a

GAO

United States General Accounting Office

Report to Congressional Requesters

September 2002 COMBATING 

TERRORISM

Department of State 

Programs to Combat 

Terrorism Abroad

GAO-02-1021
Page i GAO-02-1021 Combating Terrorism

Contents

Letter 1

Results in Brief 3

Background 5

Programs and Activities to Prevent Terrorism Abroad 6

Programs and Activities to Disrupt and Destroy Terrorist 

Organizations Abroad 9

Programs and Activities to Respond to Terrorist Incidents

Abroad 11

Activities to Coordinate U.S. Efforts to Combat Terrorism

Abroad 13

Agency Comments 13

Appendixes

Appendix I: Department of State Organizational Chart 15

Appendix II: Department of State Programs and Activities to Combat 

Terrorism Abroad 16

Appendix III: Comments from the Department of State 29

Appendix IV: GAO Contact and Staff Acknowledgments 31

GAO Contact 31

Acknowledgments 31

Tables Table 1: State Department Funding to Combat Terrorism Abroad 5

Table 2: State Department Programs and Activities to Combat 

Terrorism Abroad 17

Figures Figure 1: Damage from al Qaeda Terrorist Attack, U.S. Embassy, 

Dar-es-Salaam, Tanzania, August 1998 2

Figure 2: Bureau of Diplomatic Security Training for Local 

Guards 7

Figure 3: New Security Fence, Gate, and Vehicle Barrier at a U.S. 

Embassy 8

Figure 4: Response to al Qaeda Terrorist Attack, U.S. Embassy, 

Nairobi, Kenya, August 1998 11
Contents

Page ii GAO-02-1021 Combating Terrorism

Abbreviations

ATA Antiterrorism Assistance Program

CA Bureau of Consular Affairs 

CIA Central Intelligence Agency

DOD Department of Defense

DS Bureau of Diplomatic Security

EAC Emergency Action Committee

EAP Emergency Action Plan

FBI Federal Bureau of Investigation

FEST Foreign Emergency Support Team

IIP Office of International Information Programs

ILEA International Law Enforcement Academy

INL Bureau for International Narcotics and Law Enforcement 

Affairs 

INR Bureau of Intelligence and Research 

IO Bureau of International Organization Affairs 

L Office of the Legal Advisor

NSC National Security Council

OBO Bureau of Overseas Buildings Operations

OFDA Office of Foreign Disaster Assistance

OSAC Overseas Security Advisory Council

PM Bureau of Political-Military Affairs 

RSO Regional Security Officer

S/CT Office of the Coordinator for Counterterrorism

USAID U.S. Agency for International Development
Page 1 GAO-02-1021 Combating Terrorism

United States General Accounting Office

Washington, D.C. 20548

A

September 6, 2002 Letr

The Honorable Christopher Shays

Chairman

Subcommittee on National Security, 

Veterans Affairs, and International Relations

Committee on Government Reform

U. S. House of Representatives

The Honorable Henry J. Hyde

Chairman

Committee on International Relations

U.S. House of Representatives

The Honorable Tom Lantos

Ranking Member

Committee on International Relations

U.S. House of Representatives

Since the terrorist attacks of September 11, 2001, efforts to combat 

terrorism have become an increasingly important part of U.S. government 

activities. Such efforts have also become more important in U.S. relations 

with other countries and with international organizations, such as the 

United Nations (U.N.). The U.S. Department of State is charged with 

coordinating these international efforts and protecting Americans abroad; 

its objective is to reduce the number of terrorist attacks, especially those 

on U.S. citizens and interests. While countering terrorism has always been 

a part of State’s role, it took on heightened significance in the aftermath of 

the 1998 al Qaeda terrorist attacks on the U.S. embassies in Tanzania and 

Kenya (see fig. 1). Since the September 11 attacks on the World Trade 

Center in New York City and the Pentagon in Washington, D.C., State has 

helped direct the U.S. efforts to combat terrorism abroad by building the 

global coalition against terrorism, including providing diplomatic support 

for military operations in Afghanistan and other countries. State has also 

supported international law enforcement efforts to identify, arrest, and 

bring terrorists to justice, as well as performing other activities intended to 

reduce the number of terrorist attacks.
Page 2 GAO-02-1021 Combating Terrorism

Figure 1: Damage from al Qaeda Terrorist Attack, U.S. Embassy, Dar-es-Salaam, 

Tanzania, August 1998

Source: Department of State.

This report is intended to assist your committees in overseeing the State 

Department’s leadership of U.S. programs to combat terrorism abroad. 

Specifically, this report identifies the State Department’s programs and 

activities intended to (1) prevent terrorist attacks, (2) disrupt and destroy 

terrorist organizations, (3) respond to terrorist incidents, and (4) 

coordinate efforts to combat terrorism. Footnotes to this report identify 

programs and activities managed by the U.S. Agency for International 

Development that complement the State Department’s efforts to combat 

terrorism abroad. This report is part of a larger effort that you jointly 

requested to review governmentwide programs to combat terrorism 

overseas. Regarding some of these programs, it is important to recognize 

that the State Department works in conjunction with a number of other 

federal agencies, including the Departments of Defense, Justice, and the 

Treasury, as well as the Central Intelligence Agency. As agreed with your 

staff, we plan to report later this year on governmentwide efforts to combat 

terrorism overseas.
Page 3 GAO-02-1021 Combating Terrorism

State’s organizational chart appears in appendix I to this report. Detailed 

information on the State Department’s programs and activities appears in 

appendix II. This information includes State’s framework for combating 

terrorism abroad, programs and activities for combating terrorism abroad, 

and responsible bureaus and offices.

We identified the State Department’s programs and activities for combating 

terrorism by reviewing State documents, such as Congressional 

Presentation Document, FY 2003 and Patterns of Global Terrorism,

1

 and 

by conducting interviews with State officials. To identify programs and 

activities provided by other departments and coordinated through State, 

we reviewed documents and interviewed officials from the Departments of 

Defense, Justice, and the Treasury; the Federal Bureau of Investigation 

(FBI) and other law enforcement agencies; and the U.S. Agency for 

International Development (USAID). In addition, we conducted fieldwork 

at the U.S. Embassy in Athens, Greece, to observe programs and activities 

to combat terrorism overseas. At selected regional and functional military 

commands, we met with State Department Political Advisors at the U.S. 

Central Command at MacDill Air Force Base, Florida; the U.S. Southern 

Command in Miami, Florida; and the U.S. European Command in StuttgartVaihingen, Germany. In addition, we conducted fieldwork at the 

International Law Enforcement Academy in Budapest, Hungary, to review 

programs to combat terrorism that the State Department manages or funds 

or both. We did not evaluate the effectiveness of these programs. We 

conducted our review from February 2002 through July 2002 in accordance 

with generally accepted government auditing standards.

Results in Brief The State Department 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. For Americans traveling 

and living abroad, State issues public travel warnings 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 

1

U.S. Department of State, Congressional Presentation Document, FY 2003 (Washington, 

D.C.: 2002); Patterns of Global Terrorism (Washington, D.C.: May 2002).
Page 4 GAO-02-1021 Combating Terrorism

U.S. private sector—to exchange threat information. To improve the ability 

of foreign governments to combat terrorism, State funds several training 

programs that operate both in the United States and overseas.

To disrupt and destroy terrorist organizations abroad, State has numerous 

programs and activities that rely on military, multilateral, economic, law 

enforcement, intelligence, and other capabilities. For example, State’s 

program to enhance military cooperation has resulted in 136 countries’

offering a range of military assistance for Operation Enduring Freedom in 

Afghanistan.2

 State has supported efforts, through international 

organizations like the United Nations, for the global implementation of 

resolutions and treaties aimed at reducing terrorism. In addition, State uses 

extradition treaties to bring terrorists to trial in the United States and 

cooperates with foreign intelligence, security, and law enforcement entities 

to track and capture terrorists in foreign countries. If the United States has 

no extradition agreements with a country, then State, with the Department 

of Justice, can work to obtain the arrest of suspected terrorists overseas 

through renditions. It also provides rewards for information leading to the 

arrest and prosecution of designated terrorists or the thwarting of terrorist 

attacks.

The State Department leads the U.S. response to terrorist incidents abroad. 

This includes diplomatic measures to protect Americans, minimize 

damage, terminate terrorist attacks, and bring terrorists to justice. Once an 

attack has occurred, State’s activities include measures to alleviate 

damage, protect public health, and provide emergency assistance. State 

also coordinates interagency exercises for combating terrorism abroad. In 

addition, State helps foreign governments prepare to respond to an attack 

by conducting multinational training exercises. (A comprehensive 

presentation of the State Department’s programs and activities appears in 

appendix II.)

To coordinate the U.S. effort to combat terrorism internationally, State uses 

a variety of mechanisms to work with the Departments of Defense, Justice, 

and the Treasury; the intelligence agencies; the Federal Bureau of 

Investigation; and others. These mechanisms include interagency working 

groups at the headquarters level in Washington, D.C.; emergency action 

2

Operation Enduring Freedom is the military campaign that began on October 7, 2001, 

against al Qaeda and Taliban forces in Afghanistan and elsewhere.
Page 5 GAO-02-1021 Combating Terrorism

committees at U.S. missions overseas; and liaison exchanges with other 

government agencies.

Background According to the State Department’s 2002 Annual Performance Plan, the 

department’s counterterrorism goals are to reduce the number of terrorist 

attacks, bring terrorists to justice, reduce or eliminate state-sponsored 

terrorist acts, delegitimize the use of terror as a political tool, enhance the 

U.S. response to terrorism overseas, and strengthen international 

cooperation and operational capabilities to combat terrorism.

The Secretary of State is responsible for coordinating all U.S. civilian 

departments and agencies that provide counterterrorism assistance 

overseas. The Secretary also is responsible for managing all U.S. bilateral 

and multilateral relationships intended to combat terrorism abroad.

State requested over $2.3 billion to combat terrorism in fiscal year 2003. 

This includes more than $1 billion for overseas embassy security and 

construction, as well as for counterterrorism assistance and training to 

countries cooperating with the global coalition against terrorism. Table 1 

provides a breakdown of State’s funding to combat terrorism.

Table 1: State Department Funding to Combat Terrorism Abroad

Sources: Office of Management and Budget and the Department of State (Office of the Coordinator for 

Counterterrorism).

Dollars in millions

Fiscal year 2001

(actual)

Fiscal year 2002

(enacted)

Emergency

Relief Fund

Fiscal year 2003

President’s budget

Bureau of Administration $50 $37 $0 $123

Bureau of Overseas 

Buildings Operations

1,035 1,159 105 1,286

Bureau of Consular 

Affairs

409 465 0 643

Bureau of Diplomatic 

Security

105 115 48 228

Office of the Coordinator 

for Counterterrorism

35 41 50 69

Total $1,634 $1,817 $203 $2,349
Page 6 GAO-02-1021 Combating Terrorism

By contrast, State spent about $1.6 billion in fiscal year 2001 and received 

about $1.8 billion to combat terrorism in fiscal year 2002. State received an 

additional $203 million through the Emergency Response Fund as part of 

the $40 billion appropriated by the Congress in response to the September 

11, 2001, terrorist attacks against the United States.

The Office of Management and Budget reported that determining precise 

funding levels associated with activities to combat terrorism is difficult 

because departments may not isolate those activities from other program 

activities. Some activities serve multiple purposes—for example, upgrades 

to embassy security help protect against terrorism as well as other crimes.

Programs and 

Activities to Prevent 

Terrorism Abroad

The State Department conducts multifaceted activities in an effort to 

prevent terrorist attacks on Americans abroad. For example, to protect 

U.S. officials, property, and information abroad, the Bureau of Diplomatic 

Security provides local guards for embassies and armored vehicles for 

embassy personnel (see fig. 2). In addition, it provides undercover teams to 

detect terrorist surveillance activities. Following the 1998 embassy 

bombings in Africa, State upgraded security for all missions, which 

included strengthening building exteriors, lobby entrances, and the walls 

and fences at embassy perimeters (see fig. 3).3

 The upgrades also included 

closed-circuit television monitors, explosive detection devices, walkthrough metal detectors, and reinforced walls and security doors to 

provide protection inside the embassy. In addition, State plans to replace 

some existing embassies with buildings that meet current security 

standards, such as having a 100-foot setback from streets surrounding 

embassies. State also has programs to protect national security information 

discussed at meetings or stored on computers. These programs include 

U.S. Marine security guards controlling access to embassies, efforts to 

prevent foreign intelligence agencies from detecting emanations from 

computer equipment, and computer security programs.

3

The USAID Office of Security is responsible for ensuring security at all USAID facilities that 

are not colocated with U.S. missions (approximately 58 of 95, as of January 2002), although 

it coordinates these security arrangements with 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, and with Diplomatic 

Security.
Page 7 GAO-02-1021 Combating Terrorism

Figure 2: Bureau of Diplomatic Security Training for Local Guards

Source: GAO.
Page 8 GAO-02-1021 Combating Terrorism

Figure 3: New Security Fence, Gate, and Vehicle Barrier at a U.S. Embassy

Source: GAO.

State has several programs to help warn Americans living and traveling 

abroad against potential threats, including those posed by terrorists. For 

example, to warn Americans about travel-related dangers, in fiscal year 

2001 the Bureau of Consular Affairs issued 64 travel warnings, 134 public 

announcements, and 189 consular information sheets. In addition, missions 

employ a “warden system” to warn Americans registered with an embassy 

of threats against their security. The system varies by mission but uses 

telephone, E-mail, fax, and other technologies as appropriate. Finally, the 

Bureau of Diplomatic Security manages the Overseas Security Advisory 

Councils program. The councils are a voluntary, joint effort between State 

and the private sector to exchange threat- and security-related information. 

Councils currently operate in 47 countries.

In addition, State manages and funds programs to train foreign government 

and law enforcement officials to combat terrorism abroad. These programs 

include the following:
Page 9 GAO-02-1021 Combating Terrorism

• the Antiterrorism Assistance Program, implemented by the Bureau of 

Diplomatic Security, to enhance the antiterrorism skills of law 

enforcement and security personnel in foreign countries;

• the International Law Enforcement Academies, managed by the Bureau 

for International Narcotics and Law Enforcement Affairs, to provide law 

enforcement training in four locations around the world.4

 The 

Departments of State, the Treasury, and Justice—including the Bureau 

of Diplomatic Security, Federal Bureau of Investigation, and other U.S. 

law enforcement agencies—provide the on-site training;

• the Department of Justice's Overseas Prosecutorial Development and 

Assistance Training and the International Criminal Investigation 

Training Assistance Program. The State Department provides policy 

oversight and funds this training, which is intended to build rule-of-law 

institutions, and includes general law enforcement and anticrime 

training for foreign nationals.5

Programs and 

Activities to Disrupt 

and Destroy Terrorist 

Organizations Abroad

State conducts numerous programs and activities intended to disrupt and 

destroy terrorist organizations. These programs and activities rely on 

military, multilateral, economic, law enforcement, and other capacities, as 

the following examples illustrate:

• The Bureau of Political-Military Affairs coordinates with Department of 

Defense on military cooperation with other countries. It has been State’s 

liaison with the coalition supporting Operation Enduring Freedom, 

processing 72 requests for military assistance from coalition partners 

since September 11, 2001.

• The Bureau of International Organization Affairs helped craft and adopt 

United Nations Security Council Resolution 1373, obligating all member 

nations to fight terrorism and report on their implementation of the 

resolution. It also assisted with resolutions extending U.N. sanctions on 

4

The academies are located in Budapest, Hungary; Bangkok, Thailand; Gaborone, Botswana; 

and Roswell, New Mexico.

5

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 the 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.
Page 10 GAO-02-1021 Combating Terrorism

al Qaeda and the Taliban and on certain African regimes, including those 

whose activities benefit terrorists.

• The Department of State’s Office of the Coordinator for 

Counterterrorism, the Bureau of International Narcotics and Law 

Enforcement, and the Economic Bureau work with the Department of 

the Treasury and other agencies to stem the flow of money and other 

material support to terrorists. According to the State Department, since 

September 11, the United States has blocked $34.3 million in terrorist 

related assets.

• The Office of the Legal Advisor pursues extradition and mutual legal 

assistance treaties with foreign governments. The Office of the Legal 

Advisor also works with the U.N. and with other nations in drafting 

multilateral agreements, treaties, and conventions on counterterrorism.

• The Bureau of Diplomatic Security, working with the Department of 

Justice, cooperates with foreign intelligence, security, and law 

enforcement entities to track and capture terrorists in foreign countries, 

assist in their extradition to the United States, and block attempted 

terrorist attacks on U.S. citizens and assets abroad.

• The Office of the Coordinator for Counterterrorism, in conjunction with 

the Department of Justice and other agencies, coordinates State’s role in 

facilitating the arrest of suspected terrorists through an overseas arrest, 

known as a rendition, when the United States lacks an extradition 

treaty. 

• The Bureau of Diplomatic Security manages the Rewards for Justice 

Program. This program offers payment for information leading to the 

prevention of a terrorist attack or the arrest and prosecution of 

designated individuals involved in international terrorism. These 

rewards reach up to $25 million for those involved in the September 11 

attacks.

• The Bureau of Intelligence and Research prepares intelligence and 

threat reports for the Secretary of State, high-level department officials, 

and ambassadors at U.S. missions. It also monitors governmentwide 

intelligence activities to ensure their compatibility with U.S. foreign 

policy objectives related to terrorism, and it seeks to expand the sharing 

of interagency data on known terrorist suspects.
Page 11 GAO-02-1021 Combating Terrorism

Programs and 

Activities to Respond 

to Terrorist Incidents 

Abroad

The State Department is responsible for leading the U.S. response to 

terrorist incidents abroad. This includes measures to protect Americans, 

minimize incident damage, terminate terrorist attacks, and bring terrorists 

to trial. Once an attack has occurred, State’s activities include measures to 

alleviate damage, protect public health, and provide emergency assistance. 

The Office of the Coordinator for Counterterrorism facilitates the planning 

and implementation of the U.S. government response to a terrorist incident 

overseas. In a given country, the ambassador would act as the on-scene 

coordinator for the response effort. (See figure 4.) 

Figure 4: Response to al Qaeda Terrorist Attack, U.S. Embassy, Nairobi, Kenya, 

August 1998

Source: Department of State.

In addition, several other bureaus respond to the aftermath of a terrorist 

attack and help friendly governments prepare to respond to an attack by 

conducting joint training exercises.
Page 12 GAO-02-1021 Combating Terrorism

• The Bureau of Political-Military Affairs is tasked with helping to prepare 

U.S. forces, foreign governments, and international organizations to 

respond to the consequences of a chemical, biological, radiological, or 

nuclear incident overseas. For example, the bureau is developing a 

database of international assets that could be used to respond to the 

consequences of a terrorist attack using weapons of mass destruction. It 

also participates in major interagency international exercises, which are 

led by DOD. In addition, the bureau assisted in the first operational 

deployment of a U.S. consequence management task force, working 

with the DOD regional command responsible for conducting the war in 

Afghanistan.

• Several bureaus and offices deploy emergency response teams to 

respond to terrorist attacks. For example, the Office of the Coordinator 

for Counterterrorism deploys multi-agency specialists in the Foreign 

Emergency Support Team (FEST) to assist missions in responding to 

ongoing terrorist attacks. For example, at the request of the 

Ambassador, the FEST can be dispatched rapidly to the mission. As one 

component of this team, the Bureau of Political-Military Affairs can 

deploy a Consequence Management Support Team to assist missions in 

managing the aftermath of terrorist attacks. In addition, the Bureau of 

Overseas Buildings Operations Emergency Response Team helps secure 

embassy grounds and restore communications following a crisis.6

See appendix II for a comprehensive list of State’s programs and activities 

to combat terrorism.

6

USAID assists in the aftermath of a terrorist incident through its Office of Foreign Disaster 

Assistance (OFDA). OFDA participates with other U.S. teams, deploying immediately with 

the Foreign Emergency Support Team. OFDA serves as an Advisor to the U.S. Chief of 

Mission, helping to coordinate the initial response efforts. Because of its relationships and 

formal agreements with both U.S. government agencies and nongovernmental 

organizations, OFDA can provide information on their capacities to assist a host nation in 

managing the consequences of a terrorist incident. OFDA is currently providing 

humanitarian assistance in Kabul, Afghanistan, as the United States has reestablished its 

mission there. 
Page 13 GAO-02-1021 Combating Terrorism

Activities to 

Coordinate U.S. Efforts 

to Combat Terrorism 

Abroad

The State Department is responsible for coordinating all federal agencies’

efforts to combat terrorism abroad. These include the Departments of 

Defense, Justice, and the Treasury; the various intelligence agencies; the 

FBI and other law enforcement agencies; and USAID. In addition, State 

coordinates U.S. efforts to combat terrorism multilaterally through 

international organizations and bilaterally with foreign nations. State uses a 

variety of methods to coordinate its efforts to combat terrorism abroad, 

including the following:

• In Washington, D.C., State participates in National Security Council 

interagency working groups, issue-specific working groups, and ad hoc 

working groups. For example, the Office of the Coordinator for 

Counterterrorism maintains policy oversight and provides leadership 

for the interagency Technical Support Working Group—a forum that 

identifies, prioritizes, and coordinates interagency and international 

applied research and development needs and requirements to combat 

terrorism. 

• At U.S. embassies, State implements mission performance plans that 

coordinate embassy activities to combat terrorism, country team 

subgroups on terrorism, emergency action committees to organize 

embassy response to terrorist threats and incidents, and ad hoc working 

groups. For example, selected embassies have country team subgroups 

dedicated to law enforcement matters, chaired by the Deputy Chief of 

Mission. Working with related bureaus and agencies such as the 

Regional Security Office, FBI Legal Attaché, and Treasury Department 

Financial Attaché, these subgroups coordinate efforts to combat 

terrorism among the various agencies overseas.

• In Washington, D.C., and elsewhere, State exchanges personnel with 

other agencies for liaison purposes. In Washington, D.C., for example, 

State personnel serve as liaisons at the CIA’s Counter-Terrorism Center. 

The department also provides each U.S. regional military command with 

a Political Advisor, who helps the respective commanders coordinate 

with State Department Headquarters and with U.S. embassies on 

regional and bilateral matters, including efforts to combat terrorism.

Agency Comments We received written comments from the Department of State that are 

reprinted in appendix III. State wrote that the report is a “useful guide” and 

“good outline” of State’s activities and roles in the campaign against 
Page 14 GAO-02-1021 Combating Terrorism

terrorism. State noted that there are many more often intangible and hardto-measure actions taking place as part of the department’s contribution to 

fighting terrorism. State also provided technical comments, which we 

incorporated where appropriate. 

We are sending copies of this report to interested congressional 

committees and to the Secretary of State. We will make copies available to 

others on request. In addition, the report will be available at no charge on 

the GAO Web site at http://www.gao.gov. 

If you or your staff have any questions about this report, please contact me 

at (202) 512-4128. Another GAO contact and staff acknowledgments are 

listed in appendix IV of this report.

Jess Ford, Director

International Affairs and Trade
Page 15 GAO-02-1021 Combating Terrorism

Appendix I

Department of State Organizational Chart ApApenednxidexiIs

Source: U.S. Department of State.
Page 16 GAO-02-1021 Combating Terrorism

Appendix II

Department of State Programs and Activities 

to Combat Terrorism Abroad ApendxiI

The Department of State coordinates U.S. government efforts to combat 

terrorism abroad. Within the department, multiple bureaus and offices 

manage programs and activities to combat terrorism. State also works with 

several U.S. and foreign government agencies in carrying out these 

programs and activities. Table 2 presents the programs and activities and 

the bureaus responsible for managing them. The table also presents 

information about some of the U.S. government agencies with which State 

cooperates. Table 2 describes:

• the strategic framework of State’s efforts to combat terrorism abroad;

• State’s programs and activities to prevent terrorism abroad;

• State’s programs and activities to disrupt and destroy terrorist 

organizations abroad; and

• State’s programs and activities to respond to terrorist incidents abroad.
Appendix II

Department of State Programs and Activities 

to Combat Terrorism Abroad

Page 17 GAO-02-1021 Combating Terrorism

Table 2: State Department Programs and Activities to Combat Terrorism Abroad

State Department

office or bureau Program or activity Description of program or activity

STRATEGIC FRAMEWORK

Agency head’s role in counterterrorism

Office of the Secretary Directs State 

Department, the lead 

U.S. agency for 

counterterrorism 

activities abroad

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 and other organizations to reduce the 

terrorist threat.

Special agency official or office in charge of counterterrorism

Coordinator for 

Counterterrorism (S/CT)

Coordinates all State 

Department 

counterterrorism 

activities and leads U.S. 

government efforts to 

improve 

counterterrorism 

cooperation with foreign 

governments

Coordinates the U.S. overseas counterterrorism policy and the 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 Interagency Working Group on Counterterrorism and the State 

Department's terrorism task forces to coordinate responses to major 

international terrorist incidents.

Coordinates U.S. counterterrorism research and development, including 

consultations and cooperation with selected countries.

Each U.S. ambassador Responsible for the full 

array of counterterrorism 

activities at each 

mission

See below for descriptions of counterterrorism activities at U.S. missions.
Appendix II

Department of State Programs and Activities 

to Combat Terrorism Abroad

Page 18 GAO-02-1021 Combating Terrorism

Agency plans or strategies to combat terrorism

Office of the Secretary State Department’s 

Annual Performance 

Plan

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 statesponsored terrorist acts, (4) delegitimize the use of terror as a political tool, (5) 

enhance the international response, and (6) strengthen international 

cooperation and operational capabilities to counter terrorism.

U.S. embassies 

(ambassador)

Mission Performance 

Plan

Lists each embassy’s priorities and includes implementation and budgeting 

plans. If counterterrorism activities are an embassy priority, the plan should 

include specific goals and actions to counter the threat.

PREVENT TERRORISM ABROAD

Military security assistance

Bureau of Political-Military 

Affairs (PM)

Regional security and 

arms controls to 

enhance regional 

stability

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, PM stated that arms transfers and security 

assistance policies have enhanced cooperation with the states of the region 

and influenced operations in Afghanistan. For example, arms transfers helped 

enhance security cooperation with such key U.S. strategic partners as Egypt, 

Saudi Arabia, Bahrain, and the United Arab Emirates.

Embassy security

Bureau of Diplomatic 

Security (DS) 

Responsible for 

providing a secure 

environment for the 

conduct of American 

diplomacy worldwide

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. DS can dispatch DS teams to 

threatened overseas missions. DS 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 (RSO) is responsible for implementing DS security measures and 

coordinating protection with host government authorities.

DS Review of standards and 

risk management 

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 DS to identify and address threats 

posed by terrorism, political violence, human intelligence, and technical 

intelligence penetration of facilities. DS uses these elements to target resource 

allocations to identified threats at each mission or location. DS 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.

(Continued From Previous Page)

State Department

office or bureau Program or activity Description of program or activity
Appendix II

Department of State Programs and Activities 

to Combat Terrorism Abroad

Page 19 GAO-02-1021 Combating Terrorism

Bureau of Overseas 

Buildings Operations 

(OBO)

Embassy construction 

program

Replaces State Department’s less secure facilities on an accelerated basis 

with new, secure embassies and consulates.

State has a 5-year Long-Range Overseas Buildings Plan, which includes both 

new construction and the major renovation and rehabilitation of existing 

facilities.

DS Embassy construction 

program

Participates with OBO 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.

DS,OBO Worldwide Security 

Upgrade Program

Provides a physically secure environment for all U.S. government personnel 

under the jurisdiction of the Chief of Mission. DS, 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. DS 

and OBO have joint responsibility for this program.

DS Residential security Provides for security upgrades to the residences of U.S. employees assigned 

to overseas diplomatic and consular missions. Prior to occupancy, all newly 

acquired residential facilities are equipped with appropriate security features, 

such as locks, alarms, shatter-resistant window film, and reinforced doors, 

based on the level of the threats to be addressed. 

DS Overseas Protection of 

Information

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.

DS 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” of embassy facilities or personnel, and includes capabilities 

intended to resolve all suspicious activity.

DS Local Guard Services Augments host government resources for protecting overseas diplomatic and 

consular office facilities and residences of U.S. government employees and 

dependents of all agencies under the Chief of Mission.

DS Overseas Protective 

Vehicles

Provides light and heavy armor vehicles to protect embassy personnel. One 

hundred percent of the Chief of Mission vehicles have been ordered and are in 

the armoring phase, with 94 percent delivered to missions.

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DS Security Liaison Officers Provides Security Officers to the Department of Defense’s Unified Command, 

located at U.S. Central Command, Tampa, Florida; U.S. European Command, 

Stuttgart-Vaihingen, Germany; and U.S. Pacific Command, Honolulu, Hawaii. 

These officers coordinate with the Commands on theater threat assessments, 

contingency planning, and implementation of Department of State and 

Department of Defense agreements on overseas security support.

Warnings to and information-sharing with Americans abroad

Bureau of Consular Affairs 

(CA)

Travel warnings, public 

announcements, and 

Consular Information 

Sheets

Ensures that important threat warnings and security information reach U.S. 

citizens and assets abroad in a timely and effective manner.

In 2001, CA issued 64 travel warnings, 134 public announcements, and 189 

Consular Information Sheets. CA’s Internet Web site received 117.9 million 

inquiries, 30.7 million more than in fiscal year 2000. According to CA data, 90 

percent of the users found the information helpful. CA also held 69 briefings 

for stakeholder groups, including international student program participants, 

travel agents, and others.

CA Warden system for 

notifying registered 

Americans of threats

Notifies Americans who have registered with the U.S. embassy 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 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.

DS Overseas Security 

Advisory Council 

(OSAC)

Provides security support to U.S. businesses and private-sector organizations 

worldwide through OSAC. A joint effort between State and the private sector, 

OSAC fosters the exchange of security and threat information and 

implementation of security programs and provides a forum to address security 

concerns. RSOs coordinate with OSAC headquarters to set up, develop, and 

maintain OSACs in country. In approximately 47 countries, active OSACs 

coordinate with U.S. embassies.

Law enforcement training (with foreign governments)

DS Antiterrorism Assistance 

(ATA)

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. ATA has trained 28,000 foreign 

national participants from 124 countries since its inception.

DS ATA’s proposed Center 

for Antiterrorism and 

Security Training

ATA proposes to build the Center for Antiterrorism and Security Training, a 

consolidated facility for training in various antiterrorism disciplines. 

DS ATA’s Mobile Emergency 

Training Team

Provides quick in-country training to allied nations. 

Bureau for International 

Narcotics and Law 

Enforcement Affairs

(INL)

International Law 

Enforcement Academy

(ILEA)

Provides law enforcement to foreign governments. INL manages the U.S. 

government’s interagency regional ILEAs (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, INL is scheduled to provide law enforcement training to 12,000 

officials, doubling the number trained in fiscal year 2001.

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INL Law enforcement and 

police science

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 INL and carried out by the Departments of Justice 

and the Treasury, among other federal agencies. The International Criminal 

Investigative Training Assistance Program and the Office of Overseas 

Prosecutorial Development and Training are examples of these types of 

programs.

S/CT, INL Countering terrorist 

financing

 Provides, with 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)

CA Visas Processes applications for visas from foreign citizens who wish to visit the 

United States. CA is to facilitate travel for those eligible to receive visas and to 

deny visas to those who are ineligible. A visa is an application to enter the 

United States, but it does not guarantee that a person will be able to enter the 

United States.

CA Consular Consolidated 

Database

Supports the antiterrorist task forces since September 11, 2001. In fiscal year 

2002, CA searched more than 900 nonimmigrant visa records at the request 

of federal law enforcement task forces investigating the terrorist attacks. In 

addition, Passport Services provided law enforcement with 305 visa-related 

records. CA used facial recognition software to compare the photographs on 

the visa applications of the September 11 hijackers in the database against 

other visa photographs. According to State, the review found no evidence that 

the hijackers had applied for visas using different names.

Bureau of Intelligence and 

Research (INR)

TIPOFF program Manages the TIPOFF program, a database of sensitive intelligence and law 

enforcement information contributed by the CIA, NSA, and FBI. TIPOFF 

contains information on some 68,000 suspected terrorists and international 

organized crime figures. TIPOFF alerts consular officers at U.S. embassies 

and Immigration and Naturalization Service officers at ports of entry when 

potential terrorists try to enter the United States. 

CA/Visa Services TIPOFF to impede 

terrorist entry into the 

United States

Uses TIPOFF in the visa program to identify and stop potential terrorists trying 

to enter the United States. In fiscal year 2001, CA 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 Immigration and Naturalization Service, 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.

DS Investigation of visa and 

passport fraud

Impedes terrorist entry into the United States. DS 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. DS 

has 450 special agents in over 160 countries and approximately 700 special 

agents assigned throughout the United States.

S/CT Terrorist Interdiction 

Program (TIP)

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 TIP is currently installed in 2 foreign 

countries, with another 60 countries under consideration. TIP is scheduled to 

be installed in up to 5 new countries per year.

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Page 22 GAO-02-1021 Combating Terrorism

Office of the Inspector 

General (OIG)

Investigation of visa and 

passport fraud

Conducts visa and passport investigations. OIG conducted several joint 

investigations with the Immigration and Naturalization Service in fiscal year 

2001. In one case, OIG found that defendants took in $21 million by 

defrauding the visa program.

Public Diplomacy

Office of International 

Information Programs (IIP)

Build international 

support for U.S. foreign 

policy

Influence international opinion in support of U.S. foreign policy objectives. 

Since the September 11, 2001, terrorist attacks, IIP 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 IIP-funded 

programs addressing September 11th–related issues. U.S. embassies have 

sponsored over 100 panel discussions and over 220 speeches on the issue. In 

addition, Network of Terrorism, an IIP-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

PM State’s primary liaison 

with Department of 

Defense

Facilitates Defense-State actions concerning military operations.

PM Supporting U.S. military 

war on terrorism

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, PM processed 120 

deployment orders and 72 requests for coalition forces in support of Operation 

Enduring Freedom in Afghanistan.

PM Political Advisor to U.S. 

regional military 

commands

PM 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 that provide assets for Operation Enduring 

Freedom.

International relations

Office of the Secretary Worldwide diplomatic 

support for war on 

terrorism and Operation 

Enduring Freedom

Military assistance was offered by 136 countries for the war on terrorism.

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.

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Page 23 GAO-02-1021 Combating Terrorism

U.S. embassies 

(ambassador) 

Bilateral diplomatic 

support for war on 

terrorism and Operation 

Enduring Freedom

Implements the above activities of the Office of the Secretary, in support of the 

war on terrorism and Operation Enduring Freedom.

Bureau of International 

Organization Affairs (IO)

Works with international 

organizations on 

counterterrorism issues

Develops and implements U.S. counterterrorism policy in the United Nations 

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 U.N. Counterterrorism Committee to oversee the 

implementation of UNSCR 1373. Through bilateral and multilateral efforts, IO 

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 U.N. 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 U.N. sanctions on Sudan, which has cooperated with 

the international community and the United States in its war on terrorism.

Aided in the U.N. International Atomic Energy Association’s reevaluation of its 

response to the threat of nuclear terrorism.

Assisted in the U.N. International Civil Aviation Organization’s passing an 

antiterrorism resolution.

Is working toward U.S. ratification of the final 2 of 12 U.N. terrorism 

conventions, and is active in encouraging more nations to become party to all 

the U.N. terrorism conventions.

S/CT, INL, and the 

Economic Bureau, in 

coordination with the 

Department of the 

Treasury and other 

agencies

Reduce the flow of 

money and other 

material support to 

terrorists. 

Blocks terrorism-related financing. S/CT, with the concurrence of the Justice 

and Treasury Departments, designates foreign terrorist organizations, 

individuals, and groups for the purpose of blocking 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 terroristrelated assets. 

Office of the Legal Advisor 

(L)

Negotiates international 

agreements

Pursues extradition and mutual legal assistance treaties with foreign 

governments and works with the United Nations and with other nations in 

drafting multilateral agreements, treaties, and conventions on 

counterterrorism.

L Works with Department 

of Justice on 

international law 

enforcement issues

Works closely with the Department of Justice’s Office of International Affairs 

(OIA) on specific cases and on building consensus on broad international 

counterterrorism and crime issues.

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Page 24 GAO-02-1021 Combating Terrorism

L Drafts U.S. 

counterterrorism-related 

legislation

L works with S/CT, the Economic Bureau, and the Department of Justice when 

U.S. legislation is needed to combat terrorism abroad.

Law enforcement

DS, RSO Law enforcement 

cooperation

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.

DS Investigations of terrorist 

incidents

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. DS 

supports the FBI in its extra-territorial investigations into the criminal 

prosecution of the perpetrators. 

S/CT Coordinates State’s role 

in negotiating and 

conducting renditions

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. S/CT, in conjunction 

with L, the Department of Justice, and other agencies, would coordinate 

State’s role in negotiating and conducting these arrests. Since 1993, there 

have been 10 reported renditions.

DS Rewards for Justice 

program

Provides payments for information leading to the arrest and prosecution of 

individuals involved in international terrorism, and for information that thwarts 

a terrorist attack. Rewards have been offered for terrorists involved in the 

September 11, 2001, terrorist attacks, the African embassy bombings, and the 

USS Cole bombing. The program awards payments of up to $25 million for this 

information. In fiscal year 2001, State spent $113,000 for cases concerning 

terrorist acts, $1.7 million for cases concerning narcotics traffickers, and 

$14,000 for cases concerning war crimes.

Intelligence on terrorist groups and threat assessments

INR Intelligence support for 

Secretary of State and 

for U.S. missions

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.

INR Intelligence 

assessments and policy 

guidance

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, National Security Council, 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, gauging Arab public reaction to the attacks on the United 

States and public perceptions of Osama bin Laden for use in policy 

formulation.

INR Electronic Read-andBurn Pilot ProjectProvides intelligence products, especially threat information, to Chiefs of 

Mission who could not previously receive this type of highly classified material.

S/CT Studies terrorist groups 

worldwide

Publishes an unclassified report called Patterns of Global Terrorism, as called 

for under title 22, USC 2656f (a).

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Page 25 GAO-02-1021 Combating Terrorism

DS Publishes annual 

security reports

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.

DS, RSO Threat and intelligence 

assessments

Interacts with police and intelligence contacts in other countries. A mission’s 

RSO is often the first to recognize, through investigative work, possible 

terrorist activities. DS 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)

DS, RSO Information sharing and 

cooperation with host 

country governments

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 RSOs 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 managementa

—domestic and abroad

S/CT Headquarters leadership of 

the U.S. government 

response to a terrorist 

incident overseas

Serves as the lead for crisis and consequence management in directing the 

U.S. government response to a terrorist incident overseas. The S/CT 

coordinator would lead a task force, working through the State Department 

Operations Center (discussed below).

State Department 

Operations Center 

(S/SO)

Headquarters task force for 

coordinating the U.S. 

government response to a 

terrorist incident overseas

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 State, other involved agencies, 

overseas posts, and foreign governments. This task force would be led by the 

S/CT Coordinator and, in addition to relevant State Department bureaus, may 

include other U.S. government agencies with action responsibilities.

U.S. embassies 

(ambassador)

Serves as the U.S. 

government on-scene 

coordinator for terrorist 

incidents overseas

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.

S/CT Foreign Emergency 

Support Team (FEST) to 

provide on-scene support

In coordination with the NSC, S/CT would lead an interagency FEST to assist 

the ambassador and host government to manage a terrorist incident. The 

FEST is advisory and will not enter the host country unless requested by the 

ambassador, with the host country’s permission. The FEST provides the 

ambassador a single point of contact to coordinate all U.S. government onscene support during a terrorist incident. Each FEST is tailored to the specific 

incident and can provide guidance on terrorist policy and incident 

management, dedicated secure communications, and special expertise.

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Page 26 GAO-02-1021 Combating Terrorism

DS Special DS teams to assist 

and investigate crisis 

situations

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 RSOs and stand ready for immediate 

deployment to any U.S. mission where conditions require the reestablishment 

of a secure environment.

PM Consequence

management; 

Consequence 

Management Support 

Team

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 weapons of mass destruction 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 the FEST operations and would 

take the lead for the consequence management response.

OBO Emergency Response 

Team

Helps secure embassy grounds and restore communications following a crisis.

CA Medical care Assists American victims with medical care. Also, assists in the process of 

identifying victim remains, notifying the next of kin, and shipping home the 

remains.

CA Liaison with U.S. citizens 

under duress

Provides assistance for Americans stranded overseas by the closure of U.S. 

air space.

CA Liaison with foreign 

nationals in the United 

States

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

S/CT Counterterrorism 

Security Group, 

Subgroup on Exercises

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.

S/CT International

Counterterrorism 

Exercise Program and 

Training

Conducts, in conjunction with DOD, exercises with friendly foreign 

governments. These exercises are generally tabletop simulations with no 

actual physical deployment of troops. Coordinates training programs to help 

other countries develop and coordinate responses to a weapons of mass 

destruction event. 

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Page 27 GAO-02-1021 Combating Terrorism

PM Contingency planning Has responsibility for preparing U.S. forces, foreign governments, and 

international organizations to manage the consequences of a chemical, 

biological, radiological, or nuclear incident overseas.

PM Consequence 

management exercises

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.

DS Emergency Planning 

Handbook

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.

U.S. embassies Emergency Action 

Committee (EAC)

Every foreign service mission is required to have an Emergency Action 

Committee (EAC). In organizing for emergency action, the Chief of Mission 

establishes an EAC and designates personnel responsible for specific crisisrelated functions. The EAC is responsible for developing and testing the 

mission’s Emergency Action Plan.

U.S. embassies Emergency Action Plan 

(EAP)

Every foreign service mission requires an Emergency Action Plan, which is 

written by members of the EAC and provides mission-specific procedures for 

responding to terrorist and other crises. The plan translates worldwide 

guidance for dealing with emergencies into a mission-specific action plan.

Foreign Service Institute EAC exercises Trains EAC members in their emergency action plan using various scenarios. 

Exercises are designed to expose mission officials to issues of decisionmaking, contingency planning, implementation of plans, and interpretation and 

coordination of policy.

DCM, RSO EAC/EAP exercises Tests its EAP to prepare for management of crises, including terrorist attacks. 

The EAC at each mission is responsible for periodic drills, including their 

preparation, execution, and evaluation.

U.S. embassies 

(ambassador) 

Plans and coordinates 

evacuations and military 

noncombatant 

evacuation operations

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.

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Page 28 GAO-02-1021 Combating Terrorism

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.

Source: Departments of State, Defense, Justice, and the Treasury.

Alternative command centers

Office of the Secretary Alternate operations 

center

Transformed State's Alternate Operations Center from a part-time facility to a 

full-time alternate site to carry out critical State functions.

OBO Alternate operations 

centers

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

U.S. embassies 

(ambassador)

Point of contact during 

any investigation

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.

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Appendix III

Comments from the Department of State ApendxiI
Appendix III

Comments from the Department of State

Page 30 GAO-02-1021 Combating Terrorism
Page 31 GAO-02-1021 Combating Terrorism

Appendix IV

GAO Contact and Staff Acknowledgments ApendxiIV

GAO Contact Cheryl Goodman, (202) 512-6571

Acknowledgments In addition to the contact named above, Edward George, Addison Ricks, 

Steve Caldwell, Mark Pross, James Lawson, Lori Kmetz, Yolanda Elserwy, 

Reid Lowe, and Cheryl Weissman made key contributions to this report. 

(320138)
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