb several diplomatic embassies in Sanaa and to assassinate then US ambassador Edmund Hull. Their sentences of 5 years in prison were uplhed in February 2005.
* Hizam Saleh Mujali, sentenced to death as part of Rabeiee's cell for killing a police officer.
* Ibrahim Mohammed al-Muqri, Abdullah Yahya al-Wadai, Mansur Nasser al-Bayhani and Shafiq Ahmad Zayd, charged as part of an 11-man cell accused of forging passports, possession of weapons and explosives, planning to travel to Iraq and forming an armed gang to carry out attacks in Yemen. The former three were convicted only of forging passports in March 2005, while Muqri was cleared of all charges. Despite this, the four men all remained imprisoned together until their escape.
* Khaled Mohammed al-Batati and Abdulrahman Basurah, part of an 8-man militant cell in Yemen called "Kataib al-Tawhid", led by Iraqi militant Anwar al-Jilani. In August 2005, the group was found guilty of planning attacks on British and Italian embassies and the French cultural center in Sanaa, Batati being sentenced to three years and two months in prison and Basurah being sentenced to three years and four months.
* Abdullah Ahmad al-Raymi, arrested in Qatar after fighting in Afghanistan before he was extradited to Yemen in 2005 and sentenced to four years in prison for forging documents.
* Jaber Elbanah, a US citizen and affiliate of the al-Qaeda-trained Lackawanna Six group, was arrested by Yemeni authorities in late 2003 in connection to the investigation of Fawaz al-Rabeiee.
* Nasir al-Wuhayshi, a veteran al-Qaeda member who was arrested in Iran after fleeing Afghanistan in the aftermath of the Battle of Tora Bora. He was extradited to Yemen by Iran in November 2003, where he was held without being officially charged for any crime before his escape.
* Hamza al-Quaiti, Zakariya Hasan al-Bayhani and Zakariya Ubadi Qasim al-Yafai, extradited from Saudi Arabia in 2003 without any charges.
* Yasser Nasser al-Hamayqani, charged with travelling to Iraq.

## Investigation

Senior Interior Ministry officials held an emergency meeting shortly after the escape. A ministry spokesperson announced on 4 February that an investigation headed by the Interior Minister was underway in order to determine if the fugitives received internal or external assistance. They also stated that the prison officials were reshuffled by Yemeni authorities and the prison chief and his deputy were both dismissed. The investigation was being headed by the National Security Bureau, the PSO's rival intelligence organization. PSO officers and soldiers were being investigated on the grounds that the prisoners could not have determined the direction and angle at which the tunnel was dug to the mosque without support from highly-qualified people. A report on the investigation ran by a pro-government newspaper said that the prison guards did not did not take sufficient measures to prevent the escape. Outside co-conspirator's were also found to have “helped in moving and hiding the escapees,” according to an official. Five majors and two prison guards were detained and interrogated on 10 February in suspicion that they gave tools and information to the prisoners to help them escape.
More than 80 people were detained for the investigation, including prison officers, relatives of the fugitives and members of Islamist groups. On 15 February, a Yemeni official stated that 135 people had been arrested and were being interrogated in connection to the escape. Authorities received "important information" from the detainees, who were arrested in police searches of suspected places and houses of relatives of the fugitives. A US request to interrogate the detainees was rejected by Yemeni authorities on the grounds that it violated the nation's sovereignty.
On 21 February, an investigative committee published its official report on the escape, charging several prison officials with gross negligence which allowed the jailbreak to happen. On 27 April, officials confirmed that the suspects would be put on trial after the investigation was complete. They also stated that the individuals would be tried in a military court. On 25 May, attorney general Abdullah al-Olufi reported that a military court had put on trial 12 PSO officers accused of negligence leading to the escape. Four officers were convicted of facilitating the escape, while the rest were found guilty of negligence. On 12 July, the court gave sentences to the 12 men ranging from from 8 months to 3 years in prison. The officers were all dismissed from their positions, but kept their retirement payment and remuneration.

## Reactions

The escape was a major embarrassment for the Yemeni government and called into question its counterterrorism campaign against al-Qaeda. It lead to a significant strain on relations between Yemen and the United States, and was a setback in their partnership against terrorism. The US was particularly angered with the fact that Jamal al-Badawi, a facilitator of the USS Cole bombing, was among the escapees, and had previously escaped from prison before. State Department spokesperson Sean McCormack emphasized to the Yemeni government the importance of capturing the fugitives and offered assistance if requested. Speaking at a press conference on 9 February, Homeland Security Advisor Frances Townsend said:
   I find the developments in Yemen not only deeply disappointing, but of enormous concern to us, especially given the capabilities and the expertise of the people who were there. We are disappointed that they were all housed together. We are disappointed that their restrictions in prison weren't more stringent. We have spoken with our colleagues in Yemen through our ambassador and expressed this to them and asked them for the strongest and most transparent cooperation so that we can help them.
Several former US officials suspected that the escape was facilitated in some way by elements within the Yemeni government. An anonymous US official described a cable from the US embassy in Sanaa which noted "the lack of obvious security measures on the streets" and concluded that "One thing is certain: PSO insiders must have been involved." A European counterterrorism official called the escape "impossible ... without any involvement of prisons guards, prison administration, etc."

## Aftermath

The escapees mostly dispersed throughout the tribal areas of southern and eastern Yemen. Security personnel set up checkpoints around Sanaa in an attempt to capture the fugitives before they could flee to mountainous areas where they could receive tribal protection. The Yemeni government launched searches in Abyan Governorate, as well as in Sanaa and several other areas in the country perceived as strongholds of Islamic extremist groups.
On 5 February, Interpol issued an alert for the 23 escapees, calling them a "clear and present danger to all countries" and urging the Yemeni government to provide the names, photos and fingerprints of the individuals. The organization later stated that they had not issued their highest level notice as it was still waiting for Yemen to provide fingerprints and arrest warrants for the fugitives.
The US Navy issued a statement on 9 February saying that their ships, as part of the Dutch-led multinational Combined Task Force 150, were "monitoring international waters along the coast of Yemen in an attempt to either block possible maritime escape routes or capture the suspected terrorists if they make this attempt."
On 14 February, the Yemeni Interior Ministry announced a YER 5 million reward ($25,600) for information leading to the capture of any of the prisoners, and an anonymous phone line for those who want to provide tip-offs. Yemeni television also aired the mugshots of the 23 escapees. Authorities distributed photos and information on the suspects to all cities, villages and districts in all Yemeni governorates. On 23 February, the FBI added Jamal al-Badawi and Jaber Elbanah to its Most Wanted Terrorists list, while Abdullah Ahmed al-Raymi was added to the Seeking Information – Terrorism list.
After the escape, a split eventually materialized between the older and younger generations of the escapees. The older generation managed to cut deals with the Yemeni government allowing them freedom if they agreed not to conduct any attacks within Yemen. This was the case with the capture of Jamal al-Badawi in October 2007. Badawi pledged loyalty to the Yemeni President and agreed to help track down five other escaped militants in return for being freed from captivity. The younger generation on the other hand rejected negotiations with the Yemeni government and continued fighting against it and evading captivity. By late 2007, six of the 23 fugitives were dead (one being killed in Somalia after turning himself in and being released), 11 were in the custody of authorities and six were free, including Badawi. By 2010, only four escapees, Muhammad al-Umda, Nasir al-Wuhayshi, Jamal al-Badawi and Qasim al-Raymi, were still free. They would eventually be killed by US drone strikes in 2012, 2015, 2019 and 2020 respectively.

### Timeline

| Name | Capture or death | Date |
| Zakariya Ubadi Qasim al-Yafai | Captured by authorities in a raid in Sanaa | 17 April 2006 |
| Khaled Mohammed al-Batati | Turned himself in to authorities | 21 or 22 April 2006 |
| Fawzi Mohammed al-Wajayhi | Turned himself in to authorities | Before 27 April 2006 |
| Ibrahim Mohammed al-Muqri | Surrendered to authorities | Before 27 April 2006 |
| Abdullah Ahmad al-Raymi | Captured by authorities in Marib Governorate | 12 May 2006 |
| Aref Saleh Mujali | Surrendered to authorities after tribal mediation | 29 August 2006 |
| Hizam Saleh Mujali | Surrendered to authorities alongside Aref Saleh Mujali after tribal mediation | 29 August 2006 |
| Shafiq Ahmad Zayd | Killed himself as part of an al-Qaeda suicide attack | 15 September 2006 |
| Umar Saeed Jarallah | Killed himself as part of an al-Qaeda suicide attack | 15 September 2006 |
| Fawaz al-Rabeiee | Killed by security forces in a raid in Sanaa | 1 October 2006 |
| Muhammad al-Daylami | Killed alongside Fawaz al-Rabeiee | 1 October 2006 |
| Mansur Nasser al-Bayhani | Turned himself in to authorities | Late 2006 |
| Zakariya Hasan al-Bayhani | Turned himself in to authorities alongside Mansur Nasser al-Bayhani | Late 2006 |
| Yasser Nasser al-Hamayqani | Killed in shootout with police in Abyan Governorate | 15 January 2007 |
| Abdulrahman Basurah | Turned himself in to authorities | May 2007 |
| Jaber Elbaneh | Surrendered to authorities | 14 May 2007 |
| Jamal al-Badawi | Surrendered to authorities | 17 October 2007 |
| Abdullah Yahya al-Wadai | Surrendered to authorities some time before 24 October 2007 | Before 24 October 2007 |
| Ibrahim al-Huwaydi | Surrendered to authorities after tribal mediation | 23 February 2008 |
| Hamza al-Quaiti | Killed in a raid by security forces in Tarim, Hadhramaut Governorate | 11 August 2008 |
| Muhammed al-Umda | Killed by a US drone strike in Marib Governorate | 22 April 2012 |
| Nasir al-Wuhayshi | Killed by a US drone strike in Hadhramaut Governorate | 12 June 2015 |
| Qasim al-Raymi | Killed by a US drone strike in al-Bayda Governorate | 29 January 2020 |

## Impact

The escape is widely seen as a turning point in al-Qaeda's insurgency in Yemen, and the origin of its contemporary organization in the country, al-Qaeda in the Arabian Peninsula. Among the 23 escapees, the US concentrated heavily on the capture of Jamal al-Badawi and Jaber Elbanah as they were on the FBI’s most wanted list. However, the two who would make the largest impact would be Nasir al-Wuhayshi and Qasim al-Raymi. Wuhayshi, who studied Islam and was a close ally of Osama bin Laden in Afghanistan, became a spiritual leader for the fugitives while they were imprisoned, while Raymi lead prayers for the group, gave religious sermons on Fridays, and negotiated with the prison's administration. Wuhayshi, Raymi and the militants who followed them have been referred to as the "second generation" of al-Qaeda in Yemen.
In the aftermath of the escape, Wuhayshi became the leader of al-Qaeda in Yemen, being declared so in an announcement in the summer of 2007. Along with Raymi, who was appointed as military commander, the two reorganized and rebuild the group throughout 2007 and 2008. Al-Qaeda in Yemen launched increasingly deadlier attacks in the aftermath of the escape, such as pair of suicide attacks on two oil facilities in September 2006, a car bombing in Marib in 2007 and an attack on the US embassy in Sanaa in 2008. Wuhayshi and Raymi would be among the founding members of al-Qaeda in the Arabian Peninsula in January 2009. Under Wuhayshi's leadership from 2009 to 2015, the group would come to be known as al-Qaeda's strongest affiliate, Wuhayshi himself being identified as the second highest-ranking leader of al-Qaeda entirely. After his death from a US drone strike, Raymi succeeded him as leader from 2015 until his own death from a drone strike in 2020.