Bureau of Alcohol, Tobacco, Firearms and Explosives

Strategic Plan

Fiscal Years 2004 – 2009

Table of Contents

Special Message From The Director ...............................................................2

Vision, Mission, and Values Statement ...........................................................3

Strategic Planning Process ..............................................................................3

Strategic Goal 1: Prevent Violent Crime Involving Firearms ........................4

Strategic Goal 2: Resolve and Prevent Explosives and 

Fire Related Crimes ........................................................................................6

Strategic Goal 3: Prevent Illegal Domestic and International

Trafficking of Alcohol and Tobacco Products ................................................8

Appendices:

A. Crosscutting Activities ............................................................................10

B. Program Evaluations ...............................................................................11

C. Data Capacity ..........................................................................................12

D. Management Challenges .........................................................................12

E. Consultations with Stakeholders and Environmental Assessment ..........13

F. Environmental Factors that May Affect Goal Achievement ....................14

G. Performance Measures ............................................................................16
The Bureau of Alcohol, Tobacco, Firearms and Explosives shares 

in the mission, common to all of our Nation’s law enforcement 

agencies, of protecting the public. We contribute to this goal by 

working to reduce violent crime and prevent terrorism. As part of 

the Justice Department, ATF is positioned to be even more effective, 

safeguarding the American public by enforcing Federal laws on 

firearms, explosives, and arson.

ATF makes a vital contribution to law enforcement’s efforts to reduce 

violent firearms crime, enforcing Federal laws and contributing to 

American efforts against terrorism. We identify, investigate and 

recommend the prosecution of a wide range of firearms offenders, 

and ensure that firearms stay out of the hands of those who cannot 

possess them legally. Through Project Safe Neighborhoods, ATF collaborates with Federal, State 

and local law enforcement, prosecutors, and community leaders nationwide to fight violent crime 

and safeguard America’s neighborhoods from armed criminals. 

ATF’s expertise and resources in the area of explosives and arson are vital to the interagency effort 

to protect Americans from terrorism. Our investigative and inspection programs work to detect and 

deter terrorists’ use of firearms and explosives. Americans are also made safer by ATF’s efforts to 

prevent illegal trafficking in alcohol and tobacco. Our enforcement activities in the area of alcohol 

and tobacco diversion eliminate one source of funding for terrorist organizations and organized 

criminals. ATF is providing robust support for interagency counterterrorism efforts, and we are 

eager to work with other agencies against this common enemy. 

We are a strong, professional agency that embraces the future, and I am proud of the employees 

who so diligently work toward accomplishing our goals. ATF will continue its tradition of working 

with other agencies toward our common goal: protecting the American people from threats to their 

freedom and safety.

Carl J. Truscott

SPECIAL MESSAGE FROM THE DIRECTOR

2 Bureau of Alcohol, Tobacco, Firearms and Explosives
ATF VISION

Working For A Safer and More Secure America...

Through Innovation and Partnerships

The Bureau of Alcohol, Tobacco, Firearms and 

Explosives must protect the public against crime, 

violence, and other threats to public safety. Our 

vision will help us chart the course to improve 

the way we serve and protect the public, provide 

leadership and expertise, and achieve new levels of 

effectiveness and teamwork.

ATF MISSION

The mission of ATF is to conduct criminal 

investigations, regulate the firearms and explosives 

industries, and assist other law enforcement 

agencies. This work is undertaken to prevent 

terrorism, reduce violent crime and to protect the 

public in a manner that is faithful to the Constitution 

and the laws of the United States.

ATF VALUES

We value each other and those we serve. We will:

Uphold the highest standards of excellence and 

integrity;

Provide high quality service and promote strong 

external partnerships;

Develop a diverse, innovative, and well-trained work 

force to achieve our goals; and

Embrace learning and change in order to meet the 

challenges of the future.

ATF’s Strategic Planning Process

The ATF Strategic Planning Process relies on teamwork and effective communication to focus scarce resources on the 

global challenges facing America today. The FY 2004-2009 ATF Strategic Plan to address these challenges is based on 

long-term legislative mission mandates, customer and stakeholder input, and Presidential and Departmental priorities. 

The strategic plan and goals are developed by the ATF Strategic Leadership Team to establish the framework on which 

we develop and implement annual operating plans. The plan consists of three strategic goals representing Firearms, 

Explosives and Arson, and Alcohol and Tobacco. The format of this strategic plan is as follows:

Strategic Goals – High level statements of what outcome is needed

Objectives – Statements of what will be accomplished

Tactics – Actions that will be taken to attain an objective

Strategic Plan: 2004-2009 3
1. FIREARMS

STRATEGIC GOAL

Prevent violent crime involving firearms.

The reduction of gun violence is the Nation’s top domestic law enforcement priority, and today 

the men and women of ATF are on the frontlines in our nation’s war against terror. ATF will 

work to counter violent firearms crime through an integrated approach of effective enforcement 

of the Federal firearms laws, and prevention and education efforts. We will use our unique tools, 

jurisdiction, and skills to assist Federal, State, local, and foreign law enforcement in attaining our 

mutual goal of preventing violence, including potential acts of terrorism. 

Objective1.1.Enforce Federal firearms laws in order 

to remove violent offenders from our communities, 

and keep firearms out of the hands of those who are 

prohibited by law from possessing them.

Tactics:

1.1.1. Partner with law enforcement agencies and 

 prosecutors at all levels to develop focused 

 strategies that lead to the investigation, arrest, 

 and prosecution of violent offenders, persons 

 prohibited from possessing firearms, domestic 

 and international firearms traffickers, violent 

 gangs, and others who attempt to illegally 

 acquire or misuse firearms.

1.1.2. Assist the law enforcement community in 

 identifying firearms trafficking trends and 

 resolving violent crimes by providing 

 automated firearms ballistics technology, 

 tracing crime guns, and developing advanced 

 firearms investigative techniques.

1.1.3. Use ATF firearms programs and expertise to 

 help carry out the national strategy for 

 preventing terrorism. Serve on the National 

 Security Coordinating Council, and assist Joint 

 Terrorism Task Forces by providing leads from 

 any ATF investigation that may tie to terrorism. 

4 Bureau of Alcohol, Tobacco, Firearms and Explosives
Objective 1.2.Increase the rate of compliance with 

firearms laws and regulations in order to prevent the 

transfer of firearms to those prohibited from having 

them.

Tactics:

1.2.1. Ensure that only applicants who meet the 

 eligibility requirements of the law enter the 

 regulated firearms industry by employing 

 appropriate screening procedures prior to 

 licensing.

1.2.2. Inspect firearms dealers to identify any 

 illegal purchases or diversion of firearms to 

 criminals, and to ensure the accuracy of 

 records used in tracing firearms. Ensure that 

 firearms industry members comply with the 

 Gun Control Act, the National Firearms Act, 

 and the Arms Export Control Act. 

1.2.3. Keep restricted firearms, such as machine- 

 guns and assault rifles, out of the hands of 

 prohibited persons by performing criminal 

 records checks on applicants. Maintain the 

 accuracy and integrity of the National 

 Firearms Registration and Transfer Record, 

 so that the location and ownership of 

 restricted firearms are kept current.

1.2.4. Ensure that only firearms that are legally 

 importable under ATF and State Department 

 rules are imported into the United States; 

 and properly marked and recorded by the 

 importer for sale in the domestic marketplace.

Objective 1.3.Prevent firearms violence through 

community outreach.

Tactics:

1.3.1. Collaborate with schools, law enforcement 

 agencies, community organizations, and 

 the firearms industry to implement 

 educational programs which help reduce 

 firearms violence. 

1.3.2. Inform the public and firearms industry about 

 ATF policies, regulations and product safety and 

 security, so that they can better comply with the 

 law. Take advantage of diverse communication 

 methods using the Internet, trade and community 

 publications, seminars, and industry 

 meetings.

Strategic Plan: 2004-2009 5
2. EXPLOSIVES AND ARSON

STRATEGIC GOAL

Resolve and prevent explosives and fire related crimes.

ATF is responsible for administering and enforcing the regulatory and criminal provisions of 

the Federal laws pertaining to destructive devices (bombs) and explosives. ATF is committed to 

establishing and enhancing programs designed to promote public safety and to prevent the use of 

explosives as terrorist tools. ATF continues to expand the investigative capabilities of our special 

agents, inspectors, and other technical experts, as well as other Federal, State and local personnel. 

ATF works with public safety officials, explosives industry members, and State governments to make 

regulation less burdensome. We also provide training, information, research, and technical expertise 

to prevent violent crime and protect the public from potential terrorist acts. Our technical knowledge 

of explosives and expertise in crime scene investigation enables us to promote law enforcement 

readiness and innovation among State and local authorities, particularly where the magnitude of an 

incident is beyond their investigative jurisdiction or resources.

Objective 2.1.Enforce the Federal explosives laws 

in order to protect the public from criminal acts and 

unsafe storage of explosives.

Tactics:

2.1.1. Respond to and investigate bombings, 

 explosions, and other incidents involving 

 explosives or fire to determine whether an 

 incident is a criminal act.

2.1.2. Investigate stolen and missing explosives so 

 that acts of violence may be prevented.

2.1.3. Identify terrorism-related investigative 

 information and intelligence, and actively 

 share this information with the intelligence 

 community and other Government agencies. 

 Implement the Safe Explosives Act, and 

 support Presidential Directives aimed at 

 preventing the acquisition of explosives by 

 terrorists and other criminals.

2.1.4. Assist and train Federal, State and local 

 law enforcement to improve their 

 investigative capabilities in solving crimes 

 involving fire and explosives. Provide the 

 assistance of ATF agents with specialized 

 training in advanced fire scene determination 

 and post-blast analysis, who can share their 

 knowledge with scene processing, explosives 

 destruction, and courtroom techniques.

2.1.5. Increase and standardize the reporting of 

 explosives, bombing, and fire incident 

 information from law enforcement and 

 firefighting authorities to the Arson and 

 Explosives National Repository database, to 

 facilitate case analysis and comparison in 

 order to provide investigative leads and 

 intelligence.

6 Bureau of Alcohol, Tobacco, Firearms and Explosives
Objective 2.2.Increase compliance with explosives 

laws and regulations so that these commodities are 

not used in violent crime.

Tactics:

2.2.1. Use appropriate screening so that legitimate 

 applicants enter the explosives industry, and that 

 prohibited persons such as felons and potential 

 terrorists are denied access to explosives.

2.2.2. Inspect explosives storage facilities to ensure safe 

 and secure storage.

2.2.3. Work in cooperation with those who hold Federal 

 explosives licenses and permits to ensure proper 

 record keeping and business practices that help 

 prevent thefts and the acquisition of explosives by 

 felons and other criminals.

2.2.4. Assist in the enforcement of Federal and State 

 regulations governing explosives, and

 identification of offenders, by exchanging 

 information with State fire marshals and other 

 enforcement agencies. Work with other agencies 

 that have complementary functions in regulating 

 explosive materials or fireworks, or ensuring safe 

 transportation of hazardous materials. 

2.2.5. Publicize information on ATF policies and 

 regulations, and product safety and security, via

 the Internet, trade publications, seminars, and 

 industry meetings in order to promote compliance 

 with explosives laws and regulations.

Objective 2.3.Foster innovation and cooperation in 

the fire and explosives investigation community.

Tactics:

2.3.1. Conduct applied fire and explosives research to

 expand the knowledge of investigators in 

 reconstructing fire and explosives incidents 

 encountered in the field.

2.3.2. Participate in professional organizations

 that endeavor to increase and exchange the 

 body of professional knowledge in fire and 

 explosive investigation research.

Strategic Plan: 2004-2009 7
3. ALCOHOL AND TOBACCO 

STRATEGIC GOAL

Prevent illegal domestic and international trafficking of alcohol and 

tobacco products.

Organized criminal groups, including those with ties to terrorist organizations, have increasingly 

been engaged in illegal trafficking in alcohol and tobacco products, particularly counterfeit and 

lawfully manufactured cigarettes. The proliferation of large-volume trafficking across international 

borders and in interstate commerce, without payment of tax, provides funding and material support 

to terrorist organizations and more traditional criminal enterprises. State, local, and foreign 

economies are harmed because needed revenue is lost. To correct these problems, ATF will conduct 

focused criminal and financial investigations; collaborate with Federal, State, local, and international 

law enforcement entities; and effectively make use of intelligence resources. ATF will also work 

to divest these criminal groups of assets by using the seizure and forfeiture provisions of Federal 

statutes. Other Federal, State, local, and foreign law enforcement entities will be able to increase 

their proficiency in investigating these criminal activities after receiving assistance and training 

from ATF.

Objective 3.1.Enforce laws that prohibit the 

diversion of alcohol and tobacco products from 

legitimate commerce.

Tactics: 

3.1.1. Investigate and lead to successful prosecution 

 those who engage in illegal trafficking of 

 alcohol and tobacco products.

3.1.2. Deny traffickers profits through seizure and 

 forfeiture of assets resulting from criminal 

 activity.

8 Bureau of Alcohol, Tobacco, Firearms and Explosives
Objective 3.2.Provide Federal, State, local and 

foreign agencies with the tools needed to identify 

trafficking schemes.

Tactics:

3.2.1. Partner with other law enforcement agencies to 

 collect, analyze, and disseminate intelligence 

 involving alcohol and tobacco trafficking 

 schemes and ties to terrorist organizations and 

 activities.

3.2.2. Train law enforcement agencies and other 

 partners to identify and investigate alcohol and 

 tobacco trafficking activities.

Strategic Plan: 2004-2009 9
APPENDICES

Appendix A

Crosscutting Activities

ATF shares in the Justice community overarching mission of preventing terrorism, reducing violent crime 

and protecting the public. Through statutory mandates, ATF continues to play a role in the prevention and 

investigation of violent crimes including those involving explosives and fire. ATF participates in multi-agency 

efforts such as the Joint Terrorism Task Forces and the National Security Coordinating Council. ATF also

provides direct investigative expertise to State and local public safety agencies. The ATF National Tracing 

Center and Arson and Explosives Incident System provide valuable investigative information and intelligence 

to share with ATF’s Federal, State, local, and international law enforcement partners.

ATF’s Integrated Violence Reduction Strategy provides training and investigative support in collaborative 

efforts with Federal, State and local entities to prevent violent firearms crime and investigate arson 

and explosives crime. Examples of these efforts, within the Department of Justice, are Project Safe 

Neighborhoods and the National Instant Criminal Background Check System administered by the Federal 

Bureau of Investigation.

A key element of ATF’s role in firearms violence prevention is providing Federal, State and local agencies 

access to investigative equipment and services in their communities, e.g., the National Integrated Ballistic 

Information Network and firearms tracing. ATF continually works to improve its tracing response time, and 

to provide investigative leads from crime gun trace data for police departments across the country.

10 Bureau of Alcohol, Tobacco, Firearms and Explosives
Appendix B

Program Evaluations

Program evaluations performed by internal and external entities are being used to validate performance 

measures and determine effectiveness of programs, and to determine whether operating policies are followed. 

During fiscal year 2003, ATF underwent 33 external audits by the Treasury and Justice Offices of Inspector 

General (OIG) and by the General Accounting Office (GAO). 

 

In addition to these audits, ATF commissions various objective program evaluations and customer surveys 

to gauge program impact and customer satisfaction with the services ATF provides to industry and law 

enforcement. The Office of Management and Budget conducts annual Program Assessment Rating Tool 

(PART) reviews of ATF’s mission programs to gauge their effectiveness. We expect this program oversight 

and evaluation to continue at the same level through fiscal year 2009.

ATF’s Office of Inspection conducts division-level office inspections on a three-year cycle. The inspections 

cover areas such as personnel, training, office security, quality and quantity of investigations and inspections, 

and internal controls.

The Department of Justice Office of Inspector General (OIG) prepares an annual schedule of proposed audits. 

The following OIG audits are scheduled for completion in fiscal year 2004:

Explosives Inspection Program of ATF

Review of the National Integrated Ballistic Information Network (NIBIN) Program

Review of Computer Security Controls Over the National Integrated Ballistic Information Network (NIBIN)

Review of the ATF National Tracing Center 

Review of the ATF Gang Resistance Education and Training Program

Strategic Plan: 2004-2009 11
Appendix C

Data Capacity

All ATF critical information systems are being certified in compliance with the Federal Information Security 

Management Act of 2002. Data captured for performance measurement are considered to be reasonably 

accurate. We continually evaluate the validity of our performance measures and refine verification procedures 

for performance data.

Appendix D

Management Challenges

The General Accounting Office and the Office of Inspector General have cited the need for ATF to improve 

performance measures to better determine progress in denying criminals access to firearms. ATF has 

proposed a model for measuring the Bureau’s contribution to the decrease in violent firearms crime. ATF’s 

new measures compare violent firearms crime reductions in metropolitan areas with a substantial ATF 

presence to other similar areas without the same levels of participation. The Bureau also tracks firearms crime 

trends in high-crime cities and firearms dealer compliance with Federal laws and regulations.

In the early stages of the deployment of the Youth Crime Gun Interdiction Initiative, ATF received a thorough 

review from the Department of the Treasury, Office of Inspector General concerning a variety of areas 

associated with this initiative including administrative matters, information technology, and field deployment 

of agents and inspectors. The Inspector General’s recommendations concerning field deployment have 

resulted in a variety of steps to improve performance measurement and gauge the success of the youth crime 

gun program; they include use of the youth crime gun analysis data to measure changes as they occur in 

the incidence of possession among youth and juveniles, continued active support for research of firearms 

violence, and partnerships with academic experts in this field that go beyond the production of crime gun 

analyses.

12 Bureau of Alcohol, Tobacco, Firearms and Explosives
Appendix E

Consultations with Stakeholders and Environmental Assessment

Consultations with Stakeholders

ATF executives take every opportunity to discuss the Strategic Plan and the individual strategies and tactics of 

the plan, with members of Congress and their staffs. In fiscal year 2003, ATF officials met with and briefed 

members and staffs of the following committees:

House Appropriations Subcommittee on Commerce, Justice, State and the Judiciary 

Senate Appropriations Subcommittee on Commerce, Justice, State and the Judiciary 

House Judiciary Committee

Senate Judiciary Committee

Oral and written briefings were provided on the following topics: The Integrated Violence Reduction Strategy 

and Project Safe Neighborhoods; the NIBIN Program; gang violence strategies; tactics in reducing the threat 

of explosives violence; and tobacco diversion. 

Environmental Assessment

ATF is using the American Customer Satisfaction Index survey for several programs to determine how well 

we meet the needs of the regulated industries and our law enforcement customers. The index allows ATF 

to benchmark against the best in business and government. ATF will continue to meet and collaborate with 

industry and law enforcement partners.

In fiscal year 2004, ATF commissioned an all-employee survey to gauge the levels of communication and 

employee engagement with Bureau goals and objectives. 

The triennial office reviews performed by ATF’s Office of Inspection include an analysis of employee 

and customer satisfaction. The Strategic Planning Office staff compiles demographic, social, and other 

environmental information for use in updating the ATF Strategic Plan.

Strategic Plan: 2004-2009 13
Appendix F:

Goal I

Firearms

Goal II

Explosives and 

Arson

Goal III

Alcohol and

Tobacco

ENVIRONMENTAL FACTORS

Technology

Advances in high-speed telecommunications, computers 

and other technologies are creating new opportunities for 

criminals, new classes of crimes, and new challenges for 

law enforcement.

Changing technology requires continual updating of 

employee skills.

Stakeholder expectations will demand better service and 

faster response times.

Economy

The interconnected nature of the world’s economy provides 

increasing opportunities for criminal activity, including 

money laundering, white collar crime, and smuggling and 

diversion.

A strong U.S. labor market may make it difficult to attract 

and retain workers with the requisite skills.

Economic conditions may affect crime rates.

X X

X X X

X X X

X X

X X X

X X X

Environmental Factors Affecting Goal Achievement

Government

Changes in the fiscal posture or policies of State and 

local governments could have dramatic effects on the 

capacity of State and local governments to remain effective 

law enforcement partners.

Differential tax rates can increase the profitability of illegal 

diversion of tobacco and alcohol products.

X X X

X

X X X

Globalization

Issues of criminal and civil justice increasingly transcend 

national boundaries, require the cooperation of foreign 

governments, and involve treaty obligations, multinational 

environmental and trade agreements and other foreign policy 

concerns.

14 Bureau of Alcohol, Tobacco, Firearms and Explosives
Appendix F:

Goal I

Firearms

Goal II

Explosives and 

Arson

Goal III

Alcohol and

Tobacco

ENVIRONMENTAL FACTORS

Environmental Factors Affecting Goal Achievement

X X X

X X X

X X

Globalization (cont’d.)

The new democratic states of eastern Europe are 

susceptible to drug and arms trafficking, organized 

criminal groups, and other illegal activities that impact 

the United States.

Social-Demographic Factors

The level of criminal activity is influenced by societal 

attitudes toward the use of illegal drugs and alcohol.

The numbers of adolescents and young adults, the most 

crime-prone segment of the population, are expected to 

grow rapidly over the next several years.

The United States is an increasingly multi-cultural and 

multi-racial society. Isolated instances of intolerance 

and violent resistance to this societal change affects the 

scope and nature of our work.

Demographic and cultural changes make ensuring a 

diverse and representative workforce a more challenging 

and essential task.

The increase in the number of convicted felons released 

from prison increases the potential criminal populace.

X

X X X

X X X

X X X

X X X

The Unpredictable

Changes in Federal law may affect our responsibilities 

and workload.

With increases in the number, kinds, and complexity of 

tasks we are required to perform, demand can challenge 

our capacity to respond.

X X

Strategic Plan: 2004-2009 15
Appendix G:

Firearms Strategic Objectives Performance Indicators

Firearms 1.1.Enforce Federal firearms laws in order to 

remove violent offenders from our communities, and keep 

firearms out of the hands of those prohibited by law from 

possessing them.

Firearms 1.2.Increase the rate of compliance with 

firearms laws and regulations in order to block the transfer 

of firearms to those prohibited from having them.

Firearms 1.3.Prevent firearms violence through 

community outreach.

1.a. Percent change in violent firearms crime in

 metropolitan areas with a substantial ATF 

 presence (as compared with similar areas).

1.b. Percentage of high-crime cities with an ATF

 presence demonstrating a reduction in violent

 firearms crime when compared to the national

 average (2004-2009): 80%.

1.c. Percent reduction in instances of violations and 

 discrepancies by firearms licensees recommended

 for recall inspection.

Explosives and Arson 2.1.Enforce the Federal 

explosives laws in order to protect the public from criminal 

acts and unsafe storage of explosives.

Explosives and Arson 2.2.Increase compliance with 

explosives laws and regulations so that these commodities 

are not used in violent crime.

Explosives and Arson 2.3.Foster innovation and 

cooperation in the fire and explosives investigation 

community.

2.a. Percentage of reported explosives thefts

 investigated.

2.b. Number of active fire investigations.

2.c. Number of active explosives investigations.

2.d. Resolution of unsafe explosives conditions

 discovered by inspections.

2.e. Percentage of total explosives licensees/

 permittees inspected. 

2.f. Number of explosives inspections.

2.g. Number of defendants convicted – Explosives.

2.h. Number of defendants convicted – Arson.

Explosives and Arson Strategic Objectives Performance Indicators

Alcohol and Tobacco Strategic Objectives Performance Indicators

Alcohol and Tobacco 3.1.Enforce laws that prohibit the 

diversion of alcohol and tobacco products from legitimate 

commerce.

Alcohol and Tobacco 3.2.Provide Federal, State, local 

and international law enforcement entities with the tools 

needed to identify trafficking schemes.

Performance Measures

3.a. Number of active investigations − Alcohol.

3.b. Number of tobacco trafficking groups identified and 

 disrupted.

3.c. Number of active investigations − Tobacco.

3.d. Number of information sharing agreements 

 developed with state and local law enforcement 

 agencies.

3.e. Number of state and local law enforcement personnel 

 trained on diversion trends and schemes.

16 Bureau of Alcohol, Tobacco, Firearms and Explosives