Law Enforcement, Counterterrorism, and

Intelligence Collection in the United States Prior to 9/11 

Staff Statement No. 9 

Members of the Commission, with your help, your staff has developed initial findings 

regarding law enforcement and intelligence collection in the United States prior to the

9/11 attacks. These findings may help frame some of the issues to be discussed during 

this hearing and inform the development of your judgments and recommendations. 

This statement reflects the results of our work so far. We remain ready to revise our 

understanding of this topic as our investigation progresses. This staff statement

represents the collective efforts of a number of members of our staff. Caroline Barnes, 

Christine Healey, Lance Cole, Michael Jacobson, Peter Rundlet, and Doug Greenburg did 

most of the investigative work reflected in this statement.

We were fortunate in being able to build upon strong investigative work done by the 

Congressional Joint Inquiry and by the Department of Justice’s Office of the Inspector 

General. We have obtained excellent cooperation from the FBI and the Department of 

Justice, both in Washington and in six FBI field offices across the United States.

The Role of the FBI 

The FBI played the lead role in the government’s domestic counterterrorism strategy 

before September 11. In the 1990s, the FBI’s counterterrorism efforts against 

international terrorist organizations included both intelligence and criminal

investigations. Consistent with its traditional law enforcement approach, most of the 

FBI’s energy during this period was devoted to after-the-fact investigations of major

terrorist attacks in order to develop criminal cases.

Investigating these attacks always required an enormous amount of resources. As most

of these attacks occurred overseas, many of the FBI’s top terrorism investigators were 

deployed abroad for long periods of time. New York was the “Office of Origin” for the 

al Qaeda program and consequently where most of the FBI’s institutional knowledge on 

al Qaeda resided. Working closely with the Office of the U.S. Attorney for the Southern

District of New York, the Department of Justice, and the U.S. Intelligence Community,

the FBI’s New York field office was often successful in these investigations, and many of 

the perpetrators of these plots were identified, arrested, prosecuted, and convicted. We 

will summarize a few of the major episodes. 

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World Trade Center Bombing. On February 26, 1993, six people were killed and over a 

thousand injured when a truck bomb exploded in the basement of the World Trade 

Center. The FBI was able to identify the perpetrators of the attack as radical Islamists

who were followers of the “Blind Sheikh,” Omar Abdel Rahman. Through an 

international effort, the attack’s mastermind, Abdul Basit Mahmoud Abdul Karim (better 

known by his alias, Ramzi Yousef), was brought back to the United States to stand trial, 

and he, like some of his co-conspirators, was convicted. 

Landmarks Plot. Later in 1993, the FBI disrupted the “Day of Terror” plot which 

followers of Sheikh Rahman were in the midst of planning. Their plan was to blow up 

landmarks in the New York City area, including the Lincoln and Holland Tunnels, the 

George Washington Bridge, the United Nations, and the New York FBI Office. The FBI 

was able to prevent this attack by reactivating a source who had previously infiltrated this 

particular cell. 

Manila Airlines Plot. In January 1995, the Philippine police uncovered the plot to blow 

up 12 airplanes bound for the United States. Two of the perpetrators had also discussed 

the possibility of flying a small plane into the headquarters of the CIA. The FBI, working 

with the Philippine government, was able to determine that Ramzi Yousef was involved 

in this attack, as was Khalid Sheikh Mohammed, the eventual mastermind of the 

September 11, 2001 attacks.

Khobar Towers Bombing. On June 25, 1996, terrorists attacked Khobar Towers in Saudi 

Arabia, killing 19 U.S. military personnel and wounding hundreds more. The FBI 

mounted a full-scale criminal investigation, deploying several hundred FBI personnel to 

Saudi Arabia to investigate the attack. The investigation resulted in the indictment of 13 

individuals in June 2001. 

East Africa Embassy Bombings. On August 7, 1998, al Qaeda operatives bombed the 

U.S. Embassies in Kenya and Tanzania, in nearly simultaneous attacks. Twelve 

Americans and more than 200 Kenyans and Tanzanians were killed, and over 4,000 were 

injured. The FBI deployed hundreds of agents and other personnel to Africa to 

investigate the attacks. Usama Bin Ladin and 22 other individuals were indicted for their 

role in these attacks. Four of these individuals were caught and convicted. 

Millennium Plot. On December 13, 1999, Ahmed Ressam was detained by an alert U.S. 

Customs agent as he attempted to cross the border from Canada into the United States.

During interviews later with the FBI, Ressam acknowledged that he was planning to 

conduct an attack at the Los Angeles International Airport. Based on information derived 

from both Ressam’s arrest and the arrests in Jordan associated with a planned attack on 

an American-owned hotel, the CIA and FBI were mobilized to prevent a terrorist attack 

within the United States.

U.S.S. Cole Bombing. On October 12, 2000, terrorists conducted a suicide attack against 

the U.S.S. Cole, a U.S. naval warship stationed in the port of Aden, Yemen. Seventeen 

sailors were killed, and 39 were injured. The FBI deployed scores of agents and other 

personnel to Yemen, and determined that al Qaeda operatives were behind the attacks.

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Approach to Counterterrorism 

The FBI took a traditional law enforcement approach to counterterrorism. Its agents were 

trained to build cases. Its management was deliberately decentralized to empower the 

individual field offices and agents on the street. 

The Bureau rewarded agents based on statistics reflecting arrests, indictments, and 

prosecutions. As a result, fields such as counterterrorism and counterintelligence, where 

investigations generally result in fewer prosecutions, were viewed as backwaters.

Agents developed information in support of their own cases, not as part of a broader, 

more strategic effort. Given the poor state of the FBI’s information systems, field agents 

usually did not know what investigations agents in their own office, let alone in other 

field offices, were working on. Nor did analysts have easy access to this information. As 

a result, it was almost impossible to develop an understanding of the threat from a

particular international terrorist group.

Agents investigated their individual cases with the knowledge that any case information

recorded on paper and stored in case files was potentially discoverable in court. Thus, 

there was a disincentive to share information, even with other FBI agents and analysts. 

Analysts were discouraged from producing written assessments which could be 

discoverable and used to attack the prosecution’s case at trial.

In the investigative arena, the field office had primacy. Counterterrorism investigations 

were run by the field, not headquarters. Moreover, the field office that initiated a case 

maintained control over it, an approach the FBI called the “Office of Origin” model.

This decentralized management structure allowed field offices to set their own priorities 

with little direction from headquarters.

Management Priorities and Challenges 

The FBI determined early in the 1990s that a preventive posture was a better way to 

counter the growing threat from international terrorism. In its first budget request to 

Congress after the 1993 World Trade Center bombing, the FBI stated that, “merely

solving this type of crime is not enough; it is equally important that the FBI thwart 

terrorism before such acts can be perpetrated.”

The FBI made several organizational changes at headquarters during the 1990s, including 

the creation of a Counterterrorism Center, the exchange of senior FBI and CIA 

counterterrorism officials, and the creation of a unit focused exclusively on Usama Bin 

Ladin. The FBI also expanded its overseas Legal Attache program during this period, 

largely to improve its liaison with foreign governments on terrorism.

By the late 1990s, the FBI recognized that certain limitations undermined a preventive 

counterterrorism strategy, and it initiated several significant reforms to address them.

These broad efforts were focused on intelligence collection and analysis,

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counterterrorism expertise and training, information technology, and the counterterrorism

capacity of field offices.

Yet the FBI’s leadership confronted two fundamental challenges in countering terrorism.

First, the FBI had to reconcile this new priority with its existing agenda. This 

immediately required choices about whether to divert experienced agents or scarce 

resources from criminal or other intelligence work to terrorism. As the terrorism danger 

grew, Director Freeh faced the choice of whether to lower the priority the FBI attached to 

work on general crime, including the war on drugs, and allocate these resources to 

terrorism.

The Department of Justice Inspector General found that when the FBI designated 

“national and economic security” as its top priority in 1998, it did not shift its human

resources accordingly. Although the FBI’s counterterrorism budget tripled during the 

mid-1990s, FBI counterterrorism spending remained fairly constant between fiscal years 

1998 and 2001. The Inspector General’s 2003 report stated that prior to 9/11, “the 

Bureau devoted significantly more special agent resources to traditional law enforcement

activities such as white collar crime, organized crime, drug, and violent crime

investigations than to domestic and international terrorism issues.” According to another 

external review of the FBI, by 2000 there were twice as many agents devoted to drug 

enforcement matters as to counterterrorism. On September 11, 2001, only about 1,300 

agents, or six percent of the FBI’s total personnel, worked on counterterrorism.

Former FBI officials told us that prior to 9/11, there was not sufficient national 

commitment or political will to dedicate the necessary resources to counterterrorism.

Specifically, they believed that neither Congress nor the Office of Management and 

Budget fully understood the FBI’s counterterrorism resource needs. Nor did the FBI 

receive all it requested from the Department of Justice, under Attorney General Janet 

Reno.

Reno told us that the Bureau never seemed to have sufficient resources given the broad 

scope of its responsibilities. She said in light of the appropriations FBI received, it 

needed to prioritize and put counterterrorism first. She also said that Director Freeh 

seemed unwilling to shift resources to terrorism from other areas such as violent crime.

Freeh said that it was difficult to tell field executives that they needed to do additional 

counterterrorism work without additional resources.

Finally, even though the number of agents devoted to counterterrorism was limited, they 

were not always fully utilized in the field offices. We learned through our interviews that 

prior to 9/11, field agents often were diverted from counterterrorism or other intelligence 

work in order to cover major criminal cases.

The second core challenge was a legal issue that became a management challenge as 

well. Certain provisions of federal law had been interpreted to limit communication 

between agents conducting intelligence investigations and the criminal prosecution units 

of the Department of Justice. This was done so that the broad powers for gathering 

intelligence would not be seized upon by prosecutors trying to make a criminal case. The 

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separation of intelligence from criminal investigations became known as the “wall.”

New procedures issued by Attorney General Reno in 1995 required the FBI to notify 

prosecutors when “facts and circumstances are developed” in a foreign intelligence or 

foreign counterintelligence investigation that “reasonably indicate a significant federal

crime has been, is being, or may be committed.” The procedures, however, prohibited 

the prosecutors from “directing or controlling” the intelligence investigation. 

Over time, the wall requirement came to be interpreted by the Justice Department, and 

particularly the Foreign Intelligence Surveillance Court, as imposing an increasingly

stringent barrier to communications between FBI intelligence agents and criminal

prosecutors. Despite additional guidance on information sharing issued by Attorney 

General Reno in February 2000 and by Deputy Attorney General Larry Thompson in 

August 2001, the wall remained a source of considerable frustration and concern within 

the Justice Department. Justice Department prosecutors and FBI criminal agents were 

responsible for large criminal cases, like the Embassy bombings. The intelligence side of 

the FBI, though, had the legal tools that were essential for domestic intelligence work, 

such as FISA surveillance. In this environment, domestic counterterrorism efforts were 

impaired.

Attempts at Reform 

The 1998 Strategic Plan. The FBI issued a five-year strategic plan in May 1998 that was 

spearheaded by Deputy Director Robert Bryant. With this plan, the FBI designated 

national and economic security, including counterterrorism, as its top priority for the first 

time in the Bureau’s history. The plan emphasized that the FBI’s goal in the 

counterterrorism arena was “to prevent horrific acts” such as the 1993 World Trade

Center and 1995 Oklahoma City bombings. The plan recognized that the Bureau needed 

to substantially enhance its collection, analysis, and dissemination of intelligence in order 

to understand the terrorist threat, and thus become more proactive on national security 

issues.

The plan mandated development of a strong intelligence base, including human sources, 

intelligence collection, and reporting requirements. It called for implementation of a 

nationwide automated system to facilitate intelligence collection, analysis and 

dissemination. It envisioned creation of a professional intelligence cadre of experienced 

and trained agents and analysts. It hoped for partnerships with intelligence community

and national and local law enforcement agencies to leverage their expertise.

As a result of the Strategic Plan, the FBI created an Office of Intelligence that was 

superseded by a new Investigative Services Division created in 1999. 

The Investigative Services Division. That Division was intended to strengthen the FBI’s

strategic analysis capability across the spectrum of traditional criminal,

counterintelligence, and counterterrorism cases. Thus, for the first time, the strategic 

analysis function was made independent of the operational divisions.

The Investigative Services Division also was intended to increase the professional stature

of analysts. An internal review of the FBI’s intelligence analysis function at this time

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found that 66 percent of the Bureau’s analysts were not qualified to perform analytical 

duties. The review made recommendations for improvements. It appears that these 

recommendations were either not implemented or not enforced. 

The new Division did not succeed. FBI officials told us that it did not receive sufficient

resources, and there was ongoing resistance to its creation from the senior managers in 

the FBI’s operational divisions. Those managers feared losing control. They feared 

losing resources. They feared they would be unable to get the assistance they wanted 

from the new Division’s analysts.

Director Robert Mueller dismantled the Division soon after the 9/11 attacks. We will 

discuss his changes in Staff Statement No. 12. 

The Counterterrorism Division and MAXCAP 05. In 1999, the FBI also created 

separate Counterterrorism and Counterintelligence Divisions intended to ensure sufficient

focus on these two national security missions. By late 1999 Dale Watson, the first head 

of the new Counterterrorism Division, recognized the urgent need to elevate the 

counterterrorism capacity of the FBI organization-wide. 

Watson developed a strategy he called MAXCAP 05. His goal was that the Bureau reach 

its “maximum feasible capacity” in counterterrorism by 2005 through a strategy focused 

on “intelligence gathering, valid and straightforward reporting and tracking mechanisms,

effective interagency liaison and cooperation, and accountable program management.”

During July and August of 2000 at four regional conferences, Counterterrorism Division 

leadership presented the new strategy to all of the FBI’s Assistant Directors and Special 

Agents in Charge of the 56 FBI field offices. Field executives told Watson that they did

not have the analysts, linguists, or technically trained experts to carry out the strategy. 

Watson asked for help from the Training Division and the new Investigative Services 

Division.

Dale Watson told us that trying to implement this strategy was the hardest thing he had 

ever done in his life. One year after the regional conferences, almost every FBI field 

office’s counterterrorism program was assessed to be operating at far below “maximum

capacity.” Watson thought the FBI had to step up to a major choice of mission, perhaps 

turning over a significant share of narcotics enforcement to the DEA in order to free up

resources for countering terrorism. Although he thought FBI Director Freeh was 

sympathetic, most FBI managers opposed such a fundamental change before 9/11 and 

none of the pre-9/11 budgets made that choice.

The FBI’s new counterterrorism strategy was not a focus of the Justice Department in 

2001. Attorney General Ashcroft told us that upon his arrival at the Department, he faced 

a number of challenges that signaled the need for reform at the FBI. He mentioned the 

Ruby Ridge and Waco incidents, the Wen Ho Lee investigation, FBI agent Robert 

Hanssen’s espionage, the late discovery of FBI documents related to the Timothy

McVeigh case, and public disclosures about lost laptops and firearms.

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The new Bush administration proposed an 8 percent increase in overall FBI funding for 

fiscal year 2002. This included the largest proposed percentage increase in the FBI’s 

counterterrorism program since fiscal year 1997. On May 9, 2001, Attorney General 

John Ashcroft testified at a hearing on U.S. federal efforts to combat terrorism. He 

testified that the Justice Department had no higher priority than to protect citizens from

terrorist attacks.

On May 10, 2001, the Department issued guidance for developing the fiscal year 2003 

budget that made reducing the incidence of gun violence and reducing the trafficking of 

illegal drugs priority objectives. Watson told us that he almost fell out of his chair when 

he saw the memo, because it made no mention of counterterrorism. The Department

prepared a budget for fiscal year 2003 that did not increase counterterrorism funding over 

its pending proposal for fiscal year 2002. It did include an enhancement for the FBI’s 

information technology program intended to support the collection, analysis, and rapid 

dissemination of information pertinent to FBI investigations. Acting FBI Director

Thomas Pickard told us he made an appeal to Attorney General Ashcroft for further 

counterterrorism enhancements not included in this budget proposal. On September 10, 

the Attorney General rejected that appeal.

Despite recognition by the FBI of the growing terrorist threat, it was still hobbled by 

significant deficiencies.

Intelligence Collection

Intelligence collection efforts should begin with a strategy to comprehend what is being

collected, identify the gaps, and push efforts toward meeting requirements identified by 

strategic analysis. Prior to 9/11 the FBI did not have a process in place to effectively 

manage its intelligence collection efforts. It did not identify intelligence gaps. 

Collection of useful intelligence from human sources was limited. By the mid-1990s

senior FBI managers became concerned that the Bureau’s statistically-driven

performance system had resulted in a roster of mediocre sources. The FBI did not have a 

formal mechanism for validating source reporting, nor did it have a system for adequately 

tracking and sharing such reporting, either internally or externally. 

The “wall” between criminal and intelligence investigations apparently caused agents to 

be less aggressive than they might otherwise have been in pursuing Foreign Intelligence

Surveillance Act (FISA) surveillance powers in counterterrorism investigations.

Moreover, the FISA approval process involved multiple levels of review, which also

discouraged agents from using such surveillance. Many agents also told us that the 

process for getting FISA packages approved at FBI Headquarters and the Department of 

Justice was incredibly lengthy and inefficient. Several FBI agents added that, prior to 

9/11, FISA-derived intelligence information was not fully exploited but was collected 

primarily to justify continuing the surveillance.

The FBI did not dedicate sufficient resources to the surveillance or translation needs of 

counterterrorism agents. The FBI’s surveillance personnel were more focused on 

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counterintelligence and drug cases. In fact, many field offices did not have surveillance 

squads prior to 9/11. Similarly, the FBI did not have a sufficient number of translators 

proficient in Arabic and other languages useful in counterterrorism investigations, 

resulting in a significant backlog of untranslated FISA intercepts by early 2001.

FBI agents received very little formalized training in the counterterrorism discipline.

Only three days of the 16-week new agents course were devoted to national security 

matters, including counterterrorism and counterintelligence, and most subsequent 

counterterrorism training was received on an ad hoc basis or “on the job.” 

Additionally, the career path for agents necessitated rotations between headquarters and 

the field in a variety of work areas, making it difficult for agents to develop expertise in

any particular area, especially counterterrorism and counterintelligence. We were told 

that very few FBI field managers had any counterterrorism experience, and thus either 

were not focused on the issue or did not have the expertise to run an effective program.

Finally, agents’ investigative activities were governed by Attorney General Guidelines, 

first put in place in 1976 and revised in 1995, to guard against misuse of government

power. The Guidelines limited the investigative methods and techniques available to 

agents conducting preliminary investigations of potential terrorist activities or 

connections. They prohibited the use of publicly available source information, such as 

that found on the Internet, unless specified criteria were present. These restrictions may 

have had the unintended consequence of causing agents to avoid legitimate investigative 

activity that might conceivably be viewed as infringing on religious liberties or lawful 

political protest. Agents we interviewed believed these limitations were too restrictive

and adversely affected their counterterrorism intelligence investigations.

Strategic Analysis

It is the role of the strategic analyst to look across individual operations and cases to 

identify trends in terrorist activity and develop broad assessments of the terrorist threat to 

U.S. interests. The goal is not abstract. Such analysis drives collection efforts. It is the 

only way to evaluate what the institution does not know. The FBI had little 

understanding of, or appreciation for, the role of strategic analysis in driving 

investigations or allocating resources.

The role of the tactical analyst, on the other hand, is geared toward providing direct 

support to investigations. Agents viewed tactical analysts as performing duties that 

advanced their cases. They failed to see the value of strategic analysis, finding it too 

academic and therefore irrelevant. Creation of the ill-fated Investigative Services 

Division may have worsened this attitude by distancing strategic analysts from agents in 

the operational divisions. 

Moreover, strategic analysts had difficulty getting access to the FBI and Intelligence

Community information they were expected to analyze. The poor state of the FBI’s 

information systems meant that analysts’ access to information depended in large part on 

their personal relationships with individuals in the operational units or squads where the 

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information resided. In short, analysts didn’t know what they didn’t know. As a result, 

prior to 9/11 relatively few strategic counterterrorism analytical products had been 

completed. Indeed, the FBI had never completed an assessment of the overall terrorist

threat to the U.S. homeland. According to the Department of Justice Inspector General, 

FBI officials were comfortable relying on their individual professional judgment

regarding the terrorist threat and “did not value a formal written assessment that uses a 

structured methodology.”

Compounding this situation was the FBI’s tradition of hiring analysts from within the 

agency rather than recruiting individuals with the relevant educational background and 

expertise. In our field visits, we encountered several situations in which poorly qualified 

administrative personnel were promoted to analyst positions, in part as a reward for good 

performance in other positions. When the FBI hired or promoted people with appropriate 

analytical skills and experience, the Bureau’s lack of a long-term career path and a 

professional training program caused many capable individuals to leave the Bureau or 

move internally to other positions. In addition, managers often did not use qualified 

analysts effectively, especially in the field. Some field analysts we interviewed told us 

they were viewed as “über-secretaries,” expected to perform any duty that was deemed

non-investigative, including data entry and answering phones. Headquarters managers

often did not have sufficient staff support, so they, too, turned to analysts to perform

policy-oriented and programmatic duties that were not analytic in nature. 

Knowledge Management 

Prior to 9/11, the FBI did not have an adequate ability to know what it knew. In other 

words, the FBI did not have an effective mechanism for capturing or sharing its 

institutional knowledge. FBI agents did create records of interviews and other 

investigative efforts, but there were no reports officers to condense the information into

meaningful intelligence that could be retrieved and disseminated.

The FBI’s primary information management system, designed using 1980s technology 

already obsolete when installed in 1995, limited the Bureau’s ability to share its 

information internally and externally. The FBI did not have an effective system for 

storing, searching, or retrieving information of intelligence value contained in its 

investigative files.

Director Freeh told us that he went before congressional staff and members twice a year 

“begging and screaming” for funds to improve the FBI’s information technology 

infrastructure. Former Department of Justice and FBI officials told us that the FBI lacked

personnel with the necessary expertise leading its information technology improvement

efforts, increasing Congress’s reluctance to support funding proposals in this area.

Once Freeh brought former 30-year IBM executive Robert Dies on board in 2000, the 

Bureau developed a comprehensive information technology plan that Congress 

supported. The FBI received congressional approval in late 2000 for the “Trilogy” 

project, a 36-month plan for improving its networks, systems, and software. Dies told us

that given the enormity of the task at hand, his goal was merely to “get the car out of the 

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ditch.” As of September 2001, the project was underway but by no means fully 

implemented.

The FBI’s Joint Terrorism Task Forces (JTTFs) were the primary mechanism for sharing 

counterterrorism information with other law enforcement agencies in the field. The FBI 

expanded the number of JTTFs throughout the 1990s, and by 9/11 there were 35.

The JTTFs, while useful, had limitations. The JTTFs set their own priorities in 

accordance solely with regional and field office concerns, and most were not fully 

staffed. Many state and local entities believed they would gain little from having a 

representative on a JTTF. Most detailees performed primarily a liaison function rather 

than serving as full working members of the JTTFs, and many did not have access to 

either FBI information systems or their own home agency systems while in the FBI 

workspace. Moreover, the supervisors in their home agency chains of command often 

did not have security clearances, making it difficult to share important intelligence

information.

We were told that at headquarters, information sharing between the FBI and CIA 

improved greatly when the agencies began exchanging senior counterterrorism officials 

in 1996. After serving on rotation, senior officials better understood the other agency’s 

mission and capabilities. As will be discussed in the next staff statement, however, there

were other problems with information sharing between the FBI and the CIA.

The FBI’s inability or unwillingness to share information reportedly frustrated White

House national security officials. According to former National Counterterrorism

Coordinator Richard Clarke, the National Security Council never received anything in 

writing from the FBI whatsoever. Former Deputy National Security Adviser James

Steinberg stated that the only time that the FBI provided the National Security Council 

with relevant information was during the Millennium crisis. Clarke told us that Attorney

General Reno was notified that the National Security Council could not run an effective 

counterterrorism program without access to FBI information.

The Justice Department representative on Clarke’s interagency group, the 

Counterterrorism and Security Group, has told us, however, that—to his knowledge—

neither Clarke nor anyone else at the NSC raised any systemic issue of FBI information

sharing as a policy issue or a matter to be considered by the Attorney General. Reno, in 

any case, initiated biweekly briefings of National Security Adviser Samuel Berger with 

FBI Director Freeh.

Reno told us that she was very concerned about the Bureau’s information sharing and 

intelligence capabilities. In 2000, Reno sent several memoranda to Director Freeh 

expressing these concerns. One memo stated that “it is imperative that the FBI 

immediately develop the capacity to fully assimilate and utilize intelligence information

currently collected and contained in FBI files and use that knowledge to work proactively 

to identify and protect against emerging national security threats.” Reno’s requirements

involved improved information sharing, improved counterterrorism training, a threat 

assessment, and a strategy to counter that threat. It is not clear what actions the FBI took 

in response to these directives from the Attorney General. 

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Terrorist Financing

The FBI worked hard on terrorist financing investigations. The Bureau primarily utilized 

an intelligence approach to these investigations. Agents in a number of field offices 

gathered intelligence on a significant number of suspected terrorist financing 

organizations. Prior to September 11, these FBI offices had been able to gain a basic 

understanding of some of the largest and most problematic terrorist financing 

conspiracies that have since been identified. The agents understood that there was a 

network of extremist organizations operating within the United States supporting a global 

Islamic jihad movement. They did not know the degree to which these extremist groups 

were associated with al Qaeda. It was also unclear whether any of these groups were 

sending money to al Qaeda. The FBI operated a web of informants, conducted electronic 

surveillance, and had opened investigations in a number of field offices. Numerous field 

offices, including New York, Chicago, Detroit, San Diego, and Minneapolis, had 

significant intelligence investigations into groups that appeared to be raising money for 

Islamic extremist groups. Many of these groups appeared to the FBI to have some

connection to either al Qaeda or Usama Bin Ladin. 

The problems in the FBI’s counterterrorism program affected these fundraising 

investigations as well. The FBI was hampered by an inability to develop an endgame. Its 

agents continued to gather intelligence with little hope that they would be able to make a 

criminal case or otherwise disrupt the operation. Agents were stymied by rules regarding 

the distinction between intelligence and criminal cases, in part due to the “wall” then in 

place between criminal and intelligence investigations, described above.

Making a terrorist financing case was at least as difficult, and perhaps more so, than other 

similarly complex international financial criminal investigations. The money inevitably 

moved overseas. Once that occurred, the money was much harder to track, and the 

agents were at a dead end. In addition, due to the FBI’s inadequate information

management systems, strategic analysis, and information sharing capabilities prior to 

9/11, the FBI lacked a fundamental strategic understanding of the nature and extent of the 

al Qaeda fundraising problem within the United States. As a result, the FBI could not 

fulfill its responsibility to provide intelligence on domestic terrorist financing to 

government policymakers, and did not contribute to national policy coordination on this 

issue. Instead, FBI agents simply kept tabs on these fundraisers, even as millions of 

dollars flowed to foreign Islamic extremists.

Conclusion

-- From the first World Trade Center attack in 1993, FBI and Department of Justice 

leadership in Washington and New York became increasingly concerned about 

the terrorist threat from Islamic extremists to U.S. interests both at home and 

abroad.

-- Throughout the 1990s, the FBI’s counterterrorism efforts against international 

terrorist organizations included both intelligence and criminal investigations. The 

FBI’s approach to investigations was case-specific, decentralized and geared 

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toward prosecution. Significant FBI resources were devoted to after-the-fact 

investigations of major terrorist attacks, resulting in several prosecutions. 

-- The FBI attempted several reform efforts aimed at strengthening its ability to 

prevent such attacks, but these reform efforts failed to effect change organizationwide.

-- On September 11, 2001, the FBI was limited in several areas critical to an 

effective, preventive counterterrorism strategy. Those working counterterrorism

matters did so despite limited intelligence collection and strategic analysis

capabilities, a limited capacity to share information both internally and externally, 

insufficient training, an overly complex legal regime, and inadequate resources.

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