    Combating Terrorism: Interagency Framework and Agency Programs to
    Address the Overseas Threat (23-MAY-03, GAO-03-165).

    Coordination of federal programs to combat terrorism overseas
    became even more critical as a result of the terrorist attacks
    against the United States on September 11, 2001. In response to
    these attacks, the federal government has taken unprecedented
    political, diplomatic, legal, law enforcement, financial,
    military, and intelligence actions to combat terrorism abroad.
    Among these actions is the publication of a series of new
    national strategies to combat terrorism. Congress asked that we
    develop baseline information identifying and describing federal
    programs and activities to combat terrorism overseas. As agreed
    with Congresses offices, this report describes the interagency
    framework and policies for planning and coordinating federal
    efforts to counter international terrorism. It identifies the
    relationships between and among the new national strategies to
    combat terrorism. It also describes the federal programs and
    activities governmentwide to detect and prevent terrorism,
    disrupt and destroy terrorist organizations, and respond to
    terrorist incidents overseas. Finally, it provides detailed
    matrices of selected departments' programs and activities to
    combat terrorism overseas. We briefed your staffs previously on
    the preliminary results of our work and, at your request, issued
    an interim report on Combating Terrorism: Department of State
    Programs to Combat Terrorism Abroad. This report contains the
    final results of our review.
    -------------------------Indexing Terms-------------------------
    REPORTNUM:   GAO-03-165
        ACCNO:   A06978
      TITLE:     Combating Terrorism: Interagency Framework and Agency
    Programs to Address the Overseas Threat
         DATE:   05/23/2003
      SUBJECT:   Armed forces abroad
    	     Combat readiness
    	     Terrorism

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    GAO-03-165

                                           A

    Report to Congressional Requesters

    May 2003 COMBATING TERRORISM Interagency Framework and Agency Programs to
    Address the Overseas Threat

    GAO- 03- 165

    Transmittal Letter 1 Executive Summary 4

    Purpose 4 Background 4 Results in Brief 5 GAO*s Analysis 6 Agency Comments
    and Our Evaluation 10

    Chapter 1 12

    Introduction: Definitions for Terrorism and Combating Terrorism 12

    The Threat of Terrorism Overseas 15 Terrorism Overseas

    The Federal Government*s Role and Resources for Combating and the Federal

    Terrorism Overseas 30 Government*s Role

    Objectives, Scope, and Methodology 34 Chapter 2

    38 The Interagency

    Policies, Plans, and Legislation 38 Roles and Responsibilities of Key
    Federal Agencies 52 Framework for

    Interagency Coordination Mechanisms 60 Combating Terrorism

    Agency Comments and Our Evaluation 64 Overseas

    Chapter 3 66

    Federal Efforts to Intelligence Gathering and Analysis Help Detect
    Terrorist Activities 66

    Detect and Prevent Protecting U. S. Government Facilities and Americans
    Abroad 77

    Terrorism Public Diplomacy Builds International Support for

    U. S. Foreign Policy 89 Visa and Border Controls Are Intended to Prevent
    Terrorists and

    Their Materials from Entering the United States 91 Coalition Capabilities
    Are Enhanced through Bilateral Programs

    and Activities 105 Agency Comments and Our Evaluation 127

    Chapter 4 128

    Federal Efforts to Diplomatic Initiatives Strengthen International
    Cooperation 128

    Law Enforcement Efforts to Disrupt Terrorist Organizations 135 Disrupt and
    Destroy

    Identifying and Freezing Terrorists* Financial Assets Disrupts Terrorist
    Organizations Terrorist Organizations 145 Military Operations Provide
    Means to Destroy Terrorist

    Organizations 154 Covert Actions Can Be Used to Disrupt and Destroy
    Terrorist

    Organizations 168 Agency Comments and Our Evaluation 169

    Chapter 5 170

    Federal Efforts to Advance Preparations for Terrorist Incidents 170

    Response to a Terrorist Incident Overseas 173 Respond to Terrorist

    Evaluations in the Aftermath of a Terrorist Incident 182 Incidents
    Overseas

    Agency Comments and Our Evaluation 183 Appendixes

    Appendix I: Matrix of Department of Defense Programs and Activities to
    Combat Terrorism Overseas 184

    Appendix II: Matrix of Department of Homeland Security Programs and
    Activities to Combat Terrorism Overseas 209

    Appendix III: Matrix of Department of Justice Programs and Activities to
    Combat Terrorism Overseas 215

    Appendix IV: Matrix of Department of State Programs and Activities to
    Combat Terrorism Overseas 225

    Appendix V: Matrix of Department of the Treasury Programs and Activities
    to Combat Terrorism Overseas 239

    Appendix VI: United Nations Protocols, Conventions, and Resolutions
    Related to Terrori sm 243

    Appendix VII: Organizations Visited or Contacted 249

    Appendix VIII: Comments from the Department of Defense 253

    Appendix IX: Comments from the U. S. Agency for International Development
    254

    Appendix X: GAO Contacts and Staff Acknowledgments 255

    Related GAO Products 256 Tables Table 1: Fiscal Year 2004 President*s
    Request for Funding to

    Combat Terrorism Domestically and Overseas (Gross Budget Authority) 32
    Table 2: National Strategies Related to Combating Terrorism 43 Table 3:
    Goals and Objectives in the National Strategy for

    Combating Terrorism 49 Table 4: NSC- Sponsored Interagency Working Groups
    Under the

    Counterterrorism Security Group to Coordinate Efforts to Combat Terrorism
    Overseas 61 Table 5: Selected Members of the Interagency Intelligence
    Committee on Terrorism 75

    Table 6: U. S. Nonproliferation Assistance Programs 117 Table 7: Federal
    Agencies* Roles in Investigating Terrorist- Related

    Incidents Overseas 137 Table 8: Reported Extraditions and Renditions of
    Terrorists to the

    United States, 1987- 2001 140 Table 9: Significant Military Contributions
    by Selected Coalition

    Partners in and around Afghanistan in Support of Operation Enduring
    Freedom 164 Table 10: Department of Defense Programs and Activities to
    Combat

    Terrorism Overseas 184 Table 11: Department of Homeland Security Programs
    and Activities

    to Combat Terrorism Overseas 209 Table 12: Department of Justice Programs
    and Activities to Combat Terrorism Overseas 215

    Table 13: Department of State Programs and Activities to Combat Terrorism
    Overseas 225 Table 14: Department of the Treasury Programs and Activities
    to

    Combat Terrorism Overseas 239 Table 15: UN Conventions and Protocols
    Related to Terrorism 243 Table 16: UN Security Council Resolutions Related
    to Terrorism 244 Table 17: UN General Assembly Resolutions Related to
    Terrorism 246

    Figures Figure 1: The Pentagon in Flames Moments after International
    Terrorists Crash a Hijacked Aircraft into the Building on

    September 11, 2001 14 Figure 2: Total International Terrorist Attacks,
    1981- 2001 17

    Figure 3: Types of International Terrorist Attacks Against Americans by
    Percentage, 1988- 2001 18 Figure 4: Terrorist Attacks Against U. S.
    Targets during 2001 by

    Type of Targets Attacked 20 Figure 5: Terrorist Attacks Against U. S.
    Targets during 2001 by

    Region 21 Figure 6: Aftermath of the al Qaeda Terrorist Bombing of the U.
    S.

    Embassy in Dar es- Salaam, Tanzania, in August 1998 23 Figure 7:
    Relationships Between and Among National Strategies

    Related to Combating Terrorism Overseas 47 Figure 8: Host Nation Police
    Use Buses to Cordon off a U. S.

    Embassy during a Heightened Threat Period 81 Figure 9: 2nd Company,
    Georgian Commando Battalion, Perform a

    Combat Off Load With Members of the U. S. Army*s 10th Special Forces Group
    (Airborne) at a Training Range at Krtsanisi, Republic of Georgia 124
    Figure 10: U. S. Special Forces Soldier Shows a Filipino Soldier How

    to Adjust the Sights on His M- 16 Rifle during Marksmanship Training in
    Tipo- Tipo Town, Basilan Island, Philippines 125 Figure 11: UN Security
    Council Unanimously Adopts Resolution

    1373, Calling for Wide- Ranging International Cooperation to Combat
    Terrorism 132 Figure 12: Air Force B- 52H Bomber Drops a Load of M117 750
    lb.

    Bombs 157 Figure 13: U. S. Special Forces Troops Riding Horseback in

    Afghanistan With Members of the Northern Alliance during Operation
    Enduring Freedom 158 Figure 14: British Troops Prepare to Board an Oil
    Tanker as Part of the Coalition*s Maritime Interception Operations in the

    Arabian Sea 160 Figure 15: Camp X- Ray Used as a Temporary Holding
    Facility for

    Detainees Held at U. S. Naval Air Station Guantanamo Bay, Cuba 162 Figure
    16: NATO Member France Provided Six Mirage 2000 Aircraft

    to Fly Reconnaissance Missions in Support of Operation Enduring Freedom
    166 Figure 17: USS Cole Damaged by a Terrorist Bomb Explosion While

    Refueling at the Port of Aden, Yemen 176 Figure 18: Federal Response Teams
    That Could Respond to a

    Weapons of Mass Destruction Incident Overseas 181

    Abbreviations

    ATF Bureau of Alcohol, Tobacco, Firearms and Explosives CIA Central
    Intelligence Agency CLASS Consular Lookout and Support System DARPA
    Defense Advanced Research Projects Agency DOD Department of Defense DOE
    Department of Energy FARC Fuerzas Armadas Revolucionarias de Colombia

    (Revolutionary Armed Forces of Colombia) FBI Federal Bureau of
    Investigation FEMA Federal Emergency Management Agency FEST Foreign
    Emergency Support Team FinCEN Financial Crimes Enforcement Network FISA
    Foreign Intelligence Surveillance Act FLETC Federal Law Enforcement
    Training Center G- 8 Group of Eight GAO U. S. General Accounting Office
    ICITAP International Criminal Investigative Training

    Assistance Program ILEA International Law Enforcement Academy INS
    Immigration and Naturalization Service INTERPOL International Police
    Organization NATO North Atlantic Treaty Organization NSC National Security
    Council OMB Office of Management and Budget OPDAT Overseas Prosecutorial
    Development, Assistance and Training

    USAID U. S. Agency for International Development USA PATRIOT Uniting and
    Strengthening America by Providing Appropriate Tools Required to Intercept
    and Obstruct Terrorism

    PDD Presidential Decision Directive RDT& E research, development, test,
    and evaluation UN United Nations WMD weapons of mass destruction

    This is a work of the U. S. Government and is not subject to copyright
    protection in the United States. It may be reproduced and distributed in
    its entirety without further permission from GAO. It may contain
    copyrighted graphics, images or other materials. Permission from the
    copyright holder may be necessary should you wish to reproduce copyrighted
    materials separately from GAO*s product.

    May 23, 2003 Trans Let mi er t al t t The Honorable Henry J. Hyde Chairman
    The Honorable Tom Lantos Ranking Member Committee on International
    Relations House of Representatives

    The Honorable Christopher Shays Chairman Subcommittee on National
    Security, Emerging Threats, and International Relations Committee on
    Government Reform House of Representatives Coordination of federal
    programs to combat terrorism overseas became even more critical as a
    result of the terrorist attacks against the United States on September 11,
    2001. In response to these attacks, the federal

    government has taken unprecedented political, diplomatic, legal, law
    enforcement, financial, military, and intelligence actions to combat
    terrorism abroad. Among these actions is the publication of a series of
    new national strategies to combat terrorism.

    You asked that we develop baseline information identifying and describing
    federal programs and activities to combat terrorism overseas. As agreed
    with your offices, this report describes the interagency framework and
    policies for planning and coordinating federal efforts to counter
    international terrorism. It identifies the relationships between and among
    the new national strategies to combat terrorism. It also describes the
    federal programs and activities governmentwide to detect and prevent
    terrorism, disrupt and destroy terrorist organizations, and respond to
    terrorist incidents overseas. Finally, it provides detailed matrices of
    selected departments* programs and activities to combat terrorism
    overseas. We briefed your staffs previously on the preliminary results of
    our work and, at your request, issued an interim report on Combating
    Terrorism: Department of State Programs to Combat Terrorism Abroad (GAO-
    02- 1021, Sept. 6, 2002). This report contains the final results of

    our review. The scope of this report was on combating terrorism overseas
    and did not include a comprehensive review of homeland security efforts
    within the

    United States or federal agencies* efforts to combat terrorism
    domestically. However, for this report, we did perform limited work on
    border security, where homeland security and overseas efforts overlap.
    Also, we included certain efforts to combat terrorism overseas that
    actually occur within the

    United States, such as interagency coordination, intelligence analysis,
    and law enforcement investigations and prosecutions. Further, our analysis
    was performed before the Department of Homeland Security began operations
    in January 2003. Thus, many of the agencies, bureaus, offices, and federal
    response teams discussed in this report had not yet transferred to the new
    department from the Departments of Health and Human Services, Justice,
    Transportation, and the Treasury.

    Because of the large number of federal agencies and wide spectrum of
    efforts involved in combating terrorism overseas, this *landscape* report
    describes the governmentwide framework and programs and activities rather
    than evaluating their effectiveness. Therefore, this report contains no
    recommendations. We recognize that the effectiveness of the new strategies
    and related programs that we describe will only be determined through time
    as they are implemented. Some of our recent work on combating terrorism
    indicates there are many implementation challenges and we have designated
    some of these programs as high risk. Where we have done evaluative work on
    relevant programs, we have identified the

    appropriate GAO products and summarized their results in footnotes. In
    addition, we include a comprehensive list of related GAO products at the
    back of this report.

    We are sending copies of this report to other interested congressional
    committees. We also are sending copies to the Secretaries of Defense,
    Energy, Homeland Security, State, Transportation, and the Treasury; and

    the Attorney General. In addition, we are sending copies to the Director,
    U. S. Agency for International Development; the Director of Central
    Intelligence; the Assistant to the President for National Security
    Affairs; the Director, Office of Homeland Security; and the Director,
    Office of Management and Budget. We will make copies available to other
    interested parties upon request. This report also will be available on
    GAO*s Web site at http:// www. gao. gov.

    If you or your offices have any questions about matters discussed in this
    report, please contact me at (202) 512- 6020 or by e- mail at deckerrj@
    gao. gov. Contacts and key contributors are listed in appendix X.

    Raymond J. Decker, Director Defense Capabilities and Management

    Executive Summary Purpose In response to the terrorist attacks of
    September 11, 2001, the federal

    government has taken unprecedented political, diplomatic, legal, law
    enforcement, financial, intelligence, and military actions to combat
    terrorism abroad. Combating terrorism is now at the top of the national
    security agenda, and many changes have occurred in the government*s
    organization and strategies related to these matters. GAO was requested to

    produce this report to assist congressional committees with their
    responsibilities to oversee federal programs to combat terrorism overseas.
    Specifically, this report describes the interagency framework for
    planning, executing, and coordinating related federal efforts. In
    addition, this report identifies and describes the programs and activities
    to detect and prevent terrorist attacks, disrupt and destroy terrorist
    organizations, and respond to terrorist incidents.

    Given the number of federal agencies and the wide spectrum of activities
    involved in combating terrorism overseas, GAO limited its work to
    describing the interagency framework and programs and activities and did
    not evaluate their effectiveness. While there are several new strategies
    to combat terrorism, many of the programs they incorporate are
    longstanding. The strategies by themselves, no matter how cohesive and
    comprehensive, will not ensure an integrated and effective set of programs
    to combat terrorism overseas. The ability to ensure these things will be
    determined through time as the strategies and programs are implemented.
    Some of GAO*s recent work on combating terrorism demonstrates some of the
    challenges ahead.

    Background Although agencies have slightly different definitions,
    terrorism generally is defined as politically motivated violence to coerce
    a government or civilian

    population. Efforts to combat terrorism are further broken down into
    homeland security activities (those that occur domestically) and combating
    terrorism overseas (those that occur abroad)* the topic of this report.
    According to the Central Intelligence Agency, the threat of terrorist
    attacks against U. S. personnel, facilities, and interests overseas is
    greater now than ever before. Terrorists attacking the United States
    employ a variety of tactics, target a number of different interests, and
    strike in regions throughout the world. The federal government*s role in
    combating terrorism overseas includes political, diplomatic, legal, law
    enforcement, financial, military, and intelligence efforts. Funding for
    combating terrorism overseas has increased about 133 percent, growing from
    $4. 9 billion in fiscal year 2001 to $11.4 billion requested in fiscal
    year 2004.

    In addition, DOD has spent about $30 billion on military operations
    overseas against terrorism in the period roughly equivalent to fiscal year
    2002.

    Results in Brief Combating terrorism overseas falls under an interagency
    framework of plans, agency roles, and interagency coordination mechanisms.
    In general,

    the National Security Council manages this interagency framework. The
    President, National Security Council, and federal agencies have published
    a series of related directives and new national strategies to guide
    federal efforts. To implement the directives and strategies, various
    federal agencies are assigned key roles and responsibilities based on
    their core missions.

    Given the number of agencies involved, there are also a number of
    interagency mechanisms to coordinate across agencies in both Washington,
    D. C., and overseas. Within this framework, efforts to combat terrorism
    overseas can generally be divided into programs and activities to (1)
    detect and prevent terrorism, (2) disrupt and destroy terrorist
    organizations, and (3) respond to terrorist incidents.

     Efforts to detect and prevent terrorism include activities to gather
    intelligence on terrorist threats and organizations, protect facilities
    and persons overseas, impact foreign opinion through public diplomacy,
    prevent terrorists and their materials from entering the United States,

    and improve other countries* capabilities.  Efforts to disrupt and
    destroy terrorist organizations can occur in many

    ways, to include diplomacy in both bilateral and multilateral forums; law
    enforcement efforts to investigate, arrest, and prosecute terrorists;
    financial and related measures to eliminate terrorist support; military
    actions to destroy terrorists and regimes that harbor them; and covert
    operations by intelligence agencies.

     Efforts to respond to an international terrorist incident consist of
    advance preparations, managing the crisis and consequences of an attack,
    and reviewing incidents to learn lessons and prevent or mitigate future
    attacks.

    GAO is making no recommendations in this report.

    GAO*s Analysis The Interagency Framework

    The National Security Council and its Director for Combating Terrorism for
    Combating Terrorism

    develop and manage the interagency framework for combating terrorism
    overseas. This framework consists of presidential directives, national
    strategies, and related guidance. For example, the National Security
    Council coordinated the overall National Security Strategy of the United

    States of America, and the Director for Combating Terrorism coordinated
    the National Strategy for Combating Terrorism. There are other
    nationallevel strategies related to combating terrorism. Examples of these
    include the National Strategy for Homeland Security and the National
    Strategy to Combat Weapons of Mass Destruction. The various strategies
    were developed for specific and separate purposes. There is a general
    hierarchy among these overlapping strategies.

    Another key element in the interagency framework for combating terrorism
    overseas is the specific roles played by federal organizations and
    agencies. Some play a coordinating role, others serve a lead role in
    specific areas, and many others have support roles for specific
    activities. Some individual agencies have positions designated within them
    to lead their

    agencies* terrorism- related programs. In addition, individual agencies
    have their own strategic plans or develop interagency plans and related
    guidance for specific functions. For example, the Department of Justice*s
    Strategic Plan for Fiscal Years 2001- 2006 and the Department of State*s
    2002 Annual Performance Plan provide department- specific plans and goals

    related to terrorism. The interagency framework also consists of
    coordinating mechanisms and groups to implement the functions and
    activities among all the federal agencies involved. In Washington, D. C.,
    the National Security Council plays a major coordinating role by
    sponsoring a policy coordinating committee called the Counterterrorism
    Security Group that has several subordinate working groups on such topics
    as interagency exercises and assistance to other countries. At U. S.
    embassies, there are interagency teams that meet to coordinate bilateral
    efforts to combat terrorism. Similarly, regional

    military commands have interagency coordination groups that coordinate
    military operations with non- military tools to combat terrorism.

    Efforts to Detect and Gathering and analyzing intelligence outside of the
    United States are the

    Prevent Terrorism major activities to detect and prevent terrorist
    activities overseas and

    generally are led by the Central Intelligence Agency. Under the overall
    leadership of that agency, U. S. intelligence agencies gather information
    on terrorist organizations, monitor terrorist threats, and share
    information with other nations. The Departments of State, Justice, and
    Defense collect

    and analyze intelligence through surveillance programs and liaisons with
    foreign police. These intelligence activities support other preventative
    efforts, such as protecting U. S. facilities and Americans overseas, and
    visa and border controls.

    Protecting U. S. facilities and Americans overseas is a major part of
    preventing terrorism and is generally led by the Department of State. To
    protect U. S. facilities and personnel abroad, State has programs that

    include facility security, local guard forces, armored vehicles for
    embassy personnel, and Marine Guards to protect sensitive information. The
    Department of Defense has separate programs to protect its military forces
    against terrorist attacks. For American citizens traveling and living
    abroad, the State Department issues public travel warnings and public
    announcements and operates warning systems to convey terrorist- related
    information. State also uses overseas advisory councils* voluntary

    partnerships between State and U. S. businesses* to exchange threat
    information with private companies.

    Improving the image of the United States to support U. S. foreign policy
    is another activity to prevent terrorism. For example, in an attempt to
    reduce possible negative perceptions of the United States and foster
    greater

    understanding of U. S. policy in key international audiences, State
    conducts public diplomacy through various media. Similarly, the
    Broadcasting Board of Governors conducts international broadcasts to
    worldwide audiences to

    help support U. S. strategic interests. Keeping terrorists and their
    materials out of the United States also helps to prevent terrorism. The
    State Department has a role in preventing terrorists from entering the
    United States through its visa programs and related efforts to screen out
    terrorists. Agencies that have recently transferred from various
    departments to the Department of Homeland Security also have a role in
    keeping terrorists and their contraband out of the United States. These
    include the former Immigration and Naturalization Service, the U. S.
    Border Patrol, the former U. S. Customs Service, and the U. S. Coast
    Guard, which monitor the border at and between ports of entry.

    Improving other countries* capabilities is another part of preventing
    terrorism and is generally led by the Department of State. The department
    has overall leadership of bilateral relations, including programs to
    assist foreign nations. Such programs consist of training, equipment, and
    other assistance to improve foreign police and military capabilities.
    While the State Department has the overall lead, many of these assistance
    programs are implemented in conjunction with the Departments of Defense,
    Homeland Security, Justice, Energy, and the Treasury. One example is the
    Antiterrorism Assistance program, which is managed by State, but the

    training might be delivered by other agencies, such as the Federal Bureau
    of Investigation or the U. S. Secret Service. These assistance efforts not
    only help to prevent terrorist attacks, they can improve the capabilities
    of other

    countries to disrupt and destroy terrorists and to respond to terrorist
    incidents.

    Efforts to Disrupt and Diplomacy and cooperation with other countries, led
    by the Department of Destroy Terrorist

    State, enables that department and other federal agencies to undertake a
    Organizations

    number of efforts to combat terrorism. State manages bilateral and
    multilateral relationships to leverage opportunities for cooperation among
    traditional and emerging allies. At the bilateral level, State helps

    orchestrate other nations* support and assistance for U. S. law
    enforcement activities, financial operations, and military actions against
    terrorists. At the multilateral level, State leads U. S. efforts in the
    United Nations and in other international forums to combat terrorism. For
    example, State has introduced and coordinated the passage of several
    related United Nations Security Council Resolutions to combat terrorism.

    Law enforcement efforts are also a key activity to disrupt and destroy
    terrorist organizations and generally are led by the Department of Justice
    and its Federal Bureau of Investigation. These include efforts, in
    conjunction with other nations, to investigate terrorist incidents, make
    arrests, arrange for the return of suspects to the United States, and

    prosecute alleged terrorists. In such investigations, the Departments of
    State and the Treasury and other law enforcement agencies support the
    Department of Justice.

    Taking action against the financial structure of terrorist organizations
    also plays a key role in disrupting and destroying the organizations and
    preventing future attacks. Numerous components of the Departments of
    State, the Treasury, Homeland Security, Justice, and other agencies

    participate in efforts to combat terrorist financing. Activities include

    blocking or freezing assets of designated individuals and organizations
    linked to terrorism and conducting investigations aimed at identifying,
    tracing, and freezing assets tied to terrorist organizations.

    Military operations are important in disrupting and destroying terrorist
    organizations and generally are led by the Department of Defense with
    support at the multilateral level provided by the Department of State.
    Operations in Afghanistan bluntly illustrate the devastating nature of

    military efforts to attack terrorist organizations. Many of the military
    operations are conducted or coordinated with foreign militaries.

    Another means of disrupting and destroying terrorists is to strike
    secretly at terrorists through covert action, approved by the President
    and led by the Central Intelligence Agency.

    Efforts to Respond to The federal government takes many advance
    preparations in anticipation Terrorist Incidents

    of a terrorist attack. For example, each diplomatic post has an Emergency
    Action Committee and Emergency Action Plan. The committees are required to
    exercise these plans periodically. To improve the governmentwide responses
    to a terrorist incident, a number of federal agencies participate in an
    interagency exercise program.

    Federal efforts to respond to terrorist incidents are organized along a
    lead agency concept. The State Department is the lead agency for
    responding to the crisis and managing the consequences of a terrorist
    incident overseas. In this role, State is responsible for marshaling all
    federal assets necessary to respond. The U. S. ambassador would be the on-
    scene coordinator for the U. S. response in the foreign nation, as was
    done, for example, after the U. S. embassy bombing in Nairobi, Kenya. The
    State Department, with the concurrence of the National Security Council,
    can lead a rapidly deployable interagency advisory group called the
    Foreign Emergency Support Team.

    As part of the response to an incident, the Department of Justice, through
    the Federal Bureau of Investigation, would lead U. S. law enforcement
    investigations in conjunction with local police in the immediate aftermath
    of a terrorist incident overseas. Other federal law enforcement agencies*
    such as the Bureau of Alcohol, Tobacco, Firearms and Explosives and the
    State Department*s Bureau of Diplomatic Security* have expertise to assist
    in investigations at the scene of an overseas attack.

    Depending on the nature of the threat or incident, other federal agencies
    may be called upon to support State in managing the consequences of a
    terrorist attack. For example, the Department of State may request that
    the Department of Defense provide military support as part of the U. S.
    government*s efforts to assist in mitigating the consequences of a
    terrorist incident overseas. The Department of State also may request U.
    S. military support for the evacuation of embassy staff and other
    Americans, should that be necessary in the aftermath of a terrorist
    incident. Many of State Department*s efforts for managing the consequences
    of a terrorist attack have focused on incidents involving weapons of mass
    destruction* those involving chemical, biological, radiological, and
    nuclear materials. Several federal agencies could assist the State
    Department in responding to

    such an incident. For example, the Department of Energy has a Nuclear
    Emergency Search Team to provide technical expertise in resolving a
    nuclear or radiological terrorist incident.

    After a terrorist incident overseas, the Departments of State and Defense
    generally conduct reviews of the incident, which identify actions to
    prevent or mitigate future attacks. Examples of these include State*s
    Accountability Review Boards for the 1998 bombings of two U. S. embassies
    in East Africa and Defense*s Task Force on the 1996 bombing of the al-
    Khobar Towers

    military housing facility in Saudi Arabia. Agency Comments and

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

    2003 for their review and comment. Such agencies included the Executive
    Office of the President (including the National Security Council, the
    Office of Homeland Security, and the Office of Management and Budget); the
    Departments of Defense, Energy, Homeland Security, Justice, State,
    Transportation, and the Treasury; the Central Intelligence Agency; and the
    U. S. Agency for International Development.

    The Department of Defense and the U. S. Agency for International
    Development provided written comments on a draft of this report. These
    comments generally agreed with the accuracy of the report and they are
    reproduced in appendixes VIII and IX, respectively. In addition, these
    agencies provided technical comments, and we made revisions, as
    appropriate. We also received technical comments from the Office of
    Management and Budget; the Departments of Justice and State; Bureau of
    Alcohol, Tobacco, Firearms and Explosives; the U. S. Secret Service; and
    the Bureau for Immigration and Customs Enforcement. We made changes, as
    appropriate, based upon these written and oral technical comments.

    Our draft report reflected efforts to combat terrorism overseas just prior
    to the transfer of certain agencies and functions to the new Department of
    Homeland Security in March 2003. Therefore, many of the technical comments
    concerned the creation of the new department and the transfer of these
    agencies and functions from other departments into the Department of
    Homeland Security. The Departments of Energy, Homeland Security,
    Transportation, and the Treasury and the CIA had no comments on a draft of
    this report.

    Introduction: Terrorism Overseas and the

    Chapt 1 er Federal Government*s Role Terrorism generally is defined as
    politically motivated violence to coerce a government or civilian
    population. Within that definition, there is domestic terrorism and
    international terrorism, depending on the origin of terrorist groups,
    where they launch their attacks, and who their victims are. Efforts to
    combat terrorism are further broken down into homeland security activities
    (those that occur domestically) and combating terrorism overseas (those
    that occur abroad). 1 According to the Central Intelligence Agency (CIA),
    the threat of terrorist attacks against U. S. personnel, facilities, and
    interests overseas is greater now than ever before. Terrorists capable of
    attacking the United States can employ a variety of tactics, can hit a
    number of different targets, and can strike in regions throughout the
    world. Terrorism overseas is aggravated by a series of interrelated
    factors and trends, such as technological advances and alliances with
    international crime. The federal government*s role in combating terrorism
    overseas includes political, diplomatic, legal, law enforcement,
    financial, military, and intelligence efforts. Immediately after the 2001
    terrorist attacks, the

    Congress passed and the President signed into law an emergency
    supplemental appropriation that increased funding to combat terrorism
    overseas by at least $2 billion in fiscal year 2002. Funding for combating
    terrorism overseas has increased about 133 percent, growing from $4. 9
    billion in fiscal year 2001 to $11.4 billion requested in fiscal year
    2004. In addition, the Department of Defense (DOD) has spent about $30
    billion on military operations against terrorism in the period roughly
    equivalent to fiscal year 2002.

    Definitions for *Terrorism* generally is defined as politically motivated
    violence to coerce Terrorism and

    a government or civilian population. However, no single definition of
    terrorism has gained universal acceptance by the U. S. government and
    Combating Terrorism

    federal agencies* definitions of terrorism vary somewhat based on their
    functional roles and missions. For example, the Department of State and
    the CIA define terrorism as *premeditated, politically motivated violence
    perpetrated against noncombatant targets by sub- national groups or

    1 In this report, we refer to programs outside of the United States as
    combating terrorism

    overseas. This term is consistent with how the Executive Office of the
    President defines terrorism- related programs to distinguish them from
    programs inside the United States* also known as homeland security
    programs. For the purposes of this report, we use the terms *overseas* and
    *abroad* interchangeably to refer to programs and activities that occur
    outside of the United States.

    clandestine agents.* 2 The Federal Bureau of Investigation (FBI) defines
    it more broadly as *the unlawful use of force and violence against persons
    or property to intimidate or coerce a government, the civilian population,
    or any segment thereof, in furtherance of political or social objectives.*
    3 The FBI definition reflects its mission, identifying a terrorist
    incident as a violation of the criminal laws of the United States and a
    suspected terrorist would, therefore, be subject to arrest and
    prosecution. Finally, DOD defines terrorism as *the calculated use of
    violence or the threat of violence to inculcate fear; intended to coerce
    or try to intimidate governments or societies in the pursuit of goals that
    are generally political, religious, or

    ideological.* 4 DOD*s definition of terrorism subsumes both definitions
    used by the Department of State and the FBI. This definition was carefully
    crafted to distinguish between terrorism and other kinds of violence.

    Within the definition of terrorism, there is *domestic terrorism* and
    *international terrorism,* depending on the origin of terrorist groups,
    where they launch their attacks, and who their victims are. The FBI
    defines domestic terrorism as the unlawful use, or threatened use, of
    force or violence by a terrorist group or individual based and operating
    entirely within the United States or its territories without foreign
    direction. The 1995 bombing of the Alfred P. Murrah Federal Building in
    Oklahoma City, for example, was an act of domestic terrorism. The State
    Department and the CIA define international terrorism as terrorism
    involving citizens or the territory of more than one country.
    International terrorist acts can occur either inside or outside of the
    United States and may transcend national boundaries in terms of the means
    by which they are accomplished, the persons they intend to coerce or
    intimidate, or the locale in which the

    perpetrators operate or seek asylum. The 2001 coordinated terrorist
    attacks against the World Trade Center in New York City and the Pentagon
    in Washington, D. C., for example, were acts of international terrorism.
    Although the attacks occurred within the United States, the perpetrators
    came from other countries and many of the World Trade Center victims

    2 This definition is derived from 22 U. S. C. S: 2656f( d) (2002).
    *Noncombatant* includes not only civilians, but also military personnel
    who, at the time of the incident, are unarmed and/ or are not on duty.
    State also considers as acts of terrorism attacks on U. S. military
    installations or on armed military personnel when a state of military
    hostilities does not exist at the incident site, such as terrorist
    bombings against U. S. military facilities. Since 1983, the U. S.
    government has used this definition for statistical and analytical
    purposes.

    3 This definition is derived from 28 C. F. R. S: 0.85 (2002). 4 DOD
    Directive 2000.12, DOD Antiterrorism/ Force Protection Program, Apr. 13,
    1999.

    were foreign nationals. Figure 1 shows the aftermath of an international
    terrorist attack within the United States.

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

    *Combating terrorism* refers to the full range of policies, strategies,
    programs, and activities to counter terrorism both at home and abroad. The
    distinction between *homeland security* and *combating terrorism overseas*
    is based on where federal efforts to combat terrorism occur. Federal
    programs and activities directed against terrorism within the United
    States are considered homeland security, which is defined by the

    federal government as *a concerted national effort to prevent terrorist
    attacks within the United States, reduce America*s vulnerability to

    terrorism, and minimize the damage and recover from attacks that do
    occur.* 5 This is a new term, used since the terrorist attacks on
    September 11, 2001. In contrast, federal programs and activities directed

    against terrorism outside of the United States are considered combating
    terrorism overseas, which is the subject of this report.

    Finally, within the term combating terrorism, some federal agencies make a
    further distinction between *antiterrorism* and *counterterrorism* to
    describe their programs and activities within the context of their
    functional roles and missions. Antiterrorism generally refers to defensive
    measures. The Department of State, for example, uses *antiterrorism* in
    the context of law enforcement training, border security, critical
    infrastructure protection, and embassy security. DOD uses the term
    *antiterrorism* to mean the defensive measures, including force
    protection, taken to reduce the vulnerability of individuals and property
    to terrorist acts. DOD uses the term *counterterrorism* to mean offensive
    measures taken to prevent, deter, and respond to terrorism. The FBI,
    meanwhile, uses the term *counterterrorism* to refer to the full range of
    its activities directed against terrorism, including preventive measures,
    incident response, and investigative efforts. Finally, OMB tracks funding
    to combat terrorism overseas, but does not include direct military
    operations in the figures it reports.

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

    Terrorism Overseas United States. The number of terrorist attacks against
    U. S. citizens,

    facilities, and interests overseas has declined in recent years, but the
    lethality of the attacks has increased. Although terrorists use many
    different tactics and methods to attack Americans, bombings are the
    predominant type of attack in recent years. While the threat to Americans
    varies by region, type of event, and targets attacked, bombing of U. S.
    businesses in Latin America constituted the majority of attacks in 2001.
    Also, international terrorism is aggravated by a series of interrelated
    factors, such as globalization, technological advances, and troubling
    trends that include, for example, a shift in terrorists* tactics and the
    use of unconventional weapons.

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

    Terrorist Organizations Use According to the CIA, the threat of terrorist
    attacks against U. S. personnel, Variety of Tactics to Attack

    facilities, and interests overseas is greater now than ever before because
    of American Targets

    the number and types of terrorist organizations, the lethality of
    terrorists* Worldwide

    tactics, and the ability of terrorists to operate worldwide. Terrorist
    organizations that threaten U. S. personnel, facilities, and interests at
    home and abroad come primarily from organized groups that have political,
    ethnic, or religious agendas; from state sponsors of terrorist
    organizations;

    and from transnational groups with broader goals. Islamic terrorist
    groups, which have become a growing threat in recent years, tend to be
    loosely organized, recruit their membership from many different countries,
    and obtain support from an informal international network.

    Number and Lethality of Attacks Worldwide, the number of international
    terrorist attacks has declined in recent years compared to the mid- 1980s.
    However, the level of violence and lethality of such attacks have
    increased. According to the Department of State, the number of
    international terrorist attacks peaked at 666 incidents in 1987 and had
    declined to 348 in 2001. Yet, casualties resulting from

    international terrorist attacks during 2001 were the highest ever
    recorded* 3,572 persons killed and 1,083 injured. Figure 2 shows the total
    number of international terrorist attacks over a 21- year period (1981-
    2001).

    Figure 2: Total International Terrorist Attacks, 1981- 2001

    The terrorist attacks against the United States on September 11, 2001,
    represented the most lethal international terrorist attack ever. Three of
    four separate, but coordinated aircraft hijackings, carried out by the al
    Qaeda terrorist network, deliberately destroyed predetermined targets that
    represented America*s political, economic, and military strength. (The
    fourth hijacked aircraft crashed in Pennsylvania apparently as a result of
    the passengers overpowering the terrorists, thus preventing the aircraft
    from being used as a missile in the terrorists* plan.) According to
    State*s Office of International Information Programs, a total of 3,057
    people were killed in these four incidents. 6 Citizens representing 78
    different countries perished at the World Trade Center site. These events
    clearly demonstrated not only the lethality, but also the global reach of
    a terrorist organization 6 This figure includes 2,666 persons killed in
    the coordinated terrorist attacks on

    September 11, 2001, against the World Trade Center Towers in New York
    City, 125 killed in the Pentagon, 92 killed aboard American Airlines
    flight 11 that crashed into the North Tower of the World Trade Center, 65
    killed aboard United Airlines flight 175 that crashed into the South Tower
    of the World Trade Center, 64 killed aboard American Airlines flight 77
    that

    crashed into the Pentagon, and 45 killed aboard United Airlines flight 93
    that crashed in rural Pennsylvania.

    beyond any terrorist attack the United States had previously experienced
    at home or abroad.

    Types of Terrorist Attacks Terrorists employ a wide variety of tactics, to
    include violent demonstrations, vandalism, arson, assault, kidnappings,
    ambushes, sniper attacks, murder, and attacks with firearms, grenades,
    rockets, and bombs. However, bombings are the most common type of attack.
    From 1988 to 2001, bombings accounted for 67 percent of all terrorist
    attacks against Americans. Figure 3 shows the different types of
    international terrorist attacks by percentage that were perpetrated
    against Americans over a 14- year period between 1988 and 2001.

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

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

    In recent years, the United States and its interests have been the target
    of several terrorist bombings overseas, to include the June 1996 truck
    bombing of the al- Khobar Towers military housing facility near Dhahran,
    Saudi Arabia; the August 1998 truck bombings of the U. S. embassies in Dar
    es- Salaam, Tanzania, and in Nairobi, Kenya; and the October 2000 ship
    bombing of the guided missile destroyer USS Cole during a refueling stop
    in

    Aden Harbor, Yemen. In 2001 (the most recent year that data is available),
    bombings have become an even more prevalent type of tactic used by
    terrorists against U. S. facilities and interests overseas. Of the 219
    terrorist attacks against U. S. citizens and facilities overseas during
    2001, 207 (or about 95 percent) were carried out by bombing the target.

    Type of Targets Attacked Terrorists attack American businesses most
    frequently. Of the 228 attacks during 2001 against U. S. targets, 204 (or
    more than 89 percent) were against American businesses. U. S. government,
    diplomatic, and military targets tend to be more protected and represent
    hard targets; American businesses, in contrast, are less protected, making
    them soft targets.

    Figure 4 shows the number of terrorist attacks against U. S. citizens,
    facilities, and interests overseas during 2001 by type of target attacked.

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

    Terrorism Varies by Region, Terrorism* both in the number of attacks and
    the nature of the threat* With Most Attacks varies by region. The
    overwhelming number of attacks have occurred in Occurring in Latin America

    Latin America. Of the 219 terrorist attacks against U. S. citizens and
    facilities overseas during 2001, 191 (or 87 percent) were in Latin
    America. Figure 5 shows the number of terrorist attacks against U. S.
    citizens, facilities, and interests overseas during 2001 by region.

    Figure 5: Terrorist Attacks Against U. S. Targets during 2001 by Region

    The following sections summarize, by region, the international threat of
    terrorism to U. S. citizens and personnel; U. S. business, government, and
    military facilities; and U. S. political, economic, and strategic
    interests. This information is based on a review of key documents and
    interviews with officials in the Departments of State and Defense, U. S.
    Central Command, U. S. European Command, U. S. Southern Command, U. S.
    Special

    Operations Command, and the CIA.

    Africa In Africa, terrorism is a persistent and increasing threat to U. S.
    and other countries* personnel, facilities, and interests. Most terrorist
    attacks in Africa, according to the State Department, stem from internal
    civil unrest and spillover from regional wars as African rebel movements
    and opposition groups use terrorist tactics to further their political,
    social, or economic objectives. For example, insurgent groups have used
    terrorist

    tactics and attacked civilians in recent years in the Democratic Republic
    of the Congo, Liberia, and Sierra Leone. In addition, international
    terrorist organizations with Islamic ties, such as al Qaeda and the
    Lebanese Hizballah, have established footholds in Africa and exploit the
    continent*s permissive operating environment to expand and strengthen
    their terrorist networks. The al Qaeda terrorist bombing of the U. S.
    embassies in Kenya and Tanzania in August 1998 demonstrated how vulnerable
    *lower risk* U. S. diplomatic facilities are on the continent compared
    with hardened embassies in the Middle East and elsewhere. Africa*s
    ungoverned areas, porous borders, regional conflicts, lax or non- existent
    financial systems, and the wide availability of weapons all contribute to
    an operating environment where terrorist organizations thrive. Similarly,
    terrorist organizations breed and find sanctuary in Africa*s *failed
    states,* such as Somalia, or those countries with weak central governments
    and poor or nonexistent law enforcement that cannot monitor, let alone
    control, the

    activities of terrorists and their supporters. Terrorists also are using
    the illegal trade in Africa in diamonds both to launder money and to
    finance their operations worldwide. 7 Finally, one African nation* Sudan*
    has been designated by the State Department as one of seven countries
    worldwide that sponsors terrorism. 8 Figure 6 shows the aftermath of the
    1998 terrorist bombing of a U. S. embassy in East Africa.

    7 For more information on the illegal diamond trade, see U. S. General
    Accounting Office,

    International Trade: Critical Issues Remain in Deterring Conflict Diamond
    Trade, GAO02- 678 (Washington, D. C.: June 14, 2002). We reported that the
    nature of diamonds and the operations of the international diamond
    industry create opportunities for illicit trade, including trade in
    conflict diamonds. We also reported that there are considerable

    challenges in establishing a system that will effectively deter this
    trade.

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

    South Asia South Asia currently represents the primary (but by no means
    the only) focus of terrorism directed against the United States. Terrorist
    organizations, such as al Qaeda, continue to operate and garner support in
    the region. Afghanistan became the first military battleground in the *war
    on terrorism* in October 2001. Afghanistan, for example, had been used by
    Islamic extremists from around the world as a training ground and base of

    operations for their terrorist activities. The al Qaeda leadership used
    Afghanistan as a safe haven to recruit and train terrorists, manage

    8 State sponsors of terrorism are those countries designated by the
    Secretary of State under section 40( d) of the Arms Export Control Act, 22
    U. S. C. S: 2780( d). Moreover, each year, under the provisions of section
    6( j) of the Export Administration Act of 1979, as amended (50 U. S. C. S:
    2405( j)), the Secretary of Commerce, in consultation with the Secretary
    of State, provides the Congress with a list of countries that support
    international terrorism. The Secretary of State may designate a government
    as a state sponsor of terrorism if that government has repeatedly provided
    support for acts of international terrorism, invoking economic sanctions.
    The seven countries currently on the list are Cuba, Iran, Iraq, Libya,
    North Korea, Sudan, and Syria. Various types of sanctions can be imposed
    on a government so designated, as discussed in more detail in chapter 4.

    worldwide fundraising for the terrorist organization, plan terrorist
    operations, and conduct violent anti- American demonstrations to provoke
    extremists in other countries to attack U. S. interests worldwide. These
    activities culminated in the September 11, 2001, coordinated terrorist
    attacks against the United States.

    East Asia In East Asia, trafficking in narcotics, persons, and weapons* as
    well as organized crime and official corruption* are serious international
    crimes that terrorist organizations exploit to finance their operations.
    Southeast Asian terrorist organizations that have cells linked to al Qaeda
    were discovered in 2001 in Malaysia and Singapore and their activities,
    movements, and connections traverse the entire region. Multinational

    terrorist organizations and networks operate throughout the region,
    highlighting the lack of an effective regional counterterrorism mechanism.
    Most terrorist activity in East Asia is related to domestic political
    disputes. However, the Abu Sayyaf Group, an Islamic extremist organization
    in the Philippines, kidnapped two Americans and killed one of them in
    2002. The United States remains concerned about Islamic extremists
    operating in and around western China who have received training,
    equipment, and inspiration from al Qaeda, the Taliban, and others in
    Afghanistan.

    Eurasia In Eurasia, the threat against the United States and its interests
    stems principally from the ongoing threat posed by al Qaeda- linked
    terrorists rather than by the influx of al Qaeda and Taliban fighters
    following coalition operations led by the United States in neighboring
    Afghanistan. The Islamic Movement of Uzbekistan, which is on the U. S.
    foreign terrorist organization list, seeks to overthrow the Uzbek
    government and create an Islamic state. Kazakhstan, Kyrgyzstan,
    Tajikistan, Turkmenistan, and

    Uzbekistan are five of the new U. S. partners in the *war on terrorism*
    and have provided the United States with access to their military
    facilities for U. S. offensive combat operations and/ or humanitarian
    support in Afghanistan. Also of U. S. concern in Eurasia is the linkage
    between

    terrorism and other international crimes (specifically organized crime and
    trafficking in persons and drugs), ethnic separatism, and religious
    extremism. U. S. officials remain concerned about routes through Georgia.
    The international mujahidin with ties to terrorist organizations move

    people, money, and materiel throughout the Caucasus region in support of
    separatist fighters in Chechnya, Russia. Finally, the United States is so
    concerned about the terrorist threat in the region that it has provided
    Georgia with training to help it implement tighter counterterrorism
    controls in the Pankisi Gorge. 9 (Chapter 3 discusses U. S. training to
    improve other countries* capabilities to combat terrorism.)

    Europe In Europe, U. S. diplomatic and military officials remain concerned
    about the terrorist threat to U. S. military and diplomatic facilities and
    personnel. Potential al Qaeda *sleeper cells* in Germany and elsewhere
    continue to pose a threat to U. S. interests. Domestic terrorist
    organizations in a number of countries (such as Greece, Italy, Spain,
    Turkey, and the United Kingdom) continue to function at varying levels of
    effectiveness. A wide- range of groups and individuals use terrorist
    tactics to protest globalization, often directing their demonstrations
    toward U. S. businesses. In the Balkans, according to the Department of
    State, although governments generally are committed to combating
    terrorism, terrorists and Islamic extremist groups have exploited
    inadequate border security and institutional weaknesses to support their
    operations. Also, Middle Eastern nongovernmental organizations identified
    as supporting terrorist activities remain in the Balkans, providing
    assistance to Islamic extremist groups. Terrorists also exploit some
    European countries* liberal asylum laws; open land borders; and weaknesses
    in their investigative, prosecutorial, and procedural

    processes while using these countries as operational staging areas for
    international terrorist attacks. For example, according to the Department
    of State, the theft and forgery of passports in Belgium facilitated
    terrorists* ability to travel freely. State further reported that, while
    in the past, lenient Greek courts reduced sentences of suspected
    terrorists and overturned guilty verdicts of terrorist cases, Greek
    authorities are using new antiterrorism legislation passed in 2002 to more
    successfully prosecute terrorist cases. Greece effectively neutralized its
    most lethal terrorist group, Revolutionary Organization 17 November, in
    June 2002, and 19 suspected members went on trial in March 2003. According
    to the State Department, U. S. and international officials are pleased
    with Greek

    cooperation on security preparations for the 2004 Olympic Summer Games in
    Athens, Greece.

    Latin America In Latin America, the transnational threats of terrorism,
    drugs and arms trafficking, illegal migration, and international organized
    crime are the greatest challenge to U. S. security interests in the
    region. 10 These transnational threats are increasingly linked as they
    share common infrastructure, transit patterns, corrupting means, and
    illicit mechanisms.

    9 The Pankisi Gorge is a region in northern Georgia that Russia accuses
    Georgia of allowing Chechen terrorists (separatist fighters) and the
    international mujahidin to use as a safe haven.

    10 Testimony by General Gary Speer (U. S. Army), Acting Commander- in-
    Chief, U. S. Southern Command, before the Committee on Armed Services, U.
    S. Senate, Mar. 5, 2002.

    International terrorists groups have established support bases in some
    South American countries that sustain their worldwide operations. For
    example, the triborder area where the borders of Argentina, Brazil, and
    Paraguay converge continues to be a safe haven for Hizballah* the
    Lebanese- based terrorist organization* and other terrorist organizations,
    such as HAMAS, where they raise funds to finance their operations through

    criminal enterprises. According to the Department of State, there are
    unconfirmed reports that al Qaeda support cells and sympathizers also are
    scattered throughout Latin America. A Colombian paramilitary organization
    has been added to the list of Foreign Terrorist Organizations, and the
    Revolutionary Armed Forces of Colombia, known as the FARC (Fuerzas Armadas
    Revolucionarias de Colombia), pose a direct threat to U. S. personnel,
    facilities, and interests. Terrorist attacks against Columbia*s energy
    infrastructure (the Cano Limon- Covenas oil pipeline) has a severe

    impact. Even members of the Irish Republican Army were arrested in 2001
    for helping the FARC prepare for an urban terror campaign by providing
    explosives training. Bombings, kidnappings, extortions, and assassinations
    remain the most pervasive terrorism problems in the region. The major
    concern for U. S. officials is the nexus or linkage between the illegal
    narcotics trafficking and terrorism or narco- terrorism. In addition,
    land, maritime, and air smuggling routes and support networks across South
    America, Central America, and the Caribbean once used exclusively by
    criminals trafficking in illegal narcotics and humans are now being used
    by terrorists.

    Middle East In the Middle East, the greatest threat to U. S. interests
    comes from terrorist groups and state- sponsored terrorist organizations.
    Chief among the terrorist groups is Osama bin Laden*s al Qaeda terrorist
    organization. According to the Department of State, Syria and Lebanon
    refuse to recognize Hizballah, HAMAS, the Palestine Islamic Jihad, and
    other

    Palestinian rejectionist groups as terrorist organizations, believing that
    violent activities by these groups represent legitimate resistance. After
    decades of civil war and foreign occupation, Lebanese governmental control
    continues to be weak or non- existent in many areas of the country. 11
    This environment allows for the smuggling of small arms and explosives and
    training activities by terrorist organizations. Financing of terrorist
    organizations remains problematic in the Gulf countries. Joint

    11 According to the State Department, this is not an issue of the Lebanese
    having the capability to enforce its will and choosing not to; it is an
    issue of Lebanese governmental incapacity after decades of Israeli and
    Syrian occupation of Lebanon.

    efforts by the U. S. and Yemeni governments to disrupt and destroy al
    Qaeda elements in Yemen have been only partially successful, and al Qaeda
    nodes still exist in that country. Protecting U. S. citizens and personnel
    and facilities from terrorist attack is a high priority throughout the
    region. In addition, force protection of U. S. forces transiting the Suez
    Canal in Egypt has increased.

    North America In North America, the greatest vulnerability to the United
    States is the porous borders with Canada and Mexico. The lack of adequate
    border security could allow terrorists to enter the United States
    unnoticed or unchallenged to carry out their activities and conduct their
    operations. Another threatening factor facing the United States in North
    America is a

    lack of effective mechanisms by neighboring countries to prevent terrorist
    from financing their operations. In Mexico, for example, new measures
    taken to counter terrorist financing include monitoring financial
    movements, exchanging information on unusual movements of capital, and
    more effective steps to combat money laundering.

    Factors That Aggravate the The increase in the level and severity of
    international terrorism (and other

    Threat of Terrorism international crimes) in recent years can be traced to
    a series of

    interrelated aggravating factors. These factors enable terrorist groups to
    operate more effectively. The factors, as identified by the FBI, are as
    follows. Reduced International Barriers The post- Cold War landscape
    provides terrorists and terrorist organizations

    with opportunities to exploit the advantages of reduced or collapsed
    political and economic barriers to move people, money, information, and
    materiel* including weapons of mass destruction (WMD)* across
    international borders.

    Global Business Networks The globalization of business networks also
    facilitates international terrorism. Like international criminals,
    international terrorists take advantage of global commercial, banking,
    transportation, and communication systems to plan, finance, and carry out
    their operations. Through these networks, terrorists and terrorist
    organizations often plan their operations in third countries, some of
    which provide safe havens.

    Technological Advances Technological advances, particularly in information
    technology and communications, also facilitate terrorist organizations*
    global reach. Terrorists are becoming more sophisticated in their use of
    computer and

    telecommunications technology. For example, there is widespread use of
    cell phones to plan, coordinate, support, and execute terrorist
    operations, making antiterrorism measures challenging. In addition, cyber,
    or computer- based, attacks are a real threat to the nation*s critical
    computersupported

    infrastructures, such as telecommunications, power distribution, financial
    services, national defense, and critical government operations. Terrorist
    organizations also are adept at using technology for counterintelligence
    purposes and for tracking law enforcement activities.

    Weak Law Enforcement Institutional shortcomings in foreign countries
    exacerbate federal efforts

    Institutions to combat the spread of international terrorism (and other
    transnational

    crimes). According to an interagency working group, local police and the
    judicial systems in many countries in which terrorists and terrorist
    organizations operate are ineffective. 12 They lack adequate resources,
    have limited investigative authorities, or are plagued by corruption. The
    working

    group reported that many countries have outdated or even nonexistent laws
    involving extradition, immigration, asset seizure, anti- money laundering,
    computers, and anti- terrorism. According to the interagency working
    group, many countries simply do not have adequate resources, training,
    equipment, expertise, or the political will to carry out complex,
    sustained investigations of international terrorism or to conduct
    counterterrorism operations. Terrorists and terrorist organizations take
    advantage of these institutional limitations and weaknesses to find and
    establish sanctuaries, while governments and law enforcement remain
    constrained by national boundaries.

    Trends in International In recent years, U. S. intelligence agencies have
    identified several important

    Terrorism trends in international terrorism. Some of these trends are the
    result of

    adaptations that terrorist organizations have made in response to the
    aggravating factors discussed above. These trends are as follows:

    12 See International Crime Threat Assessment (Dec. 2000). This global
    assessment was prepared by an interagency working group in support of and
    pursuant to the President's International Crime Control Strategy of the
    United States (The White House, May 1998).

    The interagency working group included representatives from the
    Departments of State, the Treasury, Justice, and Transportation; the CIA;
    the FBI; Drug Enforcement Administration; U. S. Customs Service; U. S.
    Secret Service; Financial Crimes Enforcement Network; National Drug
    Intelligence Center; the Office of National Drug Control Policy; and the
    National Security Council.

    Decline in state- sponsorship of Terrorists have become less dependent on
    sponsorship by sovereign states.

    terrorism State- sponsors in the past had provided terrorists with a safe
    haven and

    political, financial, and logistical support. They provided intelligence,
    planning, and support for terrorist acts and may have had prior knowledge
    of such attacks. However, the threat of sanctions and retaliation have
    reduced the willingness of most states to sponsor terrorism. By the late

    1990s, according to the Director of Central Intelligence, a completely new
    phenomenon had emerged* a terrorist sponsoring a state. The Taliban
    actively aided Osama bin Laden by assigning him guards for security,

    permitting him to build and maintain terrorist camps, and refusing to
    cooperate with efforts by the international community to extradite him. In
    return, bin Laden invested vast amounts of money in Taliban projects and
    provided hundreds of well- trained fighters to help the Taliban
    consolidate and expand its control of Afghanistan. 13

    Move to loosely affiliated groups As dependency on state- sponsored
    terrorism decreases, terrorist groups operating on their own in loosely
    affiliated groups have increased. The resulting transnational and
    decentralized structure facilitates terrorists* avoiding detection. In
    particular, Islamic terrorist groups tend to be loosely organized, recruit
    their membership from many different countries, and obtain support from an
    informal international network of like- minded extremists.

    Use of unconventional weapons Tactics among international terrorists have
    shifted from aircraft hijackings and hostage taking to indiscriminate
    terrorist attacks that yield maximum destruction, casualties, and impact.
    Although the vast majority of terrorist attacks worldwide continue to be
    carried out with conventional weapons, such as firearms and bombs, there
    is a concern among U. S. intelligence community officials about terrorists
    using unconventional weapons, namely weapons of mass destruction to
    include chemical, biological, radiological, or nuclear weapons.

    Alliance with transnational crime There has been a coalescence of
    terrorism and other transnational crimes, which provides terrorists with
    various types of international crime to finance their operations. These
    include, for example, illegal immigration, contraband smuggling, visa
    fraud, piracy, illegal trafficking in human

    13 Written statement for the record by the Director of Central
    Intelligence before a Joint Hearing of the Joint Inquiry Committee of the
    House Select Committee on Intelligence and Senate Select Committee on
    Intelligence, Oct. 17, 2002, p. 5.

    beings, diamond smuggling, and tobacco diversion and associated tax fraud.

    The Federal The federal government*s role in combating terrorism overseas
    involves

    Government*s Role and many diplomatic, law enforcement, financial,
    military, and intelligence

    activities. These roles span numerous departments, agencies, bureaus, and
    Resources for

    offices. In fact, no single government agency possesses the authority,
    Combating responsibility, and capability to effectively detect and prevent
    terrorism,

    Terrorism Overseas disrupt and destroy terrorist organizations, deny
    terrorists safe haven, and

    respond to terrorist incidents abroad. Therefore, the federal government
    combats terrorism overseas simultaneously on many different fronts by
    attempting to coordinate its interagency efforts. The federal government*s
    interagency framework for combating terrorism overseas, including federal
    agencies* roles and responsibilities and how they coordinate with each
    other, is discussed in detail in chapter 2 and other chapters, as
    appropriate. The federal government has dedicated substantial resources to
    combating terrorism overseas.

    Funding of Federal Identifying funding to combat terrorism is inherently
    difficult, but the

    Programs and Activities to Office of Management and Budget (OMB), as
    required by law, has reported

    on these funds annually since 1998. 14 Funding to combat terrorism
    overseas Combat Terrorism Overseas

    only recently has been identified separately from other funding to combat
    terrorism (i. e., domestic spending for homeland security). The funding of
    federal programs and activities to combat terrorism overseas has increased
    dramatically since the terrorist attacks against the United States on
    September 11, 2001. Emergency supplemental appropriations increased

    funding by $2 billion in fiscal year 2002. Funding for combating terrorism
    overseas has increased about 133 percent, growing from $4.9 billion in
    fiscal year 2001 to $11. 4 billion requested in fiscal year 2004. In
    addition to these amounts, DOD has spent about $30 billion on military
    operations against terrorism in the period roughly equivalent to fiscal
    year 2002.

    Funding to Combat Terrorism Is There are inherent challenges in
    identifying federal funding to combat

    Difficult to Identify terrorism. First, numerous federal agencies have
    some role in combating terrorism. Second, the agencies* budgets often
    include both domestic and

    overseas components. Third, there are no separate appropriation accounts
    14 P. L. 105- 85 S: 1051, Nov. 18, 1997, as amended by P. L. 105- 261 S:
    1403, Oct. 17, 1998.

    specifically for combating terrorism and the many activities it entails.
    Fourth, funding for these programs may be in accounts authorized to fund
    programs and activities not specific to combating terrorism.

    As required by law, OMB has issued an annual report to the Congress since
    1998 on federal funding to combat terrorism. This report is to include
    such information as a description of the programs and activities, the
    amounts to be expended, program priorities, and areas of potential
    duplication. 15 The OMB report also has a classified annex providing
    additional detail on DOD and intelligence activity funding. The most
    recent OMB report, issued in June 2002, provides funding and programmatic
    information on 27 federal entities (for example, departments, agencies,
    bureaus, and offices) that have budgeted or spent combating terrorism
    funds. 16 These entities are responsible for the federal government*s
    efforts to combat terrorist activity

    both domestically and overseas, including defense against terrorist
    incidents involving weapons of mass destruction. Funding to Combat
    Terrorism

    In the June 2002 report, OMB for the first time separately identified
    funds Overseas Now Identified

    to combat terrorism domestically (for homeland security) from those to
    Separately

    combat terrorism overseas. In prior reports, both domestic and overseas
    activities were combined. However, as a result of the terrorist attacks on
    September 11, 2001, and the emphasis on domestic protection, OMB included
    a separate, detailed analysis of homeland security* which OMB defined as
    activities to combat terrorism within the United States. For the June 2002
    report, OMB defined *overseas combating terrorism* as

    activities outside of the United States, excluding direct military
    actions, such as the war on terrorism in Afghanistan. Of the $52.74
    billion budget requested to combat terrorism in fiscal year 2004, $11.4
    billion (or 22 percent) was for combating terrorism overseas. The
    remaining $41.35 billion (or 78 percent) was requested for homeland
    security

    activities (gross budget authority). Table 1 shows the President*s fiscal
    15 For an evaluation of OMB*s annual reports, including an assessment of
    their usefulness to the Congress, see U. S. General Accounting Office,
    Combating Terrorism: Funding Data Reported to Congress Should be Improved,
    GAO- 03- 170 (Washington, D. C.: Nov. 26, 2002). We reported on the
    difficulties in coordinating budgets to combat terrorism, limitations to
    OMB*s annual reports, and recommended ways to improve OMB reporting to the
    Congress on programs to combat terrorism.

    16 See 2002 Report to Congress on Combating Terrorism, OMB, June 24, 2002.
    At the time this report was being prepared, OMB had not issued the 2003
    report.

    year 2004 budget request to combat terrorism both domestically and
    overseas.

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

    Dollars in millions

    Total fiscal year 2004 Fiscal year 2004 request for

    Fiscal year 2004 request for request for combating

    homeland security overseas combating

    terrorism (domestic and Department or agency (domestic)

    terrorism overseas)

    Energy $1, 361 $226 $1, 587 Homeland Security 23, 890 a 23, 890 Justice
    2,290 a 2,290 National Security b 6,717 8,455 15, 172 State 811 1,555
    2,366 Tr easury 91 a 91 International assistance programs 0 1,158 1,158
    All other federal agencies 6,187 2 6,189

    Total $41,347 $11, 396 $52, 743

    Source: GAO analysis of OMB data. a The Departments of Homeland Security,
    Justice, and the Treasury have some funds dedicated

    to activities to combat terrorism overseas. However, OMB includes these
    funds as part of homeland security. b National Security combines DOD and
    selected intelligence activities. These figures are combined to

    prevent the disclosure of classified intelligence spending. In addition,
    the amounts do not include direct military action.

    There are several qualifications to the figures reported by OMB. First,
    OMB officials said that there is not always a clear distinction between
    activities to combat terrorism and other related activities, nor between
    domestic activities and overseas activities. The OMB budget examiners must
    make judgment calls about how to characterize the funding. For example,
    some

    combating terrorism missions have multiple purposes and funding for these
    missions is co- mingled in accounts that can cover multiple purposes. OMB
    reports all of DOD*s military and civilian personnel costs associated with
    security as funds to combat terrorism* even if these individuals spend
    some portion of their time on security matters not related to combating
    terrorism. In contrast, OMB does not report the State Department*s public
    diplomacy activities as funds to combat terrorism* even if these
    activities have a major terrorism focus. As another example, OMB*s
    reported figures

    do not capture overseas law enforcement activities from the Departments of
    Homeland Security, Justice, and the Treasury. Examples of these activities
    include customs, legal and financial attaches stationed overseas,

    training and assistance provided to other countries, or these departments*
    support to International Law Enforcement Academies around the world. 17
    OMB includes the funding of such activities along with homeland security

    (domestic) programs of the Departments of Homeland Security, Justice, and
    the Treasury. Finally, as stated earlier, OMB*s reported figures for
    combating terrorism overseas do not include direct military actions, such
    as the war on terrorism in Afghanistan. For the purpose of this report, we
    are including military actions against terrorists as part of combating
    terrorism overseas. OMB has estimated military operations against
    terrorism at $30 billion for the period roughly equivalent to fiscal year
    2002. 18

    Funding to Combat Terrorism In response to the terrorist attacks on the
    United States on September 11,

    Overseas Increased 2001, the Congress appropriated a supplemental $40
    billion to the

    Emergency Response Fund. 19 Of this amount, $12.9 billion was provided for
    combating terrorism, including just over $2 billion for combating
    terrorism overseas. The remaining $28 billion from that emergency
    supplemental

    appropriation was made available to other missions, such as recovery
    efforts at the World Trade Center Towers in New York City and at the
    Pentagon. 20 The President*s Budget requested additional funding for
    federal programs and activities to combat terrorism overseas, which
    increased from about $4.9 billion in fiscal year 2001 to almost $11.4
    billion (or about 133 percent) in the President*s fiscal year 2004 budget
    request. 21 17 More details on these activities are provided in chapters 3
    and 4.

    18 OMB Press Release 2002- 61, Sept. 10, 2002. 19 See 2001 Emergency
    Supplemental Appropriations Act for Recovery from and Response to
    Terrorist Attacks on the United States (P. L. 107- 38), Sept. 18, 2001. 20
    A second supplemental appropriation totaling $29 billion was signed into
    law on August 2, 2002. Of that amount, some $14 billion was allocated to
    DOD, but none of it was for

    combating terrorism overseas, according to OMB. 21 As discussed earlier,
    OMB only began reporting the overseas funding for combating terrorism
    separately from domestic (homeland security) in its June 2002 report to
    the Congress. However, in that report they estimated the overseas funding
    for the previous 2

    years (fiscal years 2001 and 2002).

    While the level of funding for intelligence activities is classified* and
    included with DOD funding to prevent the disclosure of classified data*
    recent unclassified statements by the Director of Central Intelligence
    provide information on the magnitude of increases in intelligence programs
    related to terrorism. 22 According to the Director, intelligence funding
    to combat terrorism tripled between fiscal years 1990 and 1999. The
    Director also said that the percent of the CIA*s budget dedicated to
    combating terrorism increased from less than 4 percent in fiscal year 1994
    to almost 10 percent in fiscal year 2002.

    Objectives, Scope, and Based upon your original requests and in subsequent
    discussions with your

    Methodology offices, our overall objective was to identify and describe
    federal agencies*

    programs and activities to combat terrorism overseas. This report
    discusses  the federal government*s interagency framework to combat
    terrorism overseas (see ch. 2);  federal programs and activities to
    detect and prevent terrorism overseas

    (see ch. 3);  federal programs and activities to disrupt and destroy
    terrorist

    organizations overseas (see ch. 4); and  federal programs and activities
    to respond to terrorist incidents

    overseas (see ch. 5). In addition, the report discusses how federal
    agencies coordinate efforts in Washington, D. C., and at U. S. missions
    and other locations abroad to combat terrorism overseas. Where
    appropriate, it also discusses recent

    changes since the September 11, 2001, terrorist attacks. Information on
    coordination mechanisms and recent changes is discussed throughout the
    report.

    In preparing this report, we limited our scope to developing descriptive
    information rather than conducting evaluations of individual programs and
    activities. This was done, as agreed with our congressional clients,
    because

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

    of the large number of departments, agencies, bureaus, and offices as well
    as the multitude of their programs and activities to combat terrorism
    overseas. Where we have conducted related evaluative work, we have
    identified the appropriate GAO products and their results in footnotes. In
    addition, we include a list of related GAO products at the end of this
    report.

    In addition, to make this report most useful for oversight, we limited our
    discussion in this report to unclassified information.

    The scope of this report included key federal departments and agencies
    with programs and activities to combat terrorism overseas. Review work was
    conducted in Washington, D. C., at the Executive Office of the

    President, including the National Security Council (NSC), Office of
    Homeland Security, and OMB; the Departments of Defense, Energy, Justice,
    State, Transportation, and the Treasury; and at the CIA. We also conducted
    review work at or met overseas with officials from the Bureau of Alcohol,
    Tobacco, Firearms and Explosives (ATF); Defense Intelligence Agency; Drug
    Enforcement Administration; the FBI; Federal Law Enforcement Training
    Center (FLETC); the former Immigration and Naturalization Service (INS);
    USAID; the former U. S. Customs Service; U. S. Coast Guard,

    and the U. S. Secret Service. In addition, fieldwork was conducted at the
    U. S. Central Command, MacDill Air Force Base, Florida; U. S. European
    Command, Patch Barracks, Stuttgart/ Vaihingen, Germany; U. S. Southern
    Command, Miami, Florida; U. S. Special Operations Command, MacDill Air

    Force Base, Florida; U. S. Embassy in Athens, Greece; and at the
    International Law Enforcement Academy (ILEA) in Budapest, Hungary. We
    included information on other departments and activities based on

    previous and ongoing work by GAO. A complete listing of organizations and
    locations visited or contacted is found in appendix VII.

    While our scope was generally limited to combating terrorism overseas, we
    included programs related to border security, which also are considered
    part of homeland security. Also, we included certain efforts to combat
    terrorism overseas that actually occur within the United States, such as
    interagency coordination, intelligence analysis, and law enforcement
    investigations and prosecutions. Our more comprehensive work on homeland
    security is summarized in two recent reports. 23 Most of our

    23 See U. S. General Accounting Office, Major Management Challenges and
    Program Risks: Department of Homeland Security, GAO- 03- 102 (Washington,
    D. C.: Jan. 1, 2003) and U. S. General Accounting Office, Homeland
    Security: Management Challenges Facing Federal Leadership, GAO- 03- 260
    (Washington, D. C.: Dec. 20, 2002).

    analysis for this report was performed before the creation of the
    Department of Homeland Security in December 2002 and its initial
    operations in January 2003. Therefore, when we conducted our review, many
    of the agencies, bureaus, offices, and federal response teams

    discussed in this report had not yet been transferred to the new
    department from the Departments of Health and Human Services, Justice,
    Transportation, and the Treasury.

    For each objective, we interviewed agency officials, reviewed supporting
    programmatic and budgetary documentation, and reviewed prior GAO work.

    To identify and describe the federal government*s interagency framework
    and policies to combat terrorism overseas and how they have changed since
    the terrorist attacks of September 11, 2001, we conducted a qualitative
    analysis of: (1) the current interagency framework and policies for
    combating terrorism overseas; (2) the relationship between and among
    various national strategies to combat terrorism overseas; (3) the roles,
    responsibilities, and management structure of the NSC and its Policy
    Coordinating Committees for international counterterrorism coordination
    and the role of the Office of Homeland Security; (4) the roles,
    responsibilities, and management structure of the lead federal agency
    (Department of State) for crisis and consequence management of terrorist
    incidents overseas and those of support agencies (Departments of Defense,
    Justice, and the Treasury, and the intelligence community); (5)
    legislation

    and agency plans, implementing guidance, concepts of operations, and
    contingency plans; and (6) changes in the interagency framework, policies,
    and implementing guidance since September 11, 2001.

    To identify and describe federal programs and activities to combat
    terrorism overseas, we conducted a qualitative analysis of these efforts
    in the areas of: (1) preventing and detecting terrorism overseas; (2)
    disrupting and destroying terrorist organizations; and (3) responding to a
    terrorist incident overseas. To identify and describe how federal agencies
    coordinate efforts in Washington, D. C., and at U. S. missions abroad to
    combat terrorism overseas, we conducted a qualitative analysis of: (1)
    interagency and agencies* roles and responsibilities; (2) interagency
    management structures, policies, and procedures to coordinate
    international

    counterterrorism at headquarters and at a selected U. S. mission abroad;
    (3) U. S. missions* roles, responsibilities, management structures, and

    procedures to coordinate international counterterrorism with headquarters
    elements; and (4) changes in coordination policies and procedures that
    resulted from the terrorist attacks of September 11, 2001.

    We faced some limitations to our methodology during our review. For
    example, the NSC*s National Strategy for Combating Terrorism was released
    at the end of our review. In addition, agencies* reorganizations and
    creation of the Department of Homeland Security affected the organization,
    management structure, roles and missions, programs, and activities of
    numerous agencies involved in combating terrorism overseas. Funding to
    combat terrorism overseas is not always identified as such and may not be
    broken out neatly into specific functions. Additional terrorismrelated
    funding was appropriated in addition to funds requested in the President*s
    budget, including supplemental appropriations, emergency funding, and
    reprogrammed funding from other accounts. Also, there is not always a
    clear distinction between programs and activities to combat terrorism and
    other transnational crimes, such as money laundering, arms trafficking,
    and piracy. Finally, many DOD and intelligence community*s operations,
    programs, and activities are classified, which limited what we could
    discuss in an unclassified report.

    To mitigate these limitations, we relied on other key NSC policy and
    planning documents and interviews with key officials until the national
    strategy was released. Agencies* reorganization and creation of the
    Department of Homeland Security will have more of an impact on combating
    domestic terrorism than terrorism overseas. OMB requested that agencies
    identify terrorism- related funding and we reviewed that process. We
    gathered information, where available, on funding for programs and
    activities to combat terrorism overseas. Terrorism is one of many
    transnational crimes, which often are used to fund terrorist
    organizations* operations. Where appropriate, we identified the nexus or
    linkage between terrorism and other transnational crimes. Finally, we
    worked with DOD and the CIA to accurately describe the threat and their
    counterterrorism programs and activities in an unclassified manner. Given
    our efforts to mitigate these factors, we do not believe they had a
    material affect on our work.

    We performed our review from December 2001 through March 2003 in
    accordance with generally accepted government auditing standards.

    The Interagency Framework for Combating

    Chapt 2 er Terrorism Overseas The interagency framework for combating
    terrorism overseas consists of policies and plans, agency roles and
    responsibilities, and interagency coordination mechanisms developed and
    managed by the NSC and its Director for Combating Terrorism. The policies
    and plans are articulated in presidential directives, new national
    strategies, annual plans, and operational guidance. These policies and
    plans lay out the roles and responsibilities of individual federal
    agencies that lead or support specific

    functions. In addition, many individual agencies have their own policies
    and plans that direct their own activities to combat terrorism overseas.
    The interagency framework also includes coordinating mechanisms to
    implement combating terrorism functions and activities across federal

    agencies. For example, the NSC* which plays a major coordinating role*
    sponsors a policy coordination committee called the Counterterrorism
    Security Group, which has several subordinate working groups on such
    topics as interagency counterterrorism exercises, and assistance to other
    countries. Overseas, U. S. embassies and regional military commands
    coordinate activities through interagency teams that meet to coordinate
    efforts to combat terrorism across agencies. In addition, interagency

    coordination is facilitated by personnel exchanges and liaisons among
    agencies. The effectiveness of this interagency framework will be
    determined through time as the new strategies and programs are
    implemented.

    Policies, Plans, and U. S. policies and plans for combating terrorism
    overseas have developed

    Legislation over the past 17 years. These policies and plans consist of
    presidential

    directives, national- level strategies, and operational guidance. Various
    laws also address terrorism.

    Subsequent chapters in this report provide details on how agencies are
    implementing and coordinating these policies, plans, and legislation.

    Policies and Plans in Place According to the Department of State, four
    enduring policy principles guide

    before Terrorist Attacks of U. S. strategies to combat terrorism overseas.
    They are as follows:

    September 11, 2001  Make no concessions to terrorists and strike no
    deals.

     Bring terrorists to justice for their crimes.

     Isolate and apply pressure on states that sponsor terrorism to force
    them to change their behavior.

     Bolster the counterterrorist capabilities of those countries that work
    with the United States and require assistance.

    One of the earlier executive- level formalization of counterterrorism
    policy occurred in 1986 under National Security Decision Directive 207.
    This directive was in response to several terrorist attacks on U. S.
    facilities and interests overseas in the early 1980s, and focused
    primarily on responding to terrorism abroad. It designated the Department
    of State as the lead agency for dealing with overseas terrorist incidents,
    and designated the FBI as the lead agency for handling domestic terrorist
    incidents, unless otherwise specified by the Attorney General. It also set
    up an interagency working group on counterterrorism to coordinate efforts
    across the different agencies.

    The next major presidential directive on terrorism occurred in 1995 under
    Presidential Decision Directive (PDD) 39. Following the terrorist bombing
    of a federal building in Oklahoma City, this directive had a more domestic
    focus, outlining measures to be undertaken by federal agencies to reduce
    domestic vulnerabilities to terrorism, deter and respond to terrorist
    acts,

    and develop capabilities to effectively manage the consequences of a
    terrorist attack. The directive designated the Federal Emergency
    Management Agency (FEMA) as the lead agency for managing the

    consequences of a terrorist incident within the United States. This
    directive also detailed the responsibilities of other agencies expected to
    provide support when requested by the lead agencies.

    Counterterrorism policy was further developed in 1998 through PDDs 62 and
    63. PDD 62 further clarified agency roles and responsibilities in
    terrorism prevention, terrorist apprehension and prosecution,
    transportation security, and protection of critical infrastructure. PDD 63
    established critical infrastructure protection as a national goal and

    described a strategy for cooperative efforts by government and the private
    sector to protect the physical and cyber- based systems essential to the
    minimum operations of the government and economy* such as
    telecommunications, power distribution, financial services, national
    defense, and critical government operations* from physical and cyber

    attacks. To help manage these issues, these directives established a
    National Coordinator for Security, Infrastructure Protection, and
    Counterterrorism. This Coordinator was meant to coordinate relevant

    agency programs and activities on behalf of the NSC, as well as take the
    lead in providing guidelines for interagency operations.

    The previous administration issued a federal strategy for combating
    terrorism in 1998* the Attorney General*s Five- Year Interagency
    Counterterrorism and Technology Crime Plan. 1 The Congress mandated this
    plan, which was intended to serve as a baseline strategy for coordination
    of national policy and operational capabilities to combat terrorism both
    at home and abroad. 2 It identified several high- level counterterrorism
    goals and described the specific tasks of federal agencies in responding
    to terrorist incidents. Although primarily domestic in focus, one of the
    plan*s five major goals was to facilitate greater international
    cooperation to combat terrorism. The Department of Justice issued annual
    updates to the Five- Year Plan in 1999 and 2000, which did not revise the
    basic plan but tracked agencies* progress in implementing the original
    plan. Justice Department officials told us they are no longer providing
    annual updates because other interagency plans (discussed later in this
    chapter) have been released.

    Operational guidance on combating terrorism overseas (i. e., specific
    agency roles and actions in a crisis) was drafted in 1996 by the
    Department of State. This guidance, known as the International Guidelines,
    outlines procedures for deploying emergency support teams and otherwise
    coordinating federal operations overseas. Although the NSC did not
    formally approve the International Guidelines until January 2001, agencies
    had used them in draft form since 1996. Our previous examination of
    operations to combat terrorism overseas found that agencies generally
    followed the draft International Guidelines when performing their

    1 Another earlier and related plan was the International Crime Control
    Strategy, released in May 1998. While not specific to terrorism, this plan
    had 8 overarching goals and 30 implementing objectives related to
    international crime. For more information, see U. S. General Accounting
    Office, International Crime Control: Sustained Executive- Level
    Coordination of Federal Response Needed, GAO- 01- 629 (Washington, D. C.:
    Aug. 13, 2001).

    2 Conference Committee Report (House Report 105- 405), Nov. 13, 1997,
    accompanying the Fiscal Year 1998 Appropriations Act for the Departments
    of Commerce, Justice, and State, the Judiciary, and Related Agencies (P.
    L. 105- 119), Nov. 26, 1997.

    respective roles in diplomacy, law enforcement, military planning, and
    intelligence gathering. 3

    Current Policies and Many federal policies and plans changed in the
    aftermath of the

    Plans Include New Areas September 11, 2001, terrorist attacks. There were
    changes in both positions of Responsibility and

    and offices to manage terrorism- related programs, and changes through the
    National Strategies

    publishing of new strategies. New Areas of Responsibilities

    The President divided the responsibilities of the National Coordinator
    Established

    for Security, Infrastructure Protection, and Counterterrorism, created in
    PDD 62, among three new areas of responsibility.  Efforts to combat
    terrorism domestically. Executive Order 13228, dated

    October 8, 2001, created a new Assistant to the President for Homeland
    Security, to head a new Office of Homeland Security responsible for
    coordinating efforts to combat terrorism inside the United States.
    Specific responsibilities included working with departments and

    agencies, state and local governments, and private entities to ensure the
    adequacy of the National Strategy for Homeland Security. The order
    detailed a number of other specific responsibilities for the Office of
    Homeland Security. 4

     Efforts to combat terrorism overseas. National Security Presidential
    Directive 8, dated October 24, 2001, created a National Director for

    3 U. S. General Accounting Office, Combating Terrorism: Issues to Be
    Resolved to Improve Counterterrorism Operations, GAO/ NSIAD- 99- 135
    (Washington, D. C.: May 13, 1999). We reported that with ongoing
    counterterrorism operations, federal agencies had not

    completed interagency guidance and resolved command and control issues.
    Also, key federal agencies did not capture lessons learned for all field
    and tabletop exercises in which they led or participated.

    4 For information on the situation leading up to the creation of this
    position, including GAO*s recommendations that a similar type of focal
    point be established, see U. S. General Accounting Office, Combating
    Terrorism: Selected Challenges and Related Recommendations, GAO- 01- 822
    (Washington, D. C.: Sept. 20, 2001). We reported on (1) the current
    framework for leadership and coordination of federal agencies* efforts to
    combat terrorism, (2) progress the federal government made in developing
    and implementing a national strategy to combat terrorism domestically, (3)
    the federal government*s capabilities to respond to a domestic terrorist
    incident, (4) progress the federal government made in helping state and
    local emergency responders, and (5) progress made in developing and
    implementing a federal strategy for combating cyber- based attacks.

    Combating Terrorism, with responsibilities for activities to combat
    terrorism overseas. The Director is located in the NSC and reports to the
    Assistant to the President for National Security Affairs. Per the
    directive, the Director also serves as the Deputy National Security
    Advisor for Combating Terrorism. The Director chairs a policy coordination
    committee named the Counterterrorism Security Group. While not specified
    in the directive, this group has a number of interagency working groups,
    which are described later in this chapter. The director also reports to
    the Assistant to the President for Homeland

    Security on matters relating to global terrorism inside the United States.
     Efforts to protect critical infrastructure. On February 28, 2003, the

    President signed Executive Order 13286, which maintained *it is the policy
    of the United States to protect against disruption of the operation of
    information systems for critical infrastructure and thereby help to

    protect the people, economy, essential human and government services, and
    national security of the United States, and to ensure that any disruptions
    that occur are infrequent, of minimal duration, and manageable, and cause
    the least damage possible.* 5 It also stated that *implementation of this
    policy includes voluntary public- private partnership, involving corporate
    and nongovernmental organizations.* In addition, Executive Order 13286
    replaced in its entirety Executive Order 13231, 6 thus dissolving the
    President*s Critical Infrastructure Protection Board that was to
    coordinate cyber- related federal efforts and programs associated with
    protecting the nation*s critical infrastructures, and the board*s chair*
    the Special Advisor to the President for Cyberspace Security* and related
    staff.

    Series of New Strategies A series of new national plans were developed and
    published to help guide

    Published U. S. policy. Some of these plans* called national strategies*
    are specific to

    combating terrorism, while others involve terrorism to lesser degrees. The
    strategies most directly addressing terrorism are the National Security
    Strategy of the United States of America, published in September 2002; the
    National Strategy for Homeland Security, published in July 2002; and the

    National Strategy for Combating Terrorism, published in 5 The White House,
    Executive Order 13286* Amendment of Executive Orders, and Other Actions,
    in Connection With the Transfer of Certain Functions to the Secretary of
    Homeland Security (Washington, D. C.: Feb. 28, 2003).

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

    February 2003. Table 2 summarizes the functions of each of the various
    national strategies and how they relate to combating terrorism overseas. 7

    Table 2: National Strategies Related to Combating Terrorism Strategy
    Description of strategy National Security Strategy of the United This
    document provides a broad framework for strengthening U. S. security in
    the future. It

    States of America

    identifies the national security goals of the United States, describes the
    foreign policy and Issued by the President, September 2002

    military capabilities necessary to achieve those goals, evaluates the
    current status of these capabilities, and explains how national power will
    be structured to utilize these capabilities. It devotes a chapter to
    combating terrorism that focuses on the disruption and destruction of
    terrorist organizations, the winning of the *War of Ideas,* the
    strengthening of homeland security, and the fostering of cooperation with
    allies and international organizations to

    combat terrorism.

    National Strategy for Homeland Security

    This document addresses the threat of terrorism within the United States
    by organizing the Issued by the President, July 2002 domestic efforts of
    federal, state, local, and private organizations. Although mostly domestic
    in focus, this strategy mentions various initiatives related to combating
    terrorism overseas,

    including: negotiating new international standards for travel documents,
    improving security for international shipping containers, enhancing
    cooperation with foreign law enforcement agencies, expanding specialized
    training and assistance to allies, and increasing the security of
    transnational infrastructure. The strategy stresses the importance of
    expanding international cooperation in research and development and
    enhancing the coordination of incident response. Finally, the strategy
    recommends reviewing current international treaties and laws to determine
    where improvements could be made.

    National Strategy for Combating Terrorism

    This document elaborates on the terrorism aspects of the National Security
    Strategy of the

    Issued by the President, February 2003 United States of America by
    expounding on the need to destroy terrorist organizations, win the *War of
    Ideas,* and strengthen security at home and abroad. Unlike the National
    Strategy for Homeland Security that focuses on preventing terrorist
    attacks within the United States,

    the National Strategy for Combating Terrorism focuses on identifying and
    defusing threats before they reach the borders of the United States. In
    that sense, although it has defensive elements, this strategy is an
    offensive strategy to complement the defensive National Strategy for
    Homeland Security.

    7 There are additional national strategies that have some discussion of
    terrorism that we have not included. For example, the National Drug
    Control Strategy, issued by the President in February 2003, cites the
    importance of a unified approach to fighting both drugs and terrorism,
    particularly in South America. The 2002 strategy highlighted drug

    revenue as a source of funding for 12 of the 28 international terrorist
    groups identified by the Department of State.

    (Continued From Previous Page)

    Strategy Description of strategy National Military Strategy of the United

    This document sets the strategic direction for all aspects of the U. S.
    Armed Forces. This

    States of America

    includes force structure, acquisition, and doctrine, as well as the
    strategic environment. The Issued by the Chairman of the Joint Chiefs

    1997 strategy notes the rising danger of asymmetric threats, such as
    terrorism. The strategy of Staff, September 1997 stresses the need for the
    military to adapt its doctrine, training, and equipment to ensure a rapid
    and effective joint and interagency response to these threats.

    There is also a more recent Defense Strategy, which was issued by the
    Secretary of Defense in September 2001. This strategy is part of DOD*s
    Quadrennial Defense Review and has relatively little discussion of
    terrorism.

    National Military Strategic Plan for the War

    This document provides a framework to guide the conduct of the *war on
    terrorism* by U. S. on Terrorism

    Armed Forces. It provides specific guidance from which regional
    commanders, the military Issued by the Chairman of the Joint Chiefs

    services, and other agencies can formulate their own individual action
    plans. Individual of Staff, October 2002

    regional commands drafted their own campaign plans in response to this
    plan. For example, one regional command plans to conduct maritime
    interception operations to disrupt terrorists* use of commercial shipping
    to transport people and material.

    National Strategy to Combat Weapons of

    This document presents a national strategy to combat weapons of mass
    destruction through Mass Destruction

    three major efforts: (1) nonproliferation, (2) counterproliferation, and
    (3) consequence Issued by the President, December 2002

    management in WMD incidents. The plan addresses the proliferation of
    weapons of mass destruction among states, as well as the potential threat
    of terrorists using WMD agents.

    National Money Laundering Strategy

    This document presents a national strategy to combat money laundering and
    other financial Issued by the Secretary of the Treasury crimes. The
    strategy sets forth an action plan for how law enforcement, regulatory
    officials, and the Attorney General, July 2002

    the private sector, and the international community could take steps to
    make it harder for criminals to launder money generated from their illegal
    activities. In addition to addressing general criminal financial
    activities, the 2002 strategy presents the government*s plan to attack
    financing networks of terrorist entities. The strategy discusses the need
    to adapt

    traditional methods of combating money laundering to unconventional tools
    used by terrorist organizations to finance their operations.

    National Strategy to Secure Cyberspace

    This document is intended to provide an initial framework for both
    organizing and prioritizing Issued by the President, February 2003 efforts
    to protect our nation*s critical cyber infrastructures. Also, it is to
    provide direction to federal departments and agencies that have roles in
    cyberspace security and to identify

    steps that state and local governments, private companies and
    organizations, and individual Americans can take to improve the nation*s
    collective cybersecurity. The strategy is organized according to five
    national priorities, with major actions and initiatives identified for
    each. These priorities are: (1) a National Cyberspace Security Response
    System, (2) a National Cyberspace Security Threat and Vulnerability
    Reduction Program, (3) a National Cyberspace Security Awareness and
    Training Program, (4) Securing

    Governments* Cyberspace, and (5) National Security and International
    Cyberspace Security Cooperation. In describing the threats and
    vulnerabilities for our nation*s cyberspace, the strategy highlights the
    potential for damage to U. S. information systems by criminals,
    nationstates,

    and terrorists.

    (Continued From Previous Page)

    Strategy Description of strategy National Strategy for the Physical

    This document provides a statement of national policy to remain committed
    to protecting Protection of Critical Infrastructures and

    critical infrastructures and key assets from terrorist attacks, and it is
    based on eight guiding Key Assets

    principles, including establishing responsibility and accountability,
    encouraging and Issued by the President, February 2003

    facilitating partnering among all levels of government and between
    government and industry, and encouraging market solutions wherever
    possible and government intervention when needed. The strategy also
    establishes three strategic objectives. The first is to identify and
    assure the protection of the most critical assets, systems, and functions,
    in terms of nationallevel public health and safety, governance, and
    economic and national security and public confidence. The second is to
    assure protection of infrastructures and assets facing specific, imminent
    threats. The third is to pursue collaborative measures and initiatives to
    assure the protection of other potential targets that may become
    attractive over time.

    Source: Published national strategies. Note: GAO analysis of published
    national strategies.

    New Strategies Provide As we have recently testified, we view the new
    strategies, and the

    Framework framework they provide, as a positive step. 8 The new strategies
    are

    organized in some hierarchy, share common themes, and cross- reference
    each other. The strategies are organized in a hierarchy with the National
    Security Strategy of the United States of America providing the
    overarching strategy related to national security as a whole, including
    terrorism. According to the administration, the National Security Strategy
    of the United States of America and the National Strategy for Homeland
    Security are top- level strategies that together address U. S. security
    both overseas and domestically. According to the administration, these two
    strategies establish a framework that takes precedence over all other
    national strategies, plans, and programs. Our interpretation of the
    hierarchy among strategies is somewhat different from how the
    administration has presented it. We do not view the hierarchy as that
    absolute because we see the National Strategy for Homeland Security and
    the National Strategy for Combating Terrorism as roughly equivalent. These
    two strategies provide, respectively, the strategies to combat terrorism
    related to defensive domestic issues and offensive overseas issues. 9

    Under this hierarchy, the other strategies provide further levels of
    detail on the specific functions related to military operations, money
    laundering, weapons of mass destruction, cyber security, and protection of
    physical infrastructures. Intelligence is one of the critical functions
    that cuts across all the other strategies, but does not have a strategy
    itself related to 8 For a more detailed discussion and evaluation of these
    collective strategies, see U. S.

    General Accounting Office, Combating Terrorism: Observations on National
    Strategies Related to Terrorism, GAO- 03- 519T (Washington, D. C.: Mar. 3,
    2003). In this testimony, we stated that the new strategies show cohesion
    in that they are organized in a hierarchy, share common themes, and cross-
    reference each other. In addition, the collective strategies are more
    comprehensive than the single strategy they replaced. However, we noted
    there will be many challenges in implementing these strategies.

    9 We recognize that this characterization of the strategies simplifies a
    complex relationship among the two. Both strategies contain both defensive
    and offensive elements. For example, while we characterize the National
    Strategy for Homeland Security as mainly defensive, it includes offensive
    initiatives to target and attack terrorist financing, and to track foreign
    terrorists and bring them to justice. Similarly, while we characterize the

    National Strategy for Combating Terrorism as mainly offensive, it includes
    defensive objectives to implement the National Strategy for Homeland
    Security and to protect U. S. citizens abroad.

    terrorism, according to CIA officials with whom we spoke. Some of these
    other strategies contain independent elements beyond national security
    that do not overlap with the other strategies. For an example of the
    latter, both the National Strategy to Secure Cyberspace and the National
    Money

    Laundering Strategy include some domestic criminal elements not associated
    with national security or terrorism. Also, the National Strategy to Secure
    Cyberspace and the National Strategy for the Physical Protection of
    Critical Infrastructures and Key Assets make a distinction between threats
    to national security and threats to national economic security and
    national public health and safety. Further, the National Drug Control
    Strategy has relatively little overlap with these other strategies. Figure
    7 displays graphically how some of these national strategies fit into

    a hierarchy and overlap.

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

    Notes: GAO analysis of national strategies. This graphic is intended to
    show relationships and overlaps among these national strategies. The sizes
    and shapes of the boxes are not meant to imply the relative importance of
    the strategies.

    The various strategies also share common themes. Among the strategies more
    relevant to combating terrorism overseas such as the National Security
    Strategy of the United States of America, the National Strategy for
    Combating Terrorism, the National Strategy to Combat Weapons of Mass
    Destruction, and the National Military Strategy of the United States of
    America all contain either goals or objectives relating to strengthening
    international relationships; strengthening intelligence gathering and
    analysis capabilities; and improving capabilities to deter, prevent, and
    respond to weapons of mass destruction.

    In addition, the strategies have linkages among them in the form of
    citations and cross- references from one document to another. At least
    half of the strategies cite either the National Security Strategy of the
    United States of America or the National Strategy for Homeland Security.
    The most extensively linked strategies include the National Security
    Strategy of the United States of America, the National Strategy for
    Homeland

    Security, the National Strategy for Combating Terrorism, and the

    National Strategy to Combat Weapons of Mass Destruction. Strategies that
    cover topics beyond terrorism, such as criminal law enforcement, are less
    extensively linked to these documents. For example, the National Strategy
    to Secure Cyberspace and the National Strategy for the Physical Protection
    of Critical Infrastructures and Key Assets solely cite each other and the
    National Strategy for Homeland Security. The National

    Drug Control Strategy and the National Money Laundering Strategy contain
    no explicit linkages to any of the other strategies, but are referenced in
    the National Strategy for Homeland Security. Some strategies contain broad
    themes that are covered in more detail by other strategies, but do not
    cite these documents. For instance, although the

    National Strategy for Combating Terrorism mentions the topic of terrorist
    financing, it does not mention the National Money Laundering Strategy.

    Nevertheless, it mentions the National Drug Control Strategy, a document
    with considerably less thematic overlap in terms of terrorism. The

    National Security Strategy of the United States of America covers many
    broad strategic themes, but refers to no other national strategies,
    although many of the strategies refer back to it. National Strategy for
    Combating

    The key strategy for overseas efforts is the National Strategy for

    Terrorism

    Combating Terrorism, issued in February 2003. According to this strategy,
    terrorist groups can be categorized as those that operate primarily within
    a single country, those that operate regionally, and those with global
    reach. The document*s strategic intent calls for fighting terrorist
    organizations of global reach and reducing their scope and capabilities to
    the regional and

    then local levels. The goal is to reduce the scope of terrorism to make it
    more localized, unorganized, and relegated to the criminal domain. The
    strategy seeks to accomplish this through four goals and 15 subordinate
    objectives. Together, these goals comprise the *4D Strategy* and are shown
    in table 3.

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

    Goal: Defeat terrorist organizations of global reach by attacking their
    sanctuaries; leadership command, control, and communications; material
    support; and finances.

    Objective: Identify terrorists and terrorist organizations. Objective:
    Locate terrorists and their organizations. Objective: Destroy terrorists
    and their organizations.

    Goal: Deny further sponsorship, support, and sanctuary to terrorists by
    ensuring that other states accept their responsibilities to take actions
    against these international threats within their sovereign territory.

    Objective: End the state sponsorship of terrorism. Objective: Establish
    and maintain an international standard of accountability with regard to
    combating terrorism. Objective: Strengthen and sustain the international
    effort to fight terrorism. Objective: Interdict and disrupt material
    support for terrorists. Objective: Eliminate terrorists* sanctuaries and
    havens.

    Goal: Diminish the underlying conditions that terrorists seek to exploit
    by enlisting the international community to focus its efforts and
    resources on the areas most at risk.

    Objective: Partner with the international community to strengthen weak
    states and prevent the (re) emergence of terrorism. Objective: Win the War
    of Ideas.

    Goal: Defend the United States, its citizens, and its interests at home
    and abroad by both proactively protecting the homeland and extending
    defenses to identify and neutralize the threat as early as possible.

    Objective: Implement the National Strategy for Homeland Security.

    Objective: Attain domain awareness. Objective: Enhance measures to ensure
    the integrity, reliability, and availability of critical physical and
    information- based infrastructures at home and abroad.

    Objective: Integrate measures to protect U. S. citizens abroad. Objective:
    Ensure an integrated incident management capability.

    Source: National Strategy for Combating Terrorism, Feb. 2003.

    New Strategies Will Not As we have testified, the strategies by
    themselves, no matter how cohesive

    Guarantee Success and comprehensive, will not ensure an integrated and
    effective set of

    programs to combat terrorism. 10 The ability to ensure these things will
    be determined through time as the strategies are implemented. In addition,
    these new strategies reflect a host of long- standing themes and programs.
    For example, certain themes and related programs contained in the new
    strategies preventing and deterring terrorism, maximizing international
    cooperation to combat terrorism, and improving crisis and consequence
    planning and management* were included in the Attorney General*s 1998
    Five- Year Interagency Counterterrorism and Technology Crime Plan.

    Some of the related policies and programs have been in place for decades.
    For example, the State Department*s Antiterrorism Assistance program,
    which provides assistance to other countries to improve their
    capabilities, has existed since 1983. Given that these strategies are
    relatively new, GAO has not yet evaluated their implementation, either
    individually or

    collectively. However, we have done work that demonstrates the federal
    government will face many implementation challenges. For example, we have
    designated the implementation and transformation of the Department of
    Homeland Security* which will have some responsibilities for combating
    terrorism overseas* as a high- risk federal activity. 11 We have also
    identified cyber security as a high- risk area. 12

    Various Laws Address While there is no single, comprehensive federal law
    explicitly dealing with

    Terrorism terrorism, the Congress passed and the President signed a series
    of laws

    dealing with various aspects of terrorism before the September 11, 2001,
    terrorist attacks. The Congress passed these laws to ensure that the

    10 GAO- 03- 519T. 11 We designated the implementation and transformation
    of the department as a high risk for three reasons. First, the size and
    complexity of the effort make the challenge especially daunting, requiring
    sustained attention and time to achieve the department*s mission in an
    effective and efficient manner. Second, components being merged into the
    department already face a wide variety of existing challenges that must be
    addressed. Finally, the

    department*s failure to effectively carry out its mission exposes the
    nation to potentially very serious consequences. For more details, see
    GAO- 03- 102; GAO- 03- 260; and U. S. General Accounting Office,
    Highlights of a GAO Forum: Mergers and Transformation: Lessons Learned for
    a Department of Homeland Security and Other Federal Agencies, GAO- 03-
    293SP (Washington, D. C.: Nov. 14, 2002).

    12 See U. S. General Accounting Office, High- Risk Series: Protecting
    Information Systems Supporting the Federal Government and the Nation*s
    Critical Infrastructures, GAO- 03- 121 (Washington, D. C.: Jan. 1, 2003).

    perpetrators of certain terrorist acts are subject to punishment no matter
    where the acts occur; require or permit sanctions on countries and
    organizations supporting or sponsoring terrorism; delineate agency roles

    and responsibilities; and authorize and/ or appropriate funding for
    agencies to carry our their responsibilities.

    Responding to the September 11, 2001, terrorist attacks, the Congress
    passed and the President signed into law legislation affecting the way the
    United States combats terrorism overseas and domestically. The Congress
    enacted these laws to improve intelligence sharing, enhance airport
    security, and strengthen border control, among other goals. To provide the
    intelligence community and law enforcement with additional means to fight
    terrorism worldwide and prevent future terrorist attacks, the Congress
    enacted the Uniting and Strengthening America by Providing Appropriate
    Tools Required to Intercept and Obstruct Terrorism (USA PATRIOT) Act. 13
    In addition to broadening the definition of *terrorist

    activity* and *terrorist organization,* and addressing international money
    laundering, the act also authorizes the Secretary of State to share
    sensitive visa information with foreign government officials, where
    appropriate. In addition, the Congress recently enacted legislation to
    implement the obligations of the United States under the International
    Convention for the Suppression of the Financing of Terrorism and the
    International Convention for the Suppression of Terrorist Bombings. 14

    Another major piece of legislation that has greatly impacted the war on
    terrorism, both overseas and domestically, is the Homeland Security Act of
    2002. 15 The act created the Department of Homeland Security, an agency
    whose primary mission includes preventing terrorist attacks within the
    United States and reducing the vulnerability of the United States to
    terrorism. The act combined many of the federal agencies involved in
    combating terrorism into the new department, including those discussed in
    this report. 16 In addition, the act contains a number of provisions that

    13 P. L. 107- 56, Oct. 26, 2001. 14 Terrorist Bombings Convention
    Implementation Act of 2002 (P. L. 107- 197), Jun. 25, 2002. 15 P. L. 107-
    296, Nov. 25, 2002. 16 See appendix II for the Matrix of Department of
    Homeland Security Programs and Activities to Combat Terrorism Overseas.

    encourage the sharing of information between the intelligence and law
    enforcement communities. 17 Recent legislation further addressed the
    issues of border and aviation security. The Enhanced Border Security and
    Visa Entry Reform Act of 2002

    increased the number of authorized INS inspectors and support staff to
    prevent terrorist suspects from entering the United States. 18 It also
    addressed the need for increased interagency data sharing pertaining to
    the admission of and ability to remove aliens. The Aviation and
    Transportation Security Act created the Transportation Security
    Administration within the Department of Transportation to strengthen
    security at U. S. national and international airports. 19

    Roles and Another key element in the interagency framework for combating
    Responsibilities of Key

    terrorism overseas is the delineation of roles played by federal
    organizations and agencies. Some play a coordinating role, others serve as
    Federal Agencies

    leads in specific areas, and many others provide various kinds of support.
    Some agencies also have positions designated within them to lead their
    agencies* terrorism- related programs and have agency- specific plans. The
    roles and responsibilities of the key organizations and agencies are

    described below. Subsequent chapters provide additional information on
    these agencies* roles in the areas of diplomacy, law enforcement,
    intelligence, international finance, military operations, and other
    activities to combat terrorism overseas. In addition, appendixes provide
    further details on selected agencies* programs and activities.

    17 For example, Subtitle I of the act, the Homeland Security Information
    Sharing Act, requires that, under procedures prescribed by the President,
    all appropriate agencies, including the intelligence community, shall
    share homeland security information with federal agencies and appropriate
    state and local personnel, subject to certain protections.

    18 P. L. 107- 173, May 14, 2002. 19 P. L. 107- 71, Nov. 19, 2001.

    National Security Council Located within the Executive Office of the
    President, the NSC advises and Leads Coordination Across

    assists the President on national security and foreign policy. It serves
    as a Agencies

    forum for the discussion and debate of national security issues between
    the President, presidential advisors, and cabinet officials. It is also
    the President*s instrument for coordinating policy among government
    agencies on crosscutting issues, such as terrorism. Beyond the NSC
    principals committee* consisting of secretaries of the cabinet departments
    or equivalent heads of independent agencies* the Council is composed of a
    professional staff and various policy coordination committees. The policy
    coordination committee that deals with terrorism is the Counterterrorism
    Security Group. The National Director for Combating Terrorism chairs this
    group, which has subordinate working groups discussed later in this
    chapter. The NSC is the lead for developing the National Security Strategy
    of the United States of America and the National Strategy for Combating
    Terrorism* the key strategies that address combating terrorism overseas.

    Office of Homeland Security The Office of Homeland Security, also located
    within the Executive Office

    Coordinates Related of the President, coordinates efforts to detect,
    prepare for, prevent, protect

    Domestic Issues against, respond to, and recover from terrorist attacks
    within the United

    States. Similar to NSC, the Office of Homeland Security has several
    interagency working groups (called policy coordination committees) to
    manage crosscutting issues. 20 Although mainly domestic in scope, the
    Office is involved in functions that intersect with combating terrorism
    overseas, such as border security. The Director for Homeland Security
    heads this office, which developed the National Strategy for Homeland
    Security* the key strategy for combating terrorism domestically.

    Office of Management The Office of Management and Budget, also located in
    the Executive Office and Budget Tracks Funding

    of the President, assists the President in overseeing the preparation of
    the for Combating Terrorism

    federal budget and supervises its administration in Executive Branch 20
    For more information on the Office of Homeland Security and its role and
    coordination mechanisms related to combating terrorism domestically, see
    U. S. General Accounting Office, Homeland Security: Management Challenges
    Facing Federal Leadership, GAO- 03- 260 (Washington, D. C.: Dec. 20,
    2002). We reported that additional actions to clarify missions and
    activities across agencies involved in homeland security will be necessary
    and some agencies will need to determine how best to support both homeland
    security and nonhomeland security missions. Also, more emphasis on
    collaboration and coordination with the state and local governments and
    the private sector will be needed to meet overall goals.

    agencies. Since 1998, OMB has issued its Annual Report to Congress on
    Combating Terrorism, which provides funding and programmatic information
    on the federal government*s efforts to combat terrorism and, in the most
    recent report, breaks out funding for combating terrorism overseas
    separately from homeland security initiatives. The report summarizes data
    for three fiscal years-- the most recent prior year, current operating
    year, and the President*s budget year request* by department,

    agency, and mission area. Department of State Leads

    Below the Executive Office of the President, the State Department is the
    Overall Efforts Overseas

    lead federal agency for U. S. government activities to combat terrorism
    overseas. The activities that State leads include diplomatic efforts on
    both the bilateral and multilateral levels, protecting U. S. facilities
    and personnel abroad, protecting American civilians traveling and working
    abroad, limited law enforcement functions, and providing assistance to
    other countries to improve their capabilities to combat terrorism. The
    State Department also has the lead in responding to terrorist attacks on
    U. S. interests overseas. In such a terrorist incident, State would lead
    and

    coordinate measures to alleviate damage, protect health, and provide
    emergency assistance. Other federal agencies would provide support under
    State*s direction.

    The Coordinator for Counterterrorism* an ambassador rank position* heads
    the State Department*s efforts to combat terrorism. The department*s
    objectives for combating terrorism are delineated in the State
    Department*s 2002 Annual Performance Plan. This plan describes the

    State Department*s objective as to reduce international terrorist
    incidents, especially against the United States. Key goals in the plan are
    to (1) reduce the number of attacks, (2) bring terrorists to justice, (3)
    reduce or eliminate state- sponsored terrorist acts, (4) delegitimize the
    use of terror as a political tool, (5) enhance the international response,
    and (6) strengthen international cooperation and operational capabilities
    to counter terrorism.

    Department of Justice Leads The Department of Justice has the lead in law
    enforcement and criminal

    Arrest and Prosecution of matters related to terrorism* both domestically
    and overseas. The

    Terrorists department has responsibility for investigating, indicting, and
    prosecuting

    terrorists. In addition, the department administers training for foreign
    law enforcement and security services through a variety of programs. These
    responsibilities are distributed among a number of components within

    Justice. For example, the department*s efforts to prosecute terrorists are

    led by the Counterterrorism Section of Justice*s Criminal Division, and
    its Office of International Affairs works with the State Department to
    negotiate treaties and agreements with other countries that promote
    international cooperation, including cooperation in terrorism cases. The
    department*s plans and goals for combating terrorism are documented in its
    Strategic Plan for Fiscal Years 2001- 2006.

    The FBI leads Department of Justice efforts to investigate international
    terrorism. Specifically, the FBI is responsible for the apprehension and
    rendition of foreign terrorists who are suspected of violating U. S.
    statutes. 21 According to the FBI, it also has the primary responsibility
    to collect

    foreign intelligence and counterintelligence information, including that
    related to terrorism, within the United States. In a terrorist incident
    overseas, the FBI could support the State Department in resolving the
    crisis. Within the FBI, efforts related to international terrorism are led
    by the Counterterrorism Division, which has two International Terrorism
    Operations Sections that investigate terrorist crimes against U. S.
    interests, along with a Terrorism Financing Operations Section that
    investigates terrorism financing. In addition, the FBI legal attaches
    overseas work with foreign services. The FBI*s strategic plan is currently
    under revision to reflect FBI*s recent reorganization, done in part to
    reflect new priorities to include terrorism. 22

    Other agencies within the department have important roles. For example,
    the ATF leads or supports investigations related to firearms and
    explosives, including terrorist incidents overseas. This bureau
    transferred from the Department of the Treasury to the Department of
    Justice in January 2003. Some of the Department of Justice*s functions
    related to border security, such as those conducted by the former
    Immigration and Naturalization Service, transferred to the new Department
    of Homeland Security in March 2003.

    21 According to the FBI, in cases where the United States lacks an
    extradition treaty, the U. S. government can capture suspected terrorists
    through an overseas arrest called a rendition. State*s Office of the
    Coordinator for Counterterrorism, in conjunction with State*s Office of
    the Legal Adviser, the Department of Justice, and other agencies, would
    coordinate State*s role in negotiating and conducting these arrests. Since
    1987, there have been 11 reported renditions (see table 8 in ch. 4 for a
    complete list of reported extraditions and renditions of terrorists to the
    United States between 1987 and 2001).

    22 GAO currently has additional work under way to evaluate the FBI*s
    efforts to reorganize.

    New Department of The new Department of Homeland Security also has
    selected

    Homeland Security Has responsibilities for combating terrorism overseas.
    It has an Office of

    Variety of Functions to International Affairs with responsibilities to
    promote information and Combat Terrorism

    education exchange with foreign nations with respect to best practices and
    technologies related to homeland security. The department also has the
    responsibility of coordinating the federal government*s lines of
    communications with state and local public safety agencies and the general
    public, including monitoring threats from terrorists (including
    international terrorists) and keeping the nation alerted via the color-
    coded Homeland Security Advisory System.

    In addition, the Department of Homeland Security assumed many
    responsibilities for combating terrorism overseas when certain agencies
    and their functions transferred into the department in March 2003. Many of
    these responsibilities relate to border security. For example, the U. S.
    Customs Service (formerly under the Department of the Treasury) and the
    Immigration and Naturalization Service (formerly under the Department of
    Justice) and their functions are now part of the department*s Bureau of
    Customs and Border Protection and Bureau of Immigration and Customs

    Enforcement. The U. S. Coast Guard (formerly under the Department of
    Transportation) is responsible for maintaining border security at certain
    maritime borders between ports of entry. In addition, the U. S. Coast
    Guard tracks suspicious vessels and works with DOD to conduct maritime
    interception operations. The Bureau of Immigration and Customs Enforcement
    also has some responsibilities to track and investigate terrorist
    financing. The Department of Homeland Security has a number of other
    functions as well. For example, the U. S. Secret Service (formerly under
    the Department of the Treasury) protects the President and certain other
    senior officials when they travel abroad. In addition, the department has
    several disaster response teams (formerly with a variety of other
    department and agencies) that have a domestic mission but could be
    deployed abroad in a terrorist incident overseas. Further, the
    department*s responsibilities include enhancing the security of the
    nation*s cyber and

    physical public and private infrastructures essential to national
    security, national economic security, and/ or national public health and
    safety. Department of the Treasury

    The Department of the Treasury has a number of important roles in
    Identifies and Blocks

    combating terrorism overseas. The department has a key role, working
    Terrorist Financing

    with other agencies, in efforts to prevent money laundering and to disrupt
    and dismantle the financial support of terrorist organizations. The

    Financial Crimes Network and the Office of Foreign Assets Control provide
    support to the Treasury and other law enforcement agencies in
    investigating and freezing terrorist financial assets. Treasury*s plans
    for

    financial operations against terrorist finances are included in the
    National Money Laundering Strategy, issued jointly with the Department of
    Justice. Treasury*s Office of International Affairs coordinates the
    department*s assistance to other countries. The Department of the Treasury
    recently transferred selected agencies and functions to the Departments of
    Justice

    and Homeland Security, as discussed above. Department of Defense

    DOD is the lead agency for military operations against terrorist Leads
    Military Operations

    organizations and states that sponsor them. If directed by the President,
    Against Terrorists

    DOD can use military forces to disrupt and destroy terrorist organizations
    and operations. DOD also is responsible for protecting its worldwide
    forces from terrorist attacks. In a terrorist incident overseas, DOD could
    support the State Department in resolving the crisis. DOD has a broad
    array of capabilities* from tactical units to transportation assets to

    decontamination units* that could help manage a terrorist incident,
    including those involving WMD agents. DOD also leads the U. S.
    government*s international counterterrorist response exercise program. DOD
    agencies are part of the intelligence community and have a mutually
    supportive relationship with the CIA. While DOD provides training and
    equipment to foreign governments to improve their capabilities to combat
    terrorism, the Department of State retains overall statutory authority for
    training and equipping foreign personnel.

    The Secretary of Defense establishes policy and guidance for DOD*s
    operations to combat terrorism overseas. The Secretary of Defense*s senior
    policy advisor on terrorism is the Assistant Secretary of Defense for
    Special Operations and Low- Intensity Conflict. The Chairman of the Joint
    Chiefs of Staff ensures implementation of the Secretary*s guidance by
    issuing

    direction to combatant commanders, defense agencies, and the military
    services as members of the Joint Chiefs of Staff. Within the Joint Staff,
    the Chairman has a number of directorates of dedicated staff with
    expertise to conduct the war on terrorism, including the Deputy Director
    for the War on Terrorism in the Directorate for Strategic Plans and Policy
    (J- 5), the War on

    Terrorism Branch within the Special Operations Division of the Directorate
    for Operations (J- 3), and several elements within the Directorate for
    Intelligence (J- 2).

    Staff representing the Secretary of Defense and Chairman of the Joint
    Chiefs of Staff work together with other agencies to develop and implement
    DOD plans and operations. U. S. military forces, in coordination with
    other U. S. government agencies and/ or allied forces, carry out
    operations. These forces are under the command of one of the geographic or
    functional combatant commanders who have specific areas of responsibility.
    DOD*s plans to combat terrorism are included in the

    National Military Strategic Plan for the War on Terrorism, which is
    implemented by the combatant commands* campaign plans.

    Department of Energy Has DOE is responsible for responding to radiological
    terrorist incidents and

    Role in Radiological Issues preventing the proliferation of WMD materials.
    DOE*s response programs

    consist of special teams that could deploy overseas to follow State
    Department*s lead in a terrorist crisis. Specifically, these DOE response
    teams could provide threat assessments, search operations, diagnostic and
    device assessments, containment relocation and storage of special nuclear

    material, and post- incident cleanup. DOE*s non- proliferation programs,
    implemented in conjunction with the State Department and other agencies,
    provide assistance and training to foreign countries. These programs are
    primarily focused on nations in the former Soviet Union and are aimed at
    keeping weapons of mass destruction out of the hands of terrorists and
    rogue states by preventing the smuggling of nuclear materials.

    No single DOE official is in charge of coordinating the department*s
    efforts to combat terrorism. However, the Administrator of the
    department*s National Nuclear Security Administration is responsible for
    supervising

    both response and non- proliferation programs. While the department has no
    agency specific strategic plan for combating terrorism, the department*s
    response teams have contingency and operational plans. According to

    officials from the National Nuclear Security Administration, they are
    currently developing plans specific to their counterterrorism and
    nonproliferation missions.

    Central Intelligence Agency The CIA has the lead for gathering, analyzing,
    and disseminating

    Leads Overseas Intelligence intelligence on foreign terrorist
    organizations. This information is used to

    Activities produce a wide variety of intelligence products for
    policymakers and

    operational agencies, ranging from quick- reaction briefings to long- term
    research studies. These efforts broadly support diplomatic, legal,
    financial, and military operations against terrorism. Additionally, the
    CIA Director is

    charged with promoting coordination and information sharing between all
    intelligence community agencies. 23 The CIA also has the lead for covert
    action and other special activities used to disrupt and destroy terrorist
    organizations.

    CIA efforts to combat terrorism are coordinated in its Counterterrorist
    Center, which is located at the agency*s headquarters. The center, which
    includes representatives from a number of other federal agencies, is the
    CIA*s central coordination center for agency and governmentwide
    intelligence activities related to foreign terrorists.

    U. S. Agency for USAID has roles in providing immediate emergency
    assistance after a

    International Development terrorist incident and in providing long- term
    assistance to strengthen other

    Helps with Disasters and countries* capabilities to combat terrorism.
    USAID, working under the

    Institution Building leadership of the Department of State, coordinates U.
    S. government efforts

    to manage the consequences of a terrorist incident. In the aftermath of a
    terrorist incident, USAID could respond with humanitarian relief and
    rehabilitation activities. Within USAID, the Office of Foreign Disaster
    Assistance leads agency efforts to provide such assistance. In addition,
    several USAID programs provide assistance to other countries in developing
    their law enforcement and judicial systems. For example, USAID supports
    programs to (1) train foreign law enforcement,

    prosecutors, and judges and (2) assist in rewriting legislation and
    criminal sentencing guidelines. These programs, which are discussed in
    chapter 3, could help these countries bring terrorists to justice.

    Other Federal Agencies Other federal agencies have more limited roles in
    combating terrorism Could Provide Specialized

    overseas. These agencies generally have a domestic focus, but have unique
    Assistance capabilities to provide technical advice or special response
    teams. These

    23 The intelligence community includes the Office of the Director of
    Central Intelligence; Central Intelligence Agency; the National Security
    Agency; the National Imagery and Mapping Agency; the National
    Reconnaissance Office; the Defense Intelligence Agency and other offices
    within the Department of Defense for the collection of specialized
    national intelligence through reconnaissance programs and the intelligence
    elements of the Army, the Navy, the Air Force, and the Marine Corps; the
    FBI; the Department of the Treasury; the Department of Energy; the State
    Department*s Bureau of Intelligence and Research; and such other elements
    of any department or agency as may be designated by the President or
    jointly by the Director of Central Intelligence and the head of the
    department or agency concerned.

    teams could deploy overseas to support the State Department in managing a
    terrorist WMD incident or in other activities related to terrorism. Such
    agencies include the following:

     The Department of Health and Human Services has expertise and
    capabilities related to the health and medical consequences of terrorist
    WMD incidents, particularly biological agents.

     The Department of Veterans Affairs has expertise and capabilities
    related to the health and medical consequences of radiological agents.

     The Environmental Protection Agency has expertise and capabilities
    related to identifying and cleaning up hazardous materials, including
    chemical agents.

    Interagency Another part of the interagency framework to combat terrorism
    overseas is

    Coordination coordination. Interagency coordination is important because
    of the large

    number of agencies and multiple functions involved. Agencies involved in
    Mechanisms combating terrorism participate in various interagency
    mechanisms used to coordinate their activities. In Washington, D. C., NSC
    policy coordination committees and interagency working groups coordinate
    higher- level policy

    issues. Overseas, U. S. missions and regional military commands coordinate
    their activities through a combination of working groups and operational
    plans. Agencies also achieve interagency coordination through personnel
    exchanges and cross- agency liaisons.

    Subsequent chapters provide more information on how coordination occurs in
    the specific functions of diplomacy, intelligence, law enforcement,
    financial operations, and military operations against terrorism overseas.

    NSC Oversees Interagency Formal interagency coordination of national
    policy and operational issues

    Coordination in Washington, to combat terrorism overseas occurs through
    the NSC. The NSC heads a

    D. C. policy coordination committee called the Counterterrorism Security

    Group. 24 The group is comprised of high- level representatives (at the 24
    The Counterterrorism Security Group was formerly known as the Coordinating
    SubGroup of the NSC Deputies* Committee.

    assistant secretary level) from key federal agencies that combat terrorism
    such as the Departments of State, Justice, and Defense and other agencies,
    to include the FBI and the CIA. Other departments or agencies might be
    invited to participate in meetings of the group as needed, such as the
    Departments of the Treasury, Transportation, Health and Human Services,
    Energy, and FEMA. The group develops and tries to reach consensus on
    terrorism policy and operational matters and makes recommendations to

    the President. The Counterterrorism Security Group has a number of
    subordinate interagency working groups that coordinate efforts related to
    specific issues in combating terrorism overseas. Table 4 describes these
    subordinate groups and their functions.

    Table 4: NSC- Sponsored Interagency Working Groups Under the
    Counterterrorism Security Group to Coordinate Efforts to Combat Terrorism
    Overseas Working group (Chair) Functions of working group

    Exercise and Readiness This long- standing group promotes interagency
    planning, implementation, and evaluation of exercises Sub- Group.

    to combat terrorism. The State Department, the FBI, and FEMA co- chair the
    group, taking Chairs: State Department, the responsibility for planning
    exercises. The group has regular meetings where agencies address FBI, and
    FEMA

    interagency issues, plan future exercises, and compare and resolve
    schedule conflicts in agency exercises.

    Terrorist Financing Working This group coordinates U. S. government
    efforts to identify and deny terrorist financing. It coordinates Group.
    policy, strategy, and operations to disrupt terrorist networks by freezing
    terrorist accounts. The group Chair: Treasury Department

    also helps to develop strategies and activities for working with other
    countries. Training and Assistance SubGroup. This group coordinates the
    different programs to provide terrorism- related training and assistance
    to

    foreign governments and their officials. This training can include
    technical assistance, classroom Chair: State Department

    courses, or field training. The group works to prioritize countries that
    should receive assistance. The group reviews assistance programs of the
    various agencies to ensure they are properly sequenced, avoid duplication,
    and ensure that they are implemented in collaboration with or reinforce
    other efforts, as appropriate.

    Counterterrorism Finance This is a subgroup of the above Training and
    Assistance Sub- Group that focuses on assistance to Training and Technical
    other countries to eliminate terrorist funding. The group focuses on
    providing related finance training Assistance Working Group.

    and technical assistance to a set of priority countries, and attempts to
    ensure that the delivery of such Chair: State Department

    assistance by different agencies does not conflict and is used effectively
    and efficiently. Hostage Crisis Working Group

    This group develops and coordinates the U. S. government*s hostage crisis
    policy. The group meets on Chair: NSC an emergency basis to monitor and
    plan actions related to overseas crises or incidents where

    Americans are taken hostage by terrorists. Technical Support Working This
    long- standing group conducts the national interagency research and
    development program for Group.

    combating terrorism. It operates under the policy oversight of the State
    Department and the Chair: State Department

    management and technical oversight of DOD. This group coordinates research
    and development across nine categories of terrorism- related products,
    amounting to $165 million in fiscal year 2003.

    Source: GAO discussions with NSC and agency officials. Note: Until
    recently, there was also a National Strategy Working Group chaired by NSC.
    This group was formed to develop, write, and coordinate the National
    Strategy for Combating Terrorism. It disbanded when the strategy was
    published in February 2003.

    Some terrorism- related groups formerly under the NSC have been
    transferred to the Office of Homeland Security. For example, the NSC had
    interagency working groups related to issues such as WMD consequence
    management, aviation security, and assistance to state and local
    governments. These functions are now covered by the Office of Homeland
    Security, which has its own interagency working groups (called policy
    coordination committees) to coordinate these and other domestic issues.
    Our work in producing this report did not evaluate the implications of the
    new Department of Homeland Security, but it also will participate in some
    of these policy coordination committees under the sponsorship of the
    Office of Homeland Security.

    Coordination Occurs At U. S. embassies overseas, programs to combat
    terrorism are coordinated

    Overseas through U. S. through various plans and working groups. Each
    embassy has a mission

    Missions performance plan to coordinate embassy activities across
    agencies. The mission performance plans list each embassy*s priorities and
    include

    implementation and budgeting plans. In cases where combating terrorism is
    a priority, the plan might include specific goals and actions to counter
    that threat. For example, one embassy has goals to both reduce the threat
    of terrorists against Americans in that country and to keep the host
    government an active and effective member of the international coalition
    against terrorism.

    In addition, embassies have a *country team* that can be used to
    coordinate efforts to combat terrorism. The country team, which includes
    representatives from all of the agencies with representatives at the
    embassy, sometimes have subgroups related to terrorism. For example,

    selected embassies have country team subgroups dedicated to law
    enforcement matters, chaired by the deputy chief of mission. These groups
    consist of agency representatives at the embassy with law enforcement
    duties, such as the regional security officer, FBI legal attache, Treasury
    Department financial attache, and officials from other agencies. The
    country teams and their subgroups meet regularly and on an ad hoc basis
    for crises or time- sensitive matters. The ambassador works with the
    country teams in developing the mission performance plan discussed above.

    Regional Military U. S. regional military commands also have plans and
    interagency working

    Commands also Provide groups to coordinate their military operations with
    other agencies to

    Interagency Coordination combat terrorism overseas. These regional
    commands include the U. S. Central Command, U. S. European Command, U. S.
    Southern Command, and

    Overseas U. S. Pacific Command. 25 All of these commands have Campaign
    Plans and

    Theater Security Cooperation Plans to coordinate their activities. The
    Campaign Plans are the regional commanders* strategies for implementing
    DOD*s National Military Strategic Plan for the War on Terrorism in their

    specific geographic area of responsibility. These plans include efforts to
    coordinate both military and non- military operations. In addition, the
    commands* Theater Security Cooperation Plans lay out strategies for
    working with other countries in the region to further U. S. foreign policy
    and military goals. Command officials told us that since September 11,
    2001, these plans have additional emphasis on coordinating efforts to
    combat terrorism with other countries.

    These regional commands also have new interagency working groups to help
    coordinate activities to combat terrorism across different agencies. DOD
    created these interagency groups on an experimental basis right after the
    September 11, 2001, terrorist attacks and NSC formally approved them in
    January 2002. The working groups coordinate military operations with
    nonmilitary activities, to include diplomacy, law enforcement,
    intelligence, and others. The groups include representatives from the
    Department of State, Department of Justice (including the FBI), Department
    of Homeland Security (including the U. S. Secret Service), the
    intelligence community (including the Defense Intelligence Agency,
    National Security Agency, and National Imagery and Mapping Agency), and
    other agencies (including USAID). These interagency working groups include
    agencies with longstanding representatives at the commands as well as
    newcomers. For example, some of the defense components of the intelligence
    community have long had liaisons at the regional commands. In contrast,
    law enforcement agencies have only recently assigned staff to the regional
    commands on a full- or part- time basis.

    25 We did not include the newly created U. S. Northern Command in our
    review because of its domestic focus. The Northern Command is responsible
    for homeland defense within the United States and at its borders.

    Interagency Coordination Agencies also accomplish interagency coordination
    and information

    also Facilitated via sharing through personnel exchanges and agency
    liaisons. Such exchanges

    Personnel Exchanges occur at all levels and can be extensive. For example,
    the FBI and the CIA

    routinely detail senior- level officers to the counterterrorism office of
    their counterpart. The Deputy Chief of the CIA*s Counterterrorist Center
    is an FBI official, while the Deputy Section Chief in the FBI*s
    Counterterrorism Division is a CIA official. Additionally, the staff of
    the newly instituted Office of Intelligence at the FBI is headed by a CIA
    official and includes 25 staff on detail from the CIA.

    The staff exchanges provide a valuable service to both their assigned and
    home agencies. Besides contributing their own expertise, part of the job
    of these detailees is to provide their agency hosts with timely verbal
    briefings,

    especially during crisis situations when interagency liaison is critical.
    For example, CIA officers detailed to the counterterrorism offices of
    other agencies maintain direct contact with their primary assignments at
    the CIA*s Counterterrorist Center. State Department political advisors
    detailed to U. S. regional military commands help coordinate with both
    State Department headquarters in Washington, D. C., and with U. S.
    embassies overseas.

    Personnel also learn about other agencies by taking orientation and
    training courses. One new initiative is a training program where new CIA
    chiefs of station are introduced to FBI perspectives and capabilities. New
    FBI legal attaches receive reciprocal training at the CIA. Through these
    types of initiatives, personnel are able to better understand their

    counterparts* roles, responsibilities, and authority and thus promote
    better coordination.

    Coordination through personnel exchanges also occurs at the international
    level. For example, U. S. officials are detailed to international
    multilateral organizations, such as the International Police Organization
    (INTERPOL) and the North Atlantic Treaty Organization (NATO).

    Agency Comments and The Departments of Defense, Justice, and State and
    USAID provided Our Evaluation

    technical comments on this chapter, generally relating to their roles in
    combating terrorism overseas. Based upon these comments, we made
    revisions, as appropriate. We also made revisions regarding the creation
    of the Department of Homeland Security and the transfer of various
    agencies and functions from other departments into that department.

    Federal Efforts to Detect and Prevent

    Chapt 3 er Terrorism The federal government has an important mission to
    protect Americans abroad from terrorist attacks. A critical component in
    performing that mission is detecting terrorists and preventing their
    attacks against U. S. interests. By protecting Americans abroad, the
    federal government helps protect the homeland. Federal efforts to detect
    and prevent terrorism involve a wide range of programs and activities.
    Efforts to detect terrorism are led by the CIA and the intelligence
    community, which gather, analyze, and share intelligence on terrorist
    threats. Efforts to protect U. S. interests

    abroad are led by the State Department and other agencies, which have
    programs to protect U. S. government facilities and personnel as well as
    American civilians living, working, and traveling overseas. Preventing
    terrorism through public diplomacy is led by the State Department, which
    seeks to shape foreign opinion and garner support for U. S. foreign
    policy. Efforts to prevent terrorists from entering the United States are
    conducted

    by several federal agencies, which operate visa and border controls.
    Efforts to prevent terrorism also include several agencies* programs to
    improve coalition partners* capabilities through training, equipment,
    security, and economic assistance, and assistance in providing security
    for special international events. This chapter describes the relevant
    federal programs

    in place and is not an evaluation of their effectiveness. Intelligence

    The National Strategy for Combating Terrorism includes objectives to
    Gathering and Analysis identify and locate terrorists and terrorist
    organizations. There is also an objective to attain domain awareness* the
    knowledge of all activities,

    Help Detect events, and trends within any specified domain (air, land,
    sea, and cyber)

    Terrorist Activities that could threaten the United States. Intelligence
    gathering and analysis

    are key functions toward these objectives. Intelligence gathering and
    analysis are critical in detecting terrorist activities and generally are
    led by the CIA. Under the overall leadership of that agency, U. S.
    intelligence agencies gather information on terrorist organizations,
    monitor terrorist threats, and share information with other nations. The
    Departments of State and Defense collect and analyze intelligence and
    participate in surveillance programs and liaisons with foreign police at
    the local level.

    These intelligence activities support other preventative efforts, such as
    protecting U. S. facilities and Americans overseas, public diplomacy, and
    border controls.

    Federal efforts to combat terrorism are supported by the work of the U. S.
    intelligence community, which is a group of government agencies that play
    various roles in intelligence gathering, analysis, and distribution. That
    intelligence provides policymakers with valuable information about

    terrorist organizations and forms the basis for threat assessments and
    warnings. Also, it generally supports operations against terrorist
    organizations. In the wake of September 11, 2001, many intelligence
    agencies have sought to reduce barriers to the flow of such intelligence
    between and within agencies. The CIA and various interagency bodies manage
    the coordination of these agencies.

    CIA Leads Intelligence The CIA leads the intelligence community in efforts
    to collect, analyze,

    Community Collection and disseminate information on terrorist incidents
    and groups. This

    and Analysis of Foreign information and analysis is used to inform
    government decision makers

    Intelligence from Overseas and supports diplomatic, legal, and military
    operations against terrorism. It

    can include such things as how terrorist groups are organized, who their
    leaders are, what their objectives are, what weapons and tactics they use,
    and whether they receive support from state sponsors of terrorism.

    Such information is collected through various means. Signals intelligence
    can be collected through intercepted communications, radar, and telemetry
    signals. Imagery intelligence can be derived from visual photography,
    infrared sensors, lasers, and electro- optics. Human intelligence is
    collected directly from human sources, sometimes through clandestine
    collection operations. Open source intelligence is gathered from media
    sources open to the public, such as foreign newspapers or trade journals.
    A considerable volume of intelligence information has been produced by the
    current military campaign in Afghanistan. According to the CIA, this
    information has provided policymakers with a better understanding of al
    Qaeda*s leadership, structure, and capabilities.

    Raw intelligence on terrorist groups, such as the previous example, is
    combined and analyzed by various agencies, but most notably by staff of
    the Counterterrorist Center within the CIA. Dissemination of finished
    intelligence occurs through various intelligence community products,
    including periodicals, daily reports, daily briefings, and warning
    memorandums. The products are delivered to national- level policymakers
    including the President, Cabinet- and sub- Cabinet- level officers,
    Members of Congress, U. S. military commands, and law enforcement
    agencies. Some products are short- range, such as the President*s daily
    intelligence brief, while more long- range forecasts are made through
    National Intelligence Estimates.

    FBI Has Key Role in In addition to law enforcement functions, the FBI is
    designated as an

    Collection and Analysis of intelligence agency by Executive Order 12333. 1
    As such, according to the

    Foreign Intelligence from FBI, it has the primary responsibility for the
    collection of foreign

    Domestic Sources intelligence and counterintelligence information within
    the United States.

    In this role, the FBI monitors the activities of terrorist groups
    (including those of foreign origin) operating within the United States.
    Within FBI, these activities are coordinated through the FBI*s
    Counterterrorism Division. Intelligence information collected by the FBI*s
    Counterterrorism Division is used to protect against international
    terrorism by identifying terrorist groups, their members, their plans, and
    the means by which they communicate and conceal their activities. The FBI
    gathers this information through Foreign Intelligence Surveillance Act
    investigations, recruited sources, double agents, and undercover
    operations. The FBI also monitors the activities of terrorist groups
    operating outside the United States. For example, FBI Legal Attaches
    overseas acquire and disseminate information on terrorists through liaison
    with foreign services. In addition

    to using FBI intelligence, the Counterterrorism Division utilizes
    intelligence information from other agencies such as the CIA, the Defense
    Intelligence Agency, National Security Agency, and the State Department.
    Eighteen federal agencies are represented in the division, including the
    CIA, the U. S. Secret Service, and the Department of State. The FBI*s
    Threat Assessment/ Prevention Unit also assists international terrorism
    personnel with assessing the potential threats existing in the short- and
    long- term environments. In addition, the FBI*s Office of Intelligence
    supports counterterrorism and counterintelligence programs through
    strategic and tactical intelligence capacity.

    Information from these various sources is collected, analyzed, and shared
    with policymakers and investigators. Raw intelligence collected by the
    intelligence community also is compared with investigative data
    accumulated by the FBI to determine the feasibility and credibility of
    threat information received in various venues. The Counterintelligence
    Division coordinates investigative matters concerning foreign
    counterintelligence, including activities related to investigations into
    espionage, overseas

    homicide, protection of foreign officials and guests, and nuclear
    extortion. The FBI*s goal in these intelligence activities is to assemble
    a picture of the threats posed by international terrorist groups and
    provide a basis for neutralizing those groups before they commit acts of
    terrorism.

    1 Executive Order 12333, United States Intelligence Activities, Dec. 4,
    1981.

    Other Agencies also Have The State Department also has a major role in
    gathering, analyzing, and

    Important Intelligence Roles disseminating intelligence on terrorist
    groups. The department*s Bureau for

    Intelligence and Research prepares intelligence reports and related policy
    guidance for the Secretary of State and other department officials. In
    addition, this bureau provides intelligence products, such as threat
    information, to ambassadors at U. S. embassies. This bureau also conducts
    foreign public opinion surveys related to terrorism. For example, it
    conducted surveys in several Arab countries to gauge public reaction to
    the September 11, 2001, terrorist attacks and public perceptions of Osama
    bin Laden. The department*s Bureau of Diplomatic Security gathers
    information through its contacts with foreign police, security, and
    intelligence officials. Through these contacts and related investigations,
    this bureau*s regional security officers* located at U. S. embassies* may
    be the first to recognize potential terrorist activities and threats. The
    bureau

    also analyzes terrorist and related threats and publishes their results in

    Significant Incidents of Political Violence Against Americans, and

    Terrorist Tactics and Security Practices: Lessons Learned and Issues in
    Global Crime. In addition, the departments* Coordinator for
    Counterterrorism, in conjunction with the intelligence community, studies
    terrorist groups and state sponsors of terrorism, and provides a review of
    the international terrorism situation in the annual publication Patterns
    of Global Terrorism. 2 These publications are disseminated to, among
    others, department offices and U. S. embassies for their use in developing
    policies and programs to combat terrorism.

    DOD also plays a significant role in intelligence collection and analysis.
    The Defense Intelligence Agency provides military intelligence to
    warfighters, policymakers, and force planners involved in combating
    terrorism. The National Security Agency collects and processes foreign

    signals intelligence for national leadership and warfighters. The National
    Reconnaissance Office coordinates collection and analysis of information
    from space and airborne reconnaissance by the CIA and the military
    services. In addition, the Army, the Navy, the Air Force, and the Marine
    Corps intelligence agencies each collect and process intelligence relevant
    to their particular service*s needs. Regional command officials told us
    that DOD*s combined intelligence activities are increasingly focused on
    protecting deployed military forces, supporting military operations
    against

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

    terrorists, and providing intelligence to other federal agencies that
    combat terrorism overseas.

    The Department of Homeland Security also has a role in analysis of
    information related to terrorism threats because the nation*s critical
    cyber and physical infrastructures are vulnerable to attack from
    international sources. According to the Homeland Security Act, the
    Department of Homeland Security*s Information Analysis and Infrastructure
    Protection Directorate is responsible for accessing, receiving, and
    analyzing law enforcement information, intelligence information, and other
    threat and incident information from respective agencies of federal,
    state, and local governments and the private sector and for combining and
    analyzing such information to identify and assess the nature and scope of
    terrorist threats. 3 The directorate also is tasked with coordinating with
    other federal agencies

    to administer the Homeland Security Advisory System to provide specific
    warning information along with advice on appropriate protective measures
    and countermeasures.

    Threat Assessments Threat assessments and warnings play a crucial role in
    the dissemination

    Allow Government to effort, helping to inform and prioritize security
    planning. When the threat of

    Take Preemptive or terrorism becomes pronounced, warnings are issued to
    the public and Preventive Actions

    policy community. One of the more visible threat assessments by the
    intelligence community is the Homeland Security Advisory System. The
    warning function for the counterterrorism community is housed within the
    Community Counterterrorism Board, which produces Terrorist Alerts and
    Advisories on a need- to- know basis for a wide government audience.

    *Strategic warning* is used to describe instances in which the
    intelligence community has very broad indications that an attack may occur
    but does not have the specifics as to where, when, or how the attack will
    be carried out. Strategic warning enables policymakers and government
    decision makers to take steps to strengthen anti- terrorist defenses and
    initiate other counterterrorist actions. Strategic warnings could include,
    for example, the Department of Homeland Security adjusting its threat
    levels and DOD adjusting its Force Protection Conditions. *Tactical
    warnings* may be issued when the intelligence community has more detailed
    information on where, when, or how an attack might be carried out.

    3 Section 201, P. L. 107- 296, Nov. 25, 2002.

    Tactical warnings can lead to immediate, direct preventive action against
    specific individuals who may be involved in the planned attack and to
    implement appropriate protective action for specific targets. For
    instance, in early September 2002, the State Department was able to act on
    credible and specific threat information by closing many U. S. embassies
    in Asia and

    reviewing their security postures. Intelligence Supports

    Intelligence information supports the efforts of other agencies involved
    in Diplomatic, Law

    combating terrorism overseas. It enhances the diplomatic efforts of the
    Enforcement, and

    Department of State, for example, by providing essential information to
    the Military Actions

    TIPOFF database intended to prevent terrorists from obtaining entry visas
    into the United States. Intelligence information also augments the
    security of U. S. military facilities abroad, for instance through the
    CIA*s Counterterrorist Center. The center maintains a liaison staff to
    provide military commands worldwide with up- to- date information on the
    modus operandi of terrorist groups in their geographic areas of
    responsibility. Investigations by the FBI and other law- enforcement
    agencies also derive support from intelligence information. Finally,
    military operations against

    terrorist organizations often rely on intelligence information. For
    example, the 1998 cruise missile attack against an al Qaeda training camp
    in Afghanistan relied on data from the intelligence community.

    Actions undertaken by the U. S. diplomatic, law enforcement, financial,
    military, and intelligence communities supported by intelligence
    information are discussed further in chapter 4.

    Efforts to Reduce Before September 11, 2001, much information sharing was
    handled through

    Barriers to Information staff detailed to other agencies and interagency
    liaison. For example, in

    Sharing Within the early 2001, 10 percent of the CIA Counterterrorist
    Center*s staff

    Federal Government complement had been detailed from outside agencies.
    Recent efforts to improve data sharing have focused primarily on data
    access and

    availability. According to recent testimony by the Director of Central
    Intelligence, the State Department currently is working with the CIA to
    renovate the current TIPOFF all- source watchlist into a National
    Watchlist Center that will serve as a base for all watchlists in the U. S.
    government. 4 In

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

    the interim, the Community Counterterrorism Board is providing secure
    access to State*s current watchlist database via a secure system known as
    *CT Link.* Furthermore, the CIA currently is developing a multi- agency,
    common repository for classified and unclassified information accessible

    to the entire intelligence community as well as to state and local law
    enforcement.

    To improve intelligence sharing both within and among agencies,
    intelligence agencies are reevaluating their own internal data management
    procedures. The FBI plans to fully convert to a new data management system
    by December 2003 and currently is in the process of consolidating its
    various databases. The CIA also is attempting to improve its database
    procedures. These improvements include: consolidating terrorist identity
    information, lowering the threshold for nominating individuals for

    watchlist status, lowering the threshold for dissemination of information
    previously regarded as *operational,* and increasing managerial oversight
    through periodic reviews of the system. Efforts also are under way to
    improve information sharing between members of the intelligence community
    and the law enforcement community. The FBI*s Criminal Division develops
    evidence for possible prosecution, while the CIA and other intelligence
    agencies develop intelligence to assess and counter threats. The
    collection and use of intelligence information on individuals for domestic
    law enforcement purposes is constrained by the application of
    constitutional protections, statutory controls, and rules of evidence. For
    instance, to obtain a search warrant in a criminal investigation, the
    government, in general, is required to establish probable cause to believe
    that an individual has committed, is committing, or is about to commit a
    particular predicate offense. 5 The rules are different for domestic
    collection of foreign intelligence. In general, the Foreign Intelligence
    Surveillance Act of 1978 (FISA) requires that a FISA Court judge find
    probable cause to believe that a suspect target is a foreign power or an
    agent of a foreign power, and that the places at which the surveillance is
    directed are being used, or are about to be used, by a foreign

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

    power or an agent of a foreign power. 6 As a result of these different
    standards, there are situations in which it is possible to obtain a
    foreign intelligence surveillance order that would not satisfy the
    standards for a criminal search warrant or electronic surveillance order.
    7 FISA has been interpreted as requiring a separation or *wall* that
    limits coordination between domestic law enforcement and foreign
    intelligence investigations and the use of information collected by
    foreign intelligence agents in criminal prosecutions. 8 Various provisions
    of the USA PATRIOT Act seek to

    improve the sharing of information between the intelligence and law
    enforcement communities. 9 For example, the USA PATRIOT Act amended FISA
    to provide more flexibility to federal investigators in sharing
    information obtained under FISA. 10

    International Intelligence U. S. intelligence operations also are
    augmented by the efforts of

    Sharing and Cooperation U. S. friends and allies. Historically, the United
    States often has participated

    in beneficial bilateral intelligence cooperation with other countries. The
    Director of Central Intelligence formulates policy governing the liaison,
    coordination of relationships, and cooperative intelligence arrangements
    between members of the intelligence community and the intelligence or
    security branches of foreign governments. These relationships can take the
    form of reciprocating collection and analysis activities, joint collection
    operations, exchange of analysts or technicians, or even training
    furnished by the United States in return for services rendered by the
    foreign intelligence service. In one such training program, the CIA*s
    Counterterrorist Center is involved in training foreign agencies to better
    prevent terrorist attacks. According the Director of Central Intelligence,

    6 P. L. 95- 511, Oct. 25, 1978, as amended. 7 See U. S. General Accounting
    Office, FBI Intelligence Investigations: Coordination Within Justice on
    Counterintelligence Criminal Matters Is Limited, GAO- 01- 780 (Washington,
    D. C.: July 16, 2001).

    8 A second type of *wall* continues to limit the use of foreign
    intelligence information in criminal prosecutions. In this respect,
    intelligence analysts are concerned that primary sources and methods could
    be disclosed, namely in criminal court. This may cause them to release
    intelligence information to the FBI for lead purposes only, rather than
    fully share

    information that could be used for evidentiary purposes. 9 P. L. 107- 56.
    For example, see sections 203, 218, and 504.

    10 Also see the recent decision of the United States Foreign Intelligence
    Surveillance Court of Review In re: Sealed Case No. 02- 001, Nov. 18,
    2002, which addresses these issues.

    these foreign security services arrest terrorists on the basis of U. S.
    intelligence. For example, terrorist groups planning attacks on American
    and local interests in Europe were identified and disrupted

    through cooperation between the CIA and various European governments.
    Intelligence liaison has also greatly augmented U. S. efforts against al
    Qaeda.

    Coordination Mechanisms Executive responsibility for coordination and
    information sharing among

    for Intelligence Activities the intelligence community agencies lies with
    the Director of Central

    Intelligence. 11 The Director serves as the President*s principal
    intelligence advisor and serves as both head of the CIA and the greater U.
    S. intelligence community. The Director*s coordination duties include
    being the intelligence community*s spokesman to the Congress, establishing
    services of common concern within the intelligence community, and
    promoting common administrative practices* most notably on classification
    issues. The Director also has full responsibility for the production,
    interagency sharing, and timely dissemination of foreign intelligence
    information, and carries the authority to assign specific analytical tasks
    to specific intelligence community member agencies. The Director also
    governs requirements and priorities for the collection of foreign
    intelligence.

    Interagency Intelligence The lead forum for coordination of intelligence
    activities across agencies is Committee on Terrorism

    the Interagency Intelligence Committee on Terrorism. The committee,
    established in 1990, advises and assists the Director of Central
    Intelligence in coordinating the intelligence community over the long
    term. It facilitates the Director*s use of intelligence resources to
    resolve long- term policy coordination issues in combating terrorism. It
    is composed of representatives of the intelligence, law enforcement, and
    regulatory communities, and it also oversees several subcommittees. These
    subcommittees conduct research and develop solutions to intelligence
    issues, including Intelligence Requirements, Information Handling,
    Technical Countermeasures, Training, Warning, and Unconventional Weapons.
    Leadership within the committee is provided by the Community
    Counterterrorism Board, which serves as the committee*s executive
    secretariat. The board also manages *CT Link,* a secure network for
    counterterrorism research, coordination, and communication available on 11
    See Executive Order 12333, United States Intelligence Activities, Dec. 4,
    1981.

    the individual desktops of all member agencies. Committee members assess
    indications of terrorist threats and share information on the activities
    of terrorist groups and countries that sponsor terrorism. Table 5 shows
    selected members of the Interagency Intelligence Committee on Terrori sm.

    Tabl e 5: Selected Members of the Interagency Intelligence Committee on
    Terrorism Organization Organization

    Central Intelligence Agency Department of State Department of Defense

    Department of Justice  Office of the Secretary of Defense

     Criminal Division  Defense Intelligence Agency

     Federal Bureau of Investigation  National Security Agency

     Bureau of Alcohol, Tobacco, Firearms and Explosives  National
    Reconnaissance Office

     Drug Enforcement Administration  National Imagery and Mapping Agency

     U. S. Marshals Service  Defense Information Systems Agency

    Department of Transportation  Defense Threat Reduction Agency

     Federal Aviation Administration  Defense Advanced Research Projects
    Agency

     White House Communications Agency  Department of Homeland Security

     White House Military Office  U. S. Secret Service

     Joint Chiefs of Staff  U. S. Coast Guard

     Unified Commands  Bureau of Immigration and Customs Enforcement

     U. S. Army  Bureau of Customs and Border Protection

     U. S. Air Force  Federal Emergency Management Agency

     U. S. Marine Corps Environmental Protection Agency

     U. S. Navy Executive Office of the President  Chemical, Biological
    Incident Response Force

     National Security Council  Office of Homeland Security  Executive
    Office of the Vice President

    U. S. Postal Service Federal Reserve Board National Communications System
    Nuclear Regulatory Commission Department of Commerce U. S. Capitol Police
    Department of Energy Department of Health and Human Services Source: CIA.

    Counterterrorist Center at CIA The primary link between the long- term
    interagency coordination needs of the Interagency Intelligence Committee
    on Terrorism and the more immediate coordination needs of intelligence
    operations is the Director of Central Intelligence*s Counterterrorist
    Center. The center was established at CIA Headquarters in 1986 to
    coordinate intelligence operations across agencies. Many agencies
    represented in the center are also members of the Interagency Intelligence
    Committee on Terrorism. All information on terrorists is channeled to the
    center. This intelligence collection is fused with analysis and
    operational capabilities to give the center the speed to seize fleeting
    opportunities. The center is, therefore, somewhat unique among
    intelligence *centers,* in that it combines intelligence analysis,
    planning, operational support, and also serves as a general platform for
    carrying out general U. S. counterterrorism policy.

    The interagency coordination managed by the Counterterrorist Center is
    intended to support U. S. efforts to penetrate, preempt, disrupt, and
    ultimately destroy terrorist organizations worldwide. The center carries
    out a number of responsibilities against terrorism: analysis, warning, and
    activities in support of diplomatic, legal, and military operations
    against terrorism. For example, it often plays a key role in the tracking
    and rendition of terrorist suspects, usually in concert with the FBI or
    foreign law enforcement agencies. The center also prepares intelligence
    reports on terrorist groups and countries that support terrorism that are
    made available to other intelligence and law enforcement agencies. For
    example, the center issues a monthly, classified review of international
    terrorism developments and provides other analysis on terrorist groups,
    capabilities, or incidents as needed. Smaller units within the center
    develop specialized intelligence on specific terrorist groups. As
    mentioned earlier, the center makes extensive use of personnel exchanges
    to facilitate greater coordination. Counterterrorist Center staff work
    closely with other agency counterparts in Washington, D. C., and with
    intelligence assets in the field.

    Beyond the operational coordination of the Counterterrorist Center and the
    long- term coordination initiatives of the Interagency Intelligence
    Committee on Terrorism, the intelligence community uses no overarching
    strategic plan to coordinate its efforts. There are, however, operational
    plans for intelligence campaigns against specific targets, such as Osama
    bin Laden.

    New Terrorist Threat In January 2003, the President announced the creation
    of a Terrorist Threat

    Integration Center Integration Center to coordinate intelligence
    activities across agencies. The

    President instructed the leaders of the FBI, CIA, and Departments of
    Defense and Homeland Security to develop the center to merge and analyze
    all threat information in a single location. The center is to have access
    to all terrorist threat information available to the U. S. government and
    will seek to minimize any seams between analysis of terrorism intelligence
    collected overseas and in the United States. It is to conduct threat
    analysis, institutionalize information sharing across agency lines, and
    provide comprehensive threat assessments. The center also is intended to
    play a

    lead role in tasking the intelligence community to gather intelligence and
    it will maintain an up- to- date database of known and suspected
    terrorists. It will not conduct intelligence collection or operations. The
    Terrorist Threat Integration Center will eventually be collocated with the
    Director of Central Intelligence's Counterterrorist Center and the FBI's
    Counterterrorism Division to improve collaboration among agencies. However
    the Director of Central Intelligence's Counterterrorist Center and the
    FBI's Counterterrorism Division will retain their distinctive operational
    capabilities. The head of the center will report to the Director of
    Central Intelligence. The Director of Central Intelligence will appoint
    the head of the center in consultation with the Attorney General, the
    Secretaries of Defense and Homeland Security, and the Director of the FBI.
    In February 2003, the President announced a plan for implementing the new
    center, starting in May 2003.

    Protecting The National Strategy for Combating Terrorism includes an
    objective to

    U. S. Government integrate measures to protect U. S. citizens abroad.
    According to the

    strategy, the Department of State will take the lead and, in conjunction
    with Facilities and

    appropriate agencies, partner with industry to establish cost- effective
    best Americans Abroad

    practices and standards to maximize security. Toward this objective, the
    Department of State conducts multifaceted activities in its effort to
    prevent terrorist attacks on Americans abroad. For example, to protect U.
    S. officials, property, and information abroad, State operates programs
    that include local guards for U. S. missions, armored vehicles for embassy
    personnel, U. S. Marine security guards to protect sensitive information,

    and plans to evacuate Americans in emergencies. DOD has similar programs
    to protect its military forces against terrorist attacks. The U. S. Secret
    Service and State*s Bureau of Diplomatic Security protect senior U. S.
    government officials when traveling overseas. For Americans traveling and
    living abroad, State issues public travel warnings and public
    announcements and operates warning systems to convey terrorism- related

    information. For U. S. businesses and universities operating overseas,
    State uses the Overseas Security Advisory Councils* voluntary partnerships
    between the State Department and the U. S. private sector* to foster the

    exchange of security and threat information, implement security programs,
    and provide a forum to address security concerns. These efforts are
    coordinated both at the headquarters level in Washington, D. C., and at

    individual U. S. missions abroad. U. S. Mission Security The Department of
    State*s Bureau of Diplomatic Security is responsible

    for providing a secure environment worldwide for the conduct of American
    diplomacy. The bureau manages a broad range of programs to create and
    maintain appropriate levels of security for more than 50, 000 U. S.
    government personnel, staff, and dependents, who work and live at 260
    embassies, consulates, and other U. S. missions overseas. The bureau can
    dispatch Diplomatic Security teams to threatened overseas missions. At
    each U. S. mission, the regional security officer is responsible for
    implementing Diplomatic Security measures and coordinating protection with
    host government authorities.

    The Bureau of Diplomatic Security also reviews standards and risk
    management. It develops, evaluates, and applies security standards for a
    broad range of categories. These include (1) physical protection for
    office and residential buildings, (2) access to communication equipment,
    (3) intrusion detection devices, (4) secure conference rooms, and (5)
    armored vehicles. These standards are intended to allow the bureau to
    identify and address threats posed by terrorism, political violence, human
    intelligence, and technical intelligence penetration of facilities.

    The bureau uses these elements to target resource allocations to
    identified threats at each mission or location. The bureau is required to
    provide to the Congress each year a ranking of the U. S. missions abroad
    most vulnerable to terrorist attack. 12 These standards also help target
    additional security funding to the highest threat missions, as in the case
    of Emergency Security

    12 See U. S. General Accounting Office, Embassy Construction: Better Long-
    Term Planning Will Enhance Program Decision- Making, GAO- 01- 11
    (Washington, D. C.: Jan. 22, 2001). In this report, we note that the
    Department of State has ranked the more than 180 facilities that it
    proposes to replace and/ or provide with major security enhancements into
    groups or *bands* of 20 in order from the most vulnerable to the least
    vulnerable to terrorist attack.

    The ranking, which is provided to the Congress annually, is intended to
    serve as a guide for which embassies and consulates State would replace
    first.

    Supplemental and Worldwide Security Upgrade funds to meet the most
    pressing security needs.

    The State Department conducts multifaceted activities in an effort to
    prevent terrorist attacks against U. S. missions. Following the August
    1998 bombings of the U. S. Embassies in Nairobi, Kenya, and Dar es-
    Salaam, Tanzania, State upgraded security for all of its missions. As we
    have

    reported previously, there are a number of U. S. embassy security programs
    and activities to prevent terrorism overseas, which generally are managed
    by State*s Bureau of Diplomatic Security. 13

    Embassy threat assessments This Bureau of Diplomatic Security program
    helps the Bureau of Overseas Buildings Operations develop embassy security
    measures. The Bureau of Diplomatic Security develops, with other elements
    in State, threat assessments that State uses to prioritize which U. S.
    missions are most in need of new, safer embassy buildings.

    Embassy construction program This Bureau of Overseas Buildings Operations
    program is attempting to replace State Department*s less secure facilities
    on an accelerated basis with new, secure embassies and consulates that
    meet current security standards, such as having a 100- foot setback from
    streets surrounding

    embassies. State has a 6- year Long- Range Overseas Buildings Plan, which
    includes both new construction and the major renovation and rehabilitation
    of existing facilities.

    Worldwide Security The Bureau of Diplomatic Security and Bureau of
    Overseas Buildings

    Upgrade Program Operations jointly are responsible for the Worldwide
    Security Upgrade Program, which provides a physically secure environment
    for all

    U. S. government personnel under the jurisdiction of the chief of mission.
    The Bureau of Diplomatic Security, through its physical security program,
    strengthens building exteriors, lobby entrances, and the walls and fences
    around embassies and consulates. 14 Inside an embassy or consulate,
    closed- circuit television monitors, explosive- detection devices, walk-
    through metal detectors, and hard- line walls and security doors

    provide protection. These are intermediate measures* only new embassies
    will address all security concerns.

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

    Residential Security program The Residential Security program provides for
    security upgrades to the residences of U. S. employees assigned to
    overseas diplomatic and consular missions. Prior to occupancy, all newly
    acquired residential facilities are

    equipped with appropriate security features, such as locks, alarms,
    shatterresistant window film, and reinforced doors, based on the level of
    the threats.

    Overseas Protection of The Overseas Protection of Information program
    implements a

    Information program comprehensive set of information protection programs.
    These programs

    are intended to protect national security information discussed at
    meetings in secure conference rooms or on secure telephones, processed and
    stored on computers, and preserved and communicated on paper documents.
    This program includes (1) personnel investigations for security
    clearances,

    (2) courier protection for diplomatic pouches, (3) construction security
    and access control equipment, (4) U. S. Marine security guards controlling
    access to embassies at 130 U. S. missions overseas, (5) locks for
    containers holding classified material, (6) secure conference rooms, (7)
    detection and containment of emanations from processing equipment, (8)
    counterintelligence investigations and briefings, and

    (9) computer security. Surveillance Detection Program The Surveillance
    Detection Program utilizes plainclothes security agents

    to provide surveillance detection measures around U. S. embassies,
    consulates, and residences of embassy employees. The program is used to
    identity suspicious activity, such as terrorists* casing embassy
    facilities or personnel, and includes capabilities intended to resolve all
    suspicious activity.

    Local Guard Services Local Guard Services augment host government
    resources for protecting overseas diplomatic and consular office
    facilities and residences of U. S. government employees and dependents of
    all agencies under the chief of mission.

    14 The USAID Overseas Management Office is responsible for ensuring
    security at all USAID facilities that are not collocated with U. S.
    missions (approximately 58 of 95, as of January 2002), although it
    coordinates these security arrangements with the Bureau of Diplomatic
    Security in Washington and with the regional security officers in country.
    Additionally, the Office of Security handles USAID building construction
    issues, coordinating extensively with State*s Bureau of Overseas Buildings
    Operations, which

    constructs buildings for USAID*s tenancy.

    Overseas Protective Vehicles The Overseas Protective Vehicles program
    provides light and heavy armor vehicles to protect embassy personnel.
    Currently, all chief- of- mission vehicles have been ordered and are being
    armored and 94 percent of these vehicles already have been delivered to
    missions.

    Host Nation Security Support Host nations also provide critical support in
    preventing terrorist attacks against U. S. missions. Based on its
    capabilities* and sometimes willingness* host nation security support
    could include, for example, sharing intelligence about threats with the
    regional security officer, providing bodyguards for U. S. officials,
    stationing local police guards

    outside of a U. S. mission, closing roads adjacent to a U. S. mission,
    controlling crowds, responding first to a terrorist incident, and
    conducting an investigation of a terrorist attack. Figure 8 shows how a
    host government provides perimeter security for a U. S. embassy.

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

    Military Force The threat of terrorism is one of the most pervasive
    challenges facing DOD,

    Protection Efforts making the protection of U. S. forces against terrorist
    attacks a top priority

    for the department. 15 The June 1996 truck bombing of the al- Khobar
    Towers military housing facility near Dhahran, Saudi Arabia, killing 19
    Americans and wounding hundreds of others prompted DOD to reexamine its
    programs to protect both its forces and installations overseas. However,
    U. S. forces remained vulnerable to terrorist attacks as demonstrated by
    the

    October 2000 al Qaeda bombing of the USS Cole in Yemen that killed 17 U.
    S. sailors.

    Overall Management at DOD, The Office of the Assistant Secretary of
    Defense for Special Operations and

    Joint Staff, and Service Levels Low- Intensity Conflict is responsible for
    developing antiterrorism

    guidance, providing policy oversight, and ensuring compliance with these
    policies. In June 2001, the Principal Deputy Assistant Secretary of
    Defense for Special Operations and Low- Intensity Conflict established
    standards addressing antiterrorism planning, training requirements,
    physical security measures, and related issues. 16 This office had earlier
    issued a handbook in

    1993 containing detailed guidance on antiterrorism policies and practices,
    including guidance on assessment methodology. 17

    The Chairman of the Joint Chiefs of Staff and the Deputy Director for
    Global Operations in the Joint Chiefs of Staff Directorate for Operations
    (J- 3) help implement the policy of the Assistant Secretary by reviewing
    services* budgets, developing standards, making vulnerability assessments,
    and representing regional commands on force protection issues. The Joint
    Staff issued an installation- planning template to help installations
    prepare their antiterrorism plans in July 1998 and currently manages the
    Integrated Vulnerability Assessment Program. This program has teams, also
    consisting

    of staff from the Defense Threat Reduction Agency, that travel to military
    15 For a more detailed discussion and our evaluation of DOD force
    protection efforts, see U. S. General Accounting Office, Combating
    Terrorism: Actions Taken but Considerable Risks Remain for Forces
    Overseas, GAO/ NSIAD- 00- 181 (Washington, D. C.: July 19, 2000);

    Combating Terrorism: Actions Needed to Improve DOD Antiterrorism Program
    Implementation and Management, GAO- 01- 909 (Washington, D. C.: Sept. 19,
    2001); and

    Combating Terrorism: Actions Needed to Guide Services* Antiterrorism
    Efforts at Installations, GAO- 03- 14 (Washington, D. C.: Nov. 1, 2002).

    16 DOD Instruction 2000.16, DOD Antiterrorism Standards, June 14, 2001. 17
    DOD Handbook O- 2000.12- H, Protection of DOD Personnel and Activities
    Against Acts of Terrorism and Political Turbulence, Feb. 19, 1993.

    installations (including those overseas) to conduct vulnerability
    assessments and support installation commanders and local anti- terrorism/
    force protection managers in writing force protection and WMD response
    plans.

    Each military service headquarters is responsible for implementing the DOD
    antiterrorism program with assistance from the Joint Staff. Although
    regional commands and installations directly implement force protection
    policy, service headquarters control funding and personnel resources for
    individual installations overseas. The services base their final funding
    and staffing decisions on a review of the antiterrorism priorities and
    requirements submitted by each combatant commander. The majority of

    funding for force protection activities is for personnel, operations, and
    maintenance appropriations for each service. The Chairman of the Joint
    Chiefs of Staff*s Combating Terrorism Readiness Initiative Fund provides
    additional funding. This fund is managed by the Joint Staff and supports
    emergency or other unforeseen high- priority combating terrorism needs.
    The services also issue regulations, orders and instructions to establish
    their own specific antiterrorism policies and standards.

    Regional and Installation Regional commands merge and prioritize the
    antiterrorism requirements

    Commander Responsibilities submitted by their respective installation
    commanders. They use this

    information to develop general antiterrorism policy for installations in
    their geographic areas of responsibility. Such guidance takes precedence
    over broader DOD or service guidance from Washington. They also determine
    the type of threats their forces face, identifying the money and manpower
    needed to achieve sufficient force protection, and work with the services
    to provide the necessary resources.

    Local installation commanders assume primary responsibility for the
    protection of the forces, assets, and installations under their command
    from terrorist attacks. They combine, adapt, and implement the force
    protection standards established by DOD, combatant commanders, and the

    service headquarters into an installation antiterrorism plan. Local
    installation commanders, in concert with the installation*s designated
    anti- terrorism/ force protection manager, compose a prioritized list of
    antiterrorism requirements that they submit to their respective major
    commands.

    DOD Uses Risk When making these plans and listing their requirements,
    installation

    Management Approach commanders employ a *risk management* approach. 18
    This approach is a

    systematic, analytical process to determine the likelihood that a threat
    will negatively impact physical assets, individuals, or operations and
    identify actions to reduce risk and mitigate the consequences of an
    attack. The principles of risk management acknowledge that although risk
    generally cannot be eliminated, it can be significantly reduced by
    enhancing protection from known or potential threats. Installation
    commanders also rely on annual DOD assessments of threat, vulnerability,
    and criticality of assets.

     Threat Assessment. This identifies and evaluates potential terrorist
    threats on the basis of such factors as threats* capabilities, intentions,
    and past activities. It represents a systematic approach to identify
    potential threats before they materialize. It is performed by the
    services*

    investigative and intelligence agencies, which compile and examine all
    available information concerning potential terrorist groups and criminal
    activity that could affect the installation. The threat assessment may not
    adequately capture all emerging threats, even in cases where the
    assessment is frequently updated. The risk management approach, therefore,
    uses vulnerability and criticality assessments as additional inputs to the
    risk management decision- making process.

     Vulnerability Assessment. This identifies weaknesses that may be
    exploited by terrorists and suggests options that address those
    weaknesses. Teams of multidisciplinary experts in such areas as structural
    engineering, physical security, and installation preparedness review the
    installation*s antiterrorism program, including antiterrorism plans,
    counterintelligence, law enforcement liaison, physical security, and
    incident response measures.

     Criticality Assessment. This evaluates and prioritizes assets and
    functions to identify which assets and missions are relatively more
    important to protect from attack. They might consider a number of factors,
    such as importance to the military mission, significance as a target,
    accessibility by terrorists, construction, ease of reconstruction, and
    monetary value.

    18 See GAO- 03- 14.

    The risk management approach and these annual assessments form the
    foundation of each installation*s antiterrorism plan and support
    decisionmaking to improve resource allocations. DOD Personnel at

    Some DOD personnel overseas do not fall under the direct command of the
    Diplomatic Posts

    regional commands. For example, DOD personnel assigned to diplomatic post
    would be protected as part of U. S. mission security (discussed in the
    previous section). To clarify who is responsible for the protection of
    these military personnel, DOD and State have signed a Memorandum of
    Understanding, and regional commands have signed over 146 country- level
    Memorandums of Agreement with their local U. S. ambassadors.

    U. S. Programs and Activities Federal agencies also have programs to
    protect senior- level officials from

    to Protect Senior- Level terrorism during international travel. The U. S.
    Secret Service, which

    Officials recently transferred from the Department of the Treasury to the

    Department of Homeland Security, provides protection to a limited number
    of senior- level U. S. officials (for example, the President) at all
    times, which includes travel overseas. In addition, the Secret Service
    protects official

    representatives of the United States performing special missions abroad.
    19 The U. S. Secret Service has advance teams that work with host
    countries to coordinate security of these U. S. officials that travel
    overseas. In addition, if a protected person attends a special event
    abroad, such as a bilateral or multilateral political or athletic event,
    then the U. S. Secret Service works with the event security coordinators.
    Even in cases where the President is not necessarily going to attend but a
    number of other U. S. citizens will, the U. S. Secret Service also
    provides consulting to help host nations provide for event security. For
    example, the U. S. Secret Service, working with the State Department*s
    Bureau of Diplomatic Security, is assisting the Greek and Chinese
    governments in preparing for upcoming Olympic Summer Games in Athens in
    2004 and Beijing in 2008, respectively. To support this protective
    mission, as well as other missions, the U. S. Secret Service maintains 18
    offices overseas.

    19 The U. S. Secret Service is authorized under 18 U. S. C. S: 3056( a) to
    protect the President, Vice President, their immediate families, former
    Presidents, visiting heads of state, and other distinguished foreign
    visitors as directed by the President, among others.

    The U. S. Secret Service also provides security for heads of foreign
    governments and other foreign distinguished guests while visiting the
    United States. In addition, the U. S. Secret Service provides security for
    foreign visitors when they attend certain international events in the
    United States. 20 An example would be the 50th anniversary NATO summit
    held in Washington, D. C., in April 1999, which included foreign heads of
    state, ministers, and military leaders. For this one event, there were
    over 1,000 escorts for dignitary motorcades. The U. S. Secret Service,
    through its Uniformed Division*s Foreign Mission Branch, provides exterior
    security for over 400 foreign diplomatic facilities (embassies,
    chanceries, consulates, and ambassador residences) in the Washington, D.
    C., area. To support its protective mission, the U. S. Secret Service has
    an Intelligence

    Division that oversees the identification, assessment, and management of
    threats in support of domestic and foreign protectee visits and events of
    national significance.

    The State Department*s Bureau of Diplomatic Security also provides
    protection to senior- level officials during international travel. These
    officials are less senior than those protected by the U. S. Secret Service
    and include the Secretary of State, Deputy Secretary, selected
    ambassadors, and others U. S. officials overseas. Diplomatic Security
    agents provide protection to other foreign dignitaries (other than heads
    of state and certain others protected by the U. S. Secret Service) when
    they visit the United States. These agents participate in more than 150
    foreign and domestic dignitary details each year, protecting such diverse
    individuals as

    the Secretary General of NATO, President of the Palestine National
    Authority, and the Dalai Lama. Also, the bureau provides security to
    selected foreign officials residing in the United States. These protective
    details are based upon the level of threat. The bureau also provides for

    security in special international events in the United States. For the
    50th anniversary NATO summit (discussed above), the bureau*s Dignitary
    Protective Division was part of the security preparations and provided 48
    protective details. For the 1996 Olympic Summer Games in Atlanta, the

    bureau protected 14 foreign individuals from Israel, India, and Saudi
    Arabia.

    20 PDD 62 established a process to designate certain special events as
    National Security Special Events, which warrant greater federal planning
    and protection than other special events. This designation is based upon
    the nomination of the National Security Council and certified by the
    Attorney General and the Secretary of Homeland Security. In these events,
    the U. S. Secret Service, the FBI, and Federal Emergency Management Agency
    have specific roles for preventing and responding to a terrorist incident.

    According to State Department officials, the Bureau of Diplomatic Security
    is providing protective assistance to two heads of government in their own
    countries* President Hamid Karzai in Afghanistan and President Alvaro

    Uribe Velez in Colombia. According to bureau officials, they are providing
    security and/ or advisors and training to these leaders because of the
    extreme threat of assassination from terrorist groups and the relatively
    weak capabilities for senior official protection in each country.

    Protecting American The Department of State has several programs to help
    warn Americans

    Civilians Living, Working, living and traveling abroad against potential
    threats, including those posed

    and Traveling Abroad by terrorists. State*s Bureau of Consular Affairs
    provides travel warnings,

    public announcements, and Consular Information Sheets to American
    civilians who are living, working, and traveling abroad. The bureau seeks
    to provide important threat warnings and security information to U. S.
    citizens and assets abroad in a timely and effective manner based on the
    *No Double Standard* policy on dissemination of specific, credible
    terrorist

    threat information that has not or cannot be countered (i. e., it is the
    policy of the U. S. government that official Americans cannot benefit from
    receipt of information that might equally apply to the public, but is not
    available to the public).

    In fiscal year 2001, for example, the bureau issued 64 travel warnings,
    134 public announcements, and 189 Consular Information Sheets. The
    bureau*s Internet Web site received 117.9 million inquiries, 30.7 million
    more than in fiscal year 2000. According to bureau data, 90 percent of the
    users found the information helpful. The bureau also held 69 briefings for
    stakeholder groups, including international student program participants,
    travel agents, and others.

    The bureau also maintains a warden system for notifying Americans who have
    registered with the U. S. embassy or consulate of potential terrorist
    threats. Warden networks consist of telephone- calling trees, e- mails,
    fax systems, and other systems, as appropriate. The warden system covers
    both U. S. embassy and consulate personnel and other registered Americans.
    The system usually works by alerting major employers or compounds with
    high concentrations of Americans. It is used for a variety of
    communications purposes, from passing out voter information to notifying
    wardens and their wards of U. S. embassy evacuations.

    The Bureau of Diplomatic Security manages the Overseas Security Advisory
    Councils, which provide security support to U. S. businesses and

    private- sector organizations worldwide. The councils are a joint effort
    between State and the private sector. They foster exchange of security and
    threat information, implement security programs, and provide a forum to
    address security concerns. Embassy regional security officers coordinate
    with council headquarters in Washington, D. C., to set up, develop, and
    maintain councils in country. Presently, councils are active in 47
    countries worldwide.

    Coordination Mechanisms The Department of State is responsible for
    maintaining an effective

    for Protecting security program at U. S. diplomatic missions worldwide and
    for

    U. S. Government Facilities coordinating all federal agencies* efforts to
    protect U. S. government

    and Americans Abroad facilities and Americans abroad. At U. S. missions,
    the country team is the

    primary coordinating mechanism. It typically consists of the ambassador,
    deputy chief of mission, and key functional personnel, including
    representatives from other federal agencies represented at the U. S.
    mission. The regional security officer has primary coordinating
    responsibility for security programs and activities at U. S. missions.

    In addition, the Bureau of Diplomatic Security provides security liaison
    officers to DOD*s regional military commands: the U. S. Central Command at
    MacDill Air Force Base, Florida; U. S. European Command in
    StuttgartVaihingen, Germany; U. S. Pacific Command at Camp H. M. Smith,
    Hawaii; and U. S. Southern Command in Miami, Florida. These officers
    coordinate with the commands on theater threat assessments, contingency
    planning, and implementation of Department of State and DOD agreements on
    overseas security support.

    In Washington, D. C., the Overseas Security Policy Board considers,
    develops, coordinates, and promotes standards and agreements in overseas
    security operations, programs, and projects, which affect all federal

    agencies under an ambassador*s authority abroad. The board, which is
    chaired by the Director of State*s Bureau of Diplomatic Security, consists
    of representatives from the Departments of Agriculture, Commerce, Defense,
    Justice, State, Transportation, and the Treasury; USAID; the CIA;

    Peace Corps; Federal Aviation Administration; and OMB. Since 1990, the
    board has issued 37 standards for U. S. missions overseas. The standards
    address the full spectrum of security programs pertaining to terrorism and
    other threats. These standards range from armored vehicles and protective
    details for ambassadors to emergency plans and exercises and

    residential security.

    Public Diplomacy The National Security Strategy of the United States of
    America and the

    Builds International

    National Strategy for Combating Terrorism call for the United States to
    wage a *War of Ideas* against international terrorism, through effective
    Support for

    public diplomacy. Toward these objectives, the State Department and U. S.
    Foreign Policy Broadcasting Board of Governors conduct efforts to improve
    the image of the United States and support U. S. foreign policy. For
    example, to forestall

    possible negative perceptions of the United States and foster greater
    understanding of U. S. policy for key international audiences, State
    conducts public diplomacy through various media. Similarly, the

    Broadcasting Board of Governors conducts international broadcasts to
    worldwide audiences to help support U. S. strategic interests.

    State Department The State Department helps build and influence
    international opinion in Programs Promote

    support of U. S. foreign policy objectives. Since the terrorist attacks on
    the Anti- Terrorism Support

    United States on September 11, 2001, State has encouraged international
    support for efforts to combat terrorism overseas. For example, its
    programs have generated over 240 newspaper, 100 radio, and 150 television
    interviews, and over 300 opinion- editorial articles in newspapers either
    signed or prepared for U. S. ambassadors. Almost 60 U. S. speakers have
    traveled abroad on State- funded programs addressing September 11, 2001-
    related issues. U. S. embassies have sponsored over 100 panel discussions
    and over 220 speeches on combating terrorism. In addition,

    Network of Terrorism, a department- produced print and electronic
    pamphlet, is available in 36 languages and 1.3 million print copies are in
    circulation.

    Broadcasting Board of The Congress passed the United States International
    Broadcasting Act of

    Governors Promotes 1994 with the goal of reorganizing and consolidating U.
    S. international

    broadcast efforts. 21 The act created a bipartisan Broadcasting Board of
    U. S. Foreign Policy on

    Governors (the Board) to oversee and coordinate the efforts of all
    Combating Terrorism nonmilitary international broadcasting. The Board
    manages the operations of three federal broadcast entities* the Voice of
    America, WORLDNET Television and Film Service, and the Office of Cuba
    Broadcasting. The board also has supervisory authority over two non-
    profit corporations* Radio Free Europe/ Radio Liberty and Radio Free Asia.
    These broadcast

    21 Title III, P. L. 103- 236, Apr. 30, 1994.

    entities reach more than 125 markets worldwide in 65 different languages.
    With a fiscal year 2003 appropriated budget of $514 million, the Board
    employs 3,400 journalists, producers, technicians, and support personnel
    in Washington, D. C., and throughout 90 news bureaus and offices
    worldwide.

    The Board*s over- arching goal is to reach significant audiences worldwide
    in areas of strategic interest to the United States where freedom of the
    press does not fully exist. The board*s strategic plan includes an
    objective to *pioneer anti- terrorism broadcasting* to counter terrorists
    use of media coverage that inflict fear and panic in the public. 22 One
    project supporting anti- terrorism is the Middle East Radio Network (known
    as *Radio Sawa* in the region) that broadcasts and analyzes news and
    explains U. S. policies. Other recent initiatives in the region include
    the Afghanistan Radio Network and a service targeted at young adults in
    Iran called Radio Farda. Finally, the Congress has approved an initial
    round of

    funding for a new Middle East Television Network, which is expected to
    launch later in 2003.

    Coordination of Public The newly created Office of Global Communications
    was designed to Diplomacy Activities

    coordinate public diplomacy activities, including those related to
    terrorism. The Office was established under Executive Order 13283 on
    January 21, 2003, and will advise the President, heads of offices within
    the Executive Office of the President, and senior government officials on
    the most effective means of promoting the interests of the United States
    abroad. According to the Executive Order, the office will coordinate
    messages that

    reflect the strategic communications framework and priorities of the
    United States. The office is designed to facilitate the development of a
    strategy among federal agencies to help communicate such messages. The
    office will coordinate the deployment of *information teams* worldwide in
    areas of high global interest and media attention. These teams are
    intended to disseminate information to the on- site news media and assist
    media

    personnel in obtaining access to information, individuals, and events.
    Prior to any deployments abroad, the office is to consult with the
    Departments of State and Defense and notify the NSC.

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

    Visa and Border Visa and border controls are additional tools that are
    designed to help

    Controls Are Intended detect and prevent terrorism by keeping terrorists
    and their materials out

    of the United States. The National Strategy for Homeland Security has an
    to Prevent Terrorists

    objective to ensure the integrity of borders and prevent the entry of and
    Their Materials unwanted persons. It also has an objective to increase the
    security of from Entering the international shipping containers. According
    to the strategy, of the annual 500 million people who enter the United
    States legally, 330 million are not

    United States citizens. 23 Some of these non- citizens need visas to enter
    the United States.

    The Department of State uses various tools to screen visa applicants to
    identify potential terrorists. Intelligence and law enforcement agencies
    support this visa screening process by maintaining databases and watch
    lists of suspected terrorists and making that information available to the

    State Department. Factors such as a visa applicant*s country of origin can
    affect the level of scrutiny they receive. Visitors from certain countries
    (known as visa waiver countries) are not required to have visas because
    the Departments of State and Homeland Security have determined that they
    represent a low risk. State investigates visa and passport fraud to help
    maintain the integrity of travel documents and thus prevent terrorists
    from receiving visas or entering the country under false names. Further,
    the United States shares a 5, 525- mile border with Canada, a 1,989- mile
    border with Mexico, and possesses 95,000 miles of shoreline. The
    Department of Homeland Security guards the borders at and between almost
    400 ports of entry, seeking to interdict terrorists and their materials at
    the border. Finally, international cooperation is an important factor in
    strengthening international visa and border controls. For example, the
    State Department shares information on suspected terrorists with other
    countries to enhance their border controls.

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

    Visa Controls Designed State*s Bureau of Consular Affairs, provides
    overall supervision to consular to Keep Terrorists Out of the

    officers at U. S. missions overseas. Consular officers adjudicate visa
    applications from foreign citizens who wish to visit the United States. 24
    United States These consular officers aim to facilitate travel for those
    eligible to receive visas and deny visas to those who are ineligible. For
    the most common categories of nonimmigrant visas, an applicant must
    demonstrate that they (1) have a residence abroad, which they do not
    intend to abandon, (2) intend to leave the United States after a limited
    period of time, and

    (3) intend to engage in legitimate activities related to that nonimmigrant
    category. The most common nonimmigrant visas are those for temporary stays
    for business or pleasure (79 percent), special worker visas (4.6 percent),
    student visas (4.2 percent), and exchange visas (4 percent).

    All applicant information is entered into the Consular Consolidated
    Database before it is reviewed. The Bureau of Consular Affairs manages
    this database. After being entered into the database, applicant
    information is reviewed by a consular officer at a U. S. embassy or
    consulate. At that point, the consular officer may call the applicant in
    for an interview. The consular officer will conduct a name check on all
    applicants who ultimately receive a visa. In addition, some applicants may
    undergo a special security review if they fall into one of many special
    categories of visa applicants. A visa can be refused at any stage after it
    is entered into the database.

    Besides supporting the bureau*s visa mission, the Consular Consolidated
    Database also supports the work of law enforcement agencies. In fiscal
    year 2002, for example, the bureau performed numerous searches of
    nonimmigrant visa records at the request of federal law enforcement task

    forces investigating the terrorist attacks on September 11, 2001. In
    addition, the bureau*s Passport Services office provided law enforcement
    with 305 records. The bureau used facial recognition software to compare
    the photographs on the visa applications of the September 11, 2001,

    hijackers in the database against other visa photographs. 24 A visa
    enables a person to apply at a port of entry to enter the United States,
    but it does not guarantee that a person will be able to enter the United
    States. For a more detailed discussion of the nonimmigrant visa
    application process, see U. S. General Accounting Office, Border Security:
    Visa Process Should Be Strengthened as an Antiterrorism Tool,

    GAO- 03- 132NI (Washington, D. C.: Oct. 21, 2002). This report evaluates
    the visa process before September 11, 2001, and what changes have been
    made since then. It makes several recommendations to strengthen the visa
    process.

    Various Databases Are Used to The Consular Lookout and Support System
    (CLASS) name check system

    Screen for Terrorists is the primary means through which consular officers
    determine if a visa applicant is suspected of being a terrorist or could
    pose other security

    risks. Sources for information in CLASS include the State Department*s
    database of visa refusals, the State Department*s interagency watch list
    for terrorists, known as TIPOFF, and several other law enforcement and
    intelligence sources. CLASS also uses Arabic and Russian/ Slavic language
    algorithms to help increase the likelihood that the name check will find a
    person*s name if it is in the database. Consular officers must run an
    applicant*s name through CLASS before issuing a visa.

    The CLASS name check system includes information from the TIPOFF terrorist
    watch list, which is managed by State*s Bureau of Intelligence and
    Research. This list contains declassified biographical information, such
    as name, birth date, or passport number on thousands of suspected
    terrorists. This information is drawn from sensitive all- source
    intelligence and law

    enforcement data provided by the FBI, the CIA, and other intelligence
    community agencies. When a consular officer using CLASS receives a TIPOFF
    *hit* on an applicant*s name, the officer refers the case to the TIPOFF
    staff at the Department of State. The TIPOFF staff will then make
    available the classified information supporting the TIPOFF entry to
    authorized consular and legal experts within the Department of State, who
    then determine whether the evidence is sufficient to deny the visa
    request. The consular officer may not issue a visa until the Bureau of
    Consular Affairs has responded with its security advisory opinion. TIPOFF
    *hits* through the CLASS system are coordinated with the FBI and other
    agencies. Foreknowledge of pending terrorist travel has, in the past,
    enabled authorities to arrest terrorist suspects at ports of entry, or to
    conduct surveillance of them inside the United States.

    The Secretary of State, in consultation with the Attorney General, also
    updated the Terrorist Exclusion List and the Foreign Terrorist
    Organization lists, which designate groups as terrorist organizations.
    Members or supporters of these organizations are to be denied entrance at
    U. S. ports of entry and deported if found within the United States.

    The State Department also strengthened its oversight over visa operations
    by instituting new inspection measures. An embassy*s nonimmigrant visa
    chief, the visa chief, or the consular section chief is now required to
    periodically conduct spot checks of approved visa applications, in
    addition to the spot checks for CLASS name check compliance that are
    already in place. 25

    Level of Visa Screening Varies by Depending on their nationality, a visa
    applicant may require a special

    Risk Level of Country of Origin security review. Special clearance
    procedures and interagency name

    checks for visa applicants from certain countries were originally designed
    during the Cold War to screen out individuals who could pose a threat to
    U. S. interests, primarily through espionage. After the September 11,
    2001, terrorist attacks, the Departments of State and Justice revised
    these procedures. As a result, all male visa applicants aged 16 through 45
    from certain national groups received a 20- day computerized hold on their

    applications, during which a visa physically could not be issued. The
    application information was then electronically submitted to the FBI for
    the actual name check. Once 20 days had passed, the computer unlocked the
    applicant case. If a negative response had not been received from either
    the State Department or the FBI by this time, then the consular officer
    was permitted to issue a visa. This 20- day computerized hold requirement
    ended in October 2002, when another program* the Visa Condor program*
    became fully functional.

    The Visa Condor program is a name check procedure that is initiated when
    an applicant fulfills certain classified criteria. To help the consular
    officer determine whether Visas Condor criteria have been met, the State
    Department, in January 2002, began to require all 16- to 45- year old
    males from certain national groups to fill out a supplemental visa
    application form. This new form provides additional information such as an
    applicant*s travel and educational history, employment information, and
    military service. Under the Visas Condor process, the post sends an
    applicant*s information to the FBI National Name Check Program, where it
    is run against FBI databases. Some of the information in these databases
    comes from the FBI*s Foreign Terrorist Tracking Task Force. 26 In the
    event of a possible match, the information is sent back to the State
    Department. The consular officer cannot issue a visa to an applicant
    meeting Visas Condor criteria without an affirmative response from the
    Department of State. In

    25 See GAO- 03- 132NI.

    July 2002, the Visas Condor procedure became mandatory for all applicants
    over the age of 16 from countries listed as state sponsors of terrorism.

    Visitors from Selected Countries The Visa Waiver Program allows persons to
    enter the United States for

    Do Not Need Visas tourism or business for 90 days or less without applying
    for a visa if they

    are a citizen from one of 27 participating countries. 27 Citizens from
    participating countries would still be required to have a passport from
    their home country and, upon arrival, pass through standard border
    controls (discussed below). This program was created to improve U. S.
    foreign relations and encourage foreign travel to the United States
    without posing a threat to national security. 28 It also allowed the State
    Department to perform greater visa screening in high- risk countries,
    while scaling back its visa operations in low- risk countries. Country
    participation is contingent upon a Department of Homeland Security and
    Department of State review of the country*s political, social, and
    economic situation; the quality and security of its passport system; its
    border controls and immigration laws; its law enforcement policies and
    practices; as well as other relevant matters. (Prior to March 1, 2003, the
    Department of Justice performed this review with State.) Visa waiver
    countries also must have a low

    nonimmigrant visa refusal rate for their citizens, the ability to supply
    machine- readable passports, and must offer visa- free travel for U. S.
    citizens and nationals. The Secretary of Homeland Security, in
    consultation with the Secretary of State, may terminate a country*s
    participation in the program in the event of an emergency that threatens
    U. S. security or law enforcement interests, such as severe economic

    26 The FBI Foreign Terrorist Tracking Task Force is composed of personnel
    from a range of agencies, including the Department of Justice*s FBI and
    the Department of Homeland Security*s Bureau of Immigration and Customs
    Enforcement. It coordinates a multi- agency effort to identify, locate,
    and deny entry to or remove terrorists and their supporters from the
    United States.

    27 The 27 countries are Andorra, Australia, Austria, Belgium, Brunei,
    Denmark, France, Finland, Germany, Iceland, Ireland, Italy, Japan,
    Liechtenstein, Luxembourg, Monaco, the Netherlands, New Zealand, Norway,
    Portugal, San Marino, Singapore, Slovenia, Spain, Sweden, Switzerland, and
    the United Kingdom.

    28 For a more detailed discussion and our evaluation of this program, see
    U. S. General Accounting Office, Border Security: Implications of
    Eliminating the Visa Waiver Program, GAO- 03- 38 (Washington, D. C.: Nov.
    22, 2002). We reported on the process used to assess countries*
    eligibility to participate in the Visa Waiver Program and the implications
    in

    eliminating the program. Such implications could affect U. S. relations
    with other countries, U. S. tourism, and State Department resources
    abroad; however, the impact on national security is unclear.

    collapse or a breakdown of the rule of law within a country. 29
    Previously, the Attorney General, in consultation with the Secretary of
    State, had this authority. While the Justice Department has not
    systematically collected data on how frequently potential terrorists and
    other criminals have entered the United States, anecdotal information
    indicates that such individuals have entered the United States under the
    Visa Waiver Program

    as well as with valid U. S. visas. Participating countries must certify by
    October 26, 2004, that they have a program to issue tamper- resistant,
    machine- readable passports that contain biometric and document
    authentication identifiers. 30 This is required by the Enhanced Border

    Security Act of 2002, which also conditioned participation on a country*s
    timely reporting of its stolen blank passports to the United States. 31

    State Department The National Strategy for Homeland Security has an
    objective to combat

    Investigates Visa and fraudulent travel documents. Toward this objective,
    the State Department Passport Fraud

    attempts to impede terrorist entry into the United States through its
    investigations of visa and passport fraud. The Bureau of Diplomatic
    Security investigates more than 3, 500 passport and visa fraud cases
    annually, resulting in more than 500 arrests each year. A number of
    suspects have been linked to terrorism. The bureau has 450 special agents
    in over 160 countries and approximately 700 special agents assigned
    throughout the United States. State*s Office of the Inspector General also
    conducts visa and passport investigations.

    29 GAO- 03- 38. 30 For a more detailed description and evaluation of
    biometrics in this context, see U. S. General Accounting Office,
    Technology Assessment: Using Biometrics for Border Security, GAO- 03- 174
    (Washington, D. C.: Nov. 15, 2002). In this report, we identified

    important policy trade- offs between increasing security and the impact on
    areas such as privacy, economy, traveler convenience, and international
    relations. Also, we reported that biometric technology can play a role in
    associating a person with travel documents such as visas and passports.
    When used at a border inspection, biometrics can help determine

    whether to admit a traveler into the United States. 31 Enhanced Border
    Security and Visa Entry Reform Act of 2002 (P. L. 107- 173), May 14, 2002.

    Border Controls Attempt to Border controls staffed by officers from the
    Department of Homeland

    Deter Entry of Terrorists Security also play a role in deterring
    terrorists and their materials from

    and Their Materials entering the United States. All visitors, whether they
    have visas or are

    seeking to enter the United States under the Visa Waiver Program, are to
    undergo inspections at U. S. ports of entry. The Border Patrol and U. S.
    Coast Guard work between U. S. ports of entry to detect and prevent
    terrorists and their materials from entering the United States. On March
    1, 2003, the Immigration and Naturalization Service, Border Patrol, U. S.
    Customs Service and U. S. Coast Guard became part of the new Department of
    Homeland Security.

    Immigration Controls Department of Homeland Security immigration
    inspectors are to conduct a primary inspection of travelers arriving at a
    U. S. port of entry. During these inspections, the immigration inspector
    observes the applicant, examines their passport, and utilizes automated
    databases to judge admissibility. The inspector should either permit
    travelers to enter or refer them to secondary inspection, where a more
    detailed examination of travel documents or further questioning can be
    conducted. People may be refused entry for the same reasons they may be
    refused a visa. Immigration inspectors use the Interagency Border
    Inspection System* a multi- agency database of lookout information that
    alerts inspectors of conditions that may make travelers inadmissible to
    the United States. It also provides information about warrants for U. S.
    citizens who may be wanted by U. S. law enforcement. Data sharing between
    this system and the TIPOFF database began in 1991 and, since then, it has
    enabled immigration inspectors to intercept 290 terrorists from 82
    countries at 84 different ports of entry. In fiscal year 2001, immigration
    inspectors using TIPOFF through the Interagency Border Inspection System
    had 86 matches from the terrorism database at ports of entry. Of these, 38
    were denied entry and 1 was arrested. During primary inspection, the tools
    used by immigration inspectors differ according to type of entry.

     Air Ports of Entry. At the 155 air ports of entry, commercial airline
    carriers are required to transmit passenger and crew manifests to
    immigration inspectors through the Advance Passenger Information System
    for flights into the United States. This information includes a
    passenger*s name, date of birth, nationality, and passport number. With
    this information, immigration inspectors can analyze intelligence on
    passengers before flights arrive and identify passengers who will require

    referral to secondary inspection. Immigration inspectors at air ports of
    entry have access to the Interagency Border Inspection System.

     Sea Ports of Entry. At the 86 sea ports of entry, primary inspection at
    stations equipped with the Interagency Border Inspection System functions
    much the same as airports. Where this system is not available, immigration
    inspectors board ships with the Portable Automated Lookout System. This
    system contains lookout information, which immigration inspectors use to
    conduct name checks and examine documents of all aliens aboard a vessel.

     Land Ports of Entry. At the 154 land ports of entry, immigration
    inspectors can query the Interagency Border Inspection System with a
    traveler*s name, passport, or license plate number. Documents and names of
    a vehicle*s driver are checked randomly or when an inspector suspects that
    something is wrong.

    An immigration inspector can refer a traveler to secondary inspection at
    any port of entry. In secondary inspection, inspectors are to review a
    traveler*s documents for accuracy and validity and check various databases
    for any information that could affect the traveler*s entry, including
    criminal history information from the FBI and non- immigrant visa issuance
    data

    from State Department. An immigration inspector conducting a secondary
    inspection can also utilize a fingerprint identification system to
    determine whether a traveler has been previously apprehended for an
    immigration offense or is wanted by U. S. law enforcement. As mentioned
    above, a traveler may be refused entry for the same reasons they can be
    denied a visa. 32

    A number of new immigration initiatives were started after September 11,
    2001. The predominant focus of these initiatives has been to establish
    relationships with other countries to coordinate with their border, law
    enforcement, and intelligence officials on immigration matters.

     Operation Global Shield. For this operation, the former Immigration and
    Naturalization Service deployed *immigration control officers* to a number
    of overseas transit points around the world to push out the

    32 For a more detailed discussion and our evaluation of INS border
    security processes, see GAO- 03- 174 and U. S. General Accounting Office,
    Illegal Aliens: INS* Processes for Denying Aliens Entry into the United
    States, GAO- 02- 220T (Washington, D. C.: Nov. 13, 2001). In this
    testimony, we discussed INS* processes for denying aliens entry at land
    and airports of entry, including the expedited removal and credible fear
    processes. In addition, see our testimony Weaknesses in Screening Entrants
    into the United States, GAO- 03- 438T (Washington, D. C.: Jan. 30, 2003).

    U. S. line of defenses against illegal immigration related to terrorism.
    These officers, who have no law enforcement authority in these foreign
    countries, have an advisory and consultative role. The specific functions
    of Operation Global Shield are to disrupt and deter the smuggling of
    select aliens, prevent the movement of persons who are security risks,

    provide advance notice of passengers warranting closer inspection upon
    arrival, collect law enforcement intelligence, cooperate on apprehensions
    and prosecutions, and provide training on fraudulent

    travel documents.  Operation Southern Focus. For this operation, the
    former Immigration

    and Naturalization Service deployed special agents and intelligence
    analysts abroad to target key smuggling organizations in Latin America and
    the Caribbean. These U. S. personnel have been working with authorities in
    Mexico, Guatemala, Panama, and the Dominican Republic, as well as other U.
    S. personnel stationed overseas to identify, investigate, and prosecute
    regional smuggling organizations. According

    to officials, undercover operations are ongoing in several areas to
    capture key smugglers and return them to the United States.

    Customs Controls At ports of entry, Department of Homeland Security
    customs inspectors look for illegal materials, such as drugs, currency,
    and explosives, whether or not the contraband is intended for terrorism.
    While most of the customs inspection equipment was developed and acquired
    to detect drugs, the majority of this equipment does not detect specific
    substances but detects anomalies in general. For example, X- ray machines
    may alert an inspector to something unusual about an item being examined
    and, therefore, the possible concealment of materials. 33

    The Department of Homeland Security also utilizes export controls to
    prevent illegal exporters, terrorist groups, and international criminal
    organizations from (1) trafficking in weapons of mass destruction and
    their components; (2) obtaining and illegally exporting controlled
    commodities, technologies, conventional munitions, and firearms; (3)
    exporting stolen property from the United States; and (4) engaging in
    financial and other

    33 For a more detailed description and evaluation of these efforts, see U.
    S. General Accounting Office, Container Security: Current Efforts to
    Detect Nuclear Materials, New Initiatives and Challenges, GAO- 03- 297T
    (Washington, D. C.: Nov. 18, 2002). In this

    testimony, we reported that programs in place to detect certain terrorist
    materials were limited in a number of respects and rely heavily on the
    availability of quality information for targeting those cargoes posing the
    greatest risk.

    transactions that support these activities or that violate U. S. sanctions
    and embargoes.

    A number of new customs initiatives were started after September 11, 2001.
    The predominant focus of these initiatives has been to establish
    additional lines of security in the supply chain of international
    commerce. Examples of these initiatives are below.

     Container Security Initiative. This program, initiated by the former U.
    S. Customs Service, seeks to extend customs inspections beyond U. S. ports
    of entry rather than waiting for these goods to arrive in U. S. ports for
    screening and inspection. Begun in January 2002, its goal is to place U.
    S. customs personnel at ports of origin or transit to screen cargo
    containers and select high- risk containers for inspection by the host
    country*s customs administration. As one of its first steps, the United
    States entered into negotiations with governments of the top 20 *mega-
    ports* that handle 66 percent of the containers destined for the United
    States. As of the end of January 2003, 11 governments representing 16 of
    the top 20 mega- ports have signed arrangements, and the United States has
    placed customs officers in 2 of these ports. 34 The United States also has
    placed customs officers at 3 ports in Canada,

    which are not among the top 20 mega- ports. Other elements of the
    Container Security Initiative include improving security criteria to
    identify high- risk containers, expanding the use of technology in the
    United States and foreign ports to examine high- risk containers, and
    developing the use of smart and secure containers.

     Customs Trade Partnership Against Terrorism. This program, also
    initiated by the former U. S. Customs Service, focuses on efforts by
    importers and others to enhance security procedures along their supply
    chains in exchange for certain benefits, such as reduced likelihood of
    inspections. As part of this initiative, which began in April 2002,
    importing businesses, freight forwarders, carriers, and other logistics

    providers enter into agreements with the United States to voluntarily
    undertake measures that will reduce security vulnerabilities. 34 The 11
    governments and their ports are Belgium (port of Antwerp), France (port of
    Le Havre), Germany (ports of Bremerhaven and Hamburg), China (port of Hong
    Kong), Italy (ports of Genoa and La Spezia), Japan (ports of Tokyo,
    Nagoya, Kobe, and Yokahama), the Netherlands (port of Rotterdam),
    Singapore, South Korea (port of Pusan), Spain (port of Algeciras), and
    United Kingdom (port of Felixstowe). As of January 2003, the Department of
    Homeland Security had placed customs officers at the ports of Rotterdam
    and Le Havre.

     Project Shield America. This industry outreach program was launched by
    the former U. S. Customs Service in December 2001 and seeks the
    cooperation of companies involved in the manufacture, sale, and/ or export
    of U. S.- origin technology and munitions items in identifying suspicious
    or unusual inquiries or orders. Customs agents have visited over 5,000
    companies since the inception of Project Shield America and

    have initiated dozens of criminal investigations based on information
    gathered during these visits.

    Border Patrol Between Ports Between U. S. ports of entry, the Department
    of Homeland Security*s of Entry

    Border Patrol has the mission to detect and apprehend illegal aliens and
    smugglers (including potential terrorists). The Border Patrol, formerly
    part of the Immigration and Naturalization Service, has a workforce of
    about

    9,500 agents and is responsible for patrolling about 6,000 miles of
    Mexican and Canadian international land borders and 2, 000 miles of
    coastal waters surrounding the Florida Peninsula and the island of Puerto
    Rico. Agents patrol these borders utilizing various vehicles, including
    aircraft, marine vessels, all- terrain vehicles, and horse units. Border
    Patrol agents also conduct traffic checks on selected major highways
    leading away from the border. They also maintain bike patrols in some
    urban areas near ports of entry. In fiscal year 2002, Border Patrol agents
    made nearly 1 million apprehensions of aliens attempting to enter or
    reside in the country illegally.

    Maritime Controls Outside Ports The U. S. Coast Guard, which transferred
    from the Department of of Entry

    Transportation to the Department of Homeland Security in March 2003,
    participates in efforts to detect terrorists and their materials outside
    maritime ports of entry. Shortly after the September 11, 2001, terrorist
    attacks, the U. S. Coast Guard modified its ship arrival notification
    requirements as part of its screening process for identifying and boarding
    vessels of special interest or concern. The modification requires all
    vessels over 300 gross tons to contact the U. S. Coast Guard 96 hours* up
    from 24 hours* before they are scheduled to arrive at a U. S. port. Each
    vessel

    must provide information on its destination, its scheduled arrival, the
    cargo it is carrying, and a roster of its crew. This information, which is
    processed and reviewed by the U. S. Coast Guard*s National Vessel Movement
    Center,

    is used in conjunction with intelligence data to identify *high interest*
    vessels. Decisions on appropriate actions to be taken with respect to such
    vessels, such as whether to board, escort, or deny entry are based upon
    established criteria and procedures.

    International Cooperation International cooperation is an essential tool
    in restricting terrorist

    Efforts to Strengthen Visa movements around the globe. State*s Office of
    the Coordinator for

    and Border Controls Counterterrorism uses the Terrorist Interdiction
    Program to enhance

    border security by providing participating foreign governments with a
    computerized database that allows border control officials to identify and
    detain or track individuals of interest. The program currently is
    installed in 2 foreign countries, with another 60 countries under
    consideration. State plans to install the program in up to five new
    countries per year. Additionally, the USA PATRIOT Act authorizes the
    Secretary of State to share sensitive visa information with foreign
    government officials where appropriate.

    International cooperation is also important in preventing terrorist
    materials from entering the United States. As mentioned, the Department of
    Homeland Security is working with other countries to place its customs
    agents overseas as part of the Container Security Initiative. In addition,
    the United States is working with several international organizations in
    setting standards and procedures for cargo security.

    International Maritime The International Maritime Organization is
    responsible for improving

    Organization maritime safety, including combating acts of violence or
    crimes at sea. Following the September 11, 2001, terrorist attacks, the
    organization

    started drafting new regulations needed to enhance ship and port security
    and to prevent shipping from becoming a target of international terrorism.
    The International Maritime Organization adopted port and ship security
    measures in December 2002 at its conference of the parties to the
    International Convention for the Safety of Life at Sea. 35

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

    35 The International Convention for the Safety of Life at Sea amendments
    and its accompanying International Ship and Port Facility Security Code
    include a number of measures, such as (1) shipboard automatic identifier
    systems; (2) ship- to- shore alert systems; (3) port state control over
    ships; (4) continuous maintenance of ship registry, ownership, and
    operational control information; and (5) clear responsibilities for threat
    assessments and security plans. In November 2002, the President signed the
    Maritime Transportation Security Act of 2002 (P. L. 107- 295), Nov. 25,
    2002, that, according to the State

    Department, tracks very closely with these international measures. The U.
    S. Coast Guard currently is developing regulations to implement the
    International Convention for the Safety of Life at Sea, International Ship
    and Port Facility Security Code, and the Maritime Transportation Security
    Act.

    customs administrations. In September 2002, the organization established a
    task force to develop new guidelines for supply chain security. U. S.
    customs agents are participants in this task force, which is scheduled

    to complete its work in June 2003. The task force will examine numerous
    security related topics, including enhancing in- transit controls,
    improving technology, and better data for selecting which cargoes to
    inspect.

    International Organization The International Organization for
    Standardization is another important

    for Standardization international body involved in improving supply chain
    security. It is a

    worldwide nongovernmental federation of national standard bodies from more
    than 140 countries that attempts to standardize various activities and
    products related to international trade. The organization currently is
    participating in a pilot project dealing with electronic seals on cargo
    containers.

    International Labor Organization The International Labor Organization is a
    United Nations (UN) agency that sets requirements for seafarer
    identification documents. Such documents are important for checking on the
    background of crewmembers who are transporting cargo destined for the
    United States. Since February 2002, this organization and the
    International Maritime Organization have been working on the issue of
    seafarer documents.

    UN Subcommittee of Experts on The UN Subcommittee of Experts on
    Transportation of Dangerous

    Transportation of Materials provides advice on international regulations
    concerning the

    Dangerous Materials transport of dangerous materials. U. S. Department of
    Transportation

    delegates to the subcommittee have worked collaboratively with other
    governments to develop a consensus on new security requirements.

    International Civil The International Civil Aviation Organization is
    working to set improved

    Aviation Organization security standards for travel documents, such as
    passports and visas.

    Coordination Mechanisms Border security is an issue that crosses both
    homeland security and Related to Border Security

    combating terrorism overseas. The Office of Homeland Security (the
    domestic equivalent of the NSC with respect to terrorism) coordinates
    issues across agencies through a number of policy coordination committees.
    The office has a specific policy coordination committee for Key Asset,
    Border, Territorial Waters, and Airspace Security. In addition, the
    overall strategy for border security is described in the National

    Strategy for Homeland Security and includes ensuring the integrity of
    borders and preventing the entry of unwanted persons. In addition, the new

    Department of Homeland Security serves a coordination role by
    consolidating several agencies that were formerly under separate
    departments including the Immigration and Naturalization Service,

    U. S. Border Patrol, U. S. Customs Service, and U. S. Coast Guard. The new
    department has a Directorate of Border and Transportation Security charged
    with preventing the entry of terrorists and securing the borders:
    territorial waters; ports; terminals; waterways; and air, land, and sea
    transportation systems of the United States.

    Agencies also attempt to coordinate border security activities by sharing
    selected information on their various watch lists. Nine federal agencies
    develop and maintain 12 watch lists of suspected and known criminals and
    terrorists. 36 As mentioned above, the Department of State provides
    information from CLASS to the Interagency Border Inspection System. This
    enables State, law enforcement and intelligence agencies, and immigration
    officials to share information on individuals who should not receive U. S.
    visas. State also provides information on lost and stolen U. S. passports
    to the Department of Homeland Security.

    Efforts to prevent terrorist materials from entering the United States are
    coordinated through an Interagency Container Working Group. This group is
    co- chaired by the Departments of Transportation and the Treasury. The
    Secretary of Transportation established this group to address the security
    issues surrounding the movement of marine cargo containers through the
    international transportation system. For example, the group has made
    recommendations to improve the security of container transportation. These
    recommendations include such measures as improving the coordination of
    government and business container security activities, enhancing cargo
    data collection, and improving the physical security of containers.

    36 For a more detailed description and evaluation of these watch lists,
    see U. S. General Accounting Office, Information Technology: Terrorist
    Watch Lists Should Be Consolidated to Promote Better Integration and
    Sharing, GAO- 03- 322 (Washington, D. C.: Apr. 15, 2003). We reported that
    the federal government*s

    approach to using watch lists in performing its border security mission is
    decentralized and nonstandard and recommended that the Secretary of the
    Department of Homeland Security, in collaboration with the heads of other
    agencies that have and use watch lists, lead an effort to consolidate and
    standardize the federal government*s watch list structures and policies.

    Coalition Capabilities One of the enduring policy principles that guides
    U. S. strategies to combat

    Are Enhanced through terrorism overseas is bolstering the counterterrorist
    capabilities of those

    countries that work with the United States and require assistance. The
    Bilateral Programs

    National Security Strategy of the United States of America calls for and
    Activities

    ensuring that other nations have the political, law enforcement,
    financial, and military tools to combat terrorism within their borders. In
    addition, the National Strategy for Homeland Security calls for the United
    States to help foreign nations combat terrorism. These efforts to improve
    other countries* capabilities are another part of preventing terrorism led
    by the Department of State. The department has overall leadership of
    bilateral relations, including programs to assist foreign nations. Such
    programs consist of training, equipment, and other assistance to improve
    foreign police and

    military capabilities. While State has the overall lead, many of these
    assistance programs are implemented in conjunction with the Departments of
    Defense, Justice, and the Treasury. For example, the Antiterrorism
    Assistance program is managed by State while some training is provided by
    other agencies, such as the FBI, Drug Enforcement Administration, and U.
    S. Secret Service. Such training by other agencies is provided under the
    direction and oversight of the Bureau of Diplomatic Security*s
    Antiterrorism Assistance program. These assistance efforts seek to not

    only prevent terrorist attacks, but also improve the capabilities of other
    countries to disrupt and destroy terrorists and to respond to terrorist
    incidents.

    Training to Improve Other Many U. S. coalition partners that want to
    eliminate terrorism in their own

    Countries* Law countries do not have the capability to combat terrorism
    effectively in the

    Enforcement Capabilities to areas of law enforcement and security. Many
    are developing countries

    Combat Terrorism that lack human and other resources needed to establish
    and maintain an

    effective antiterrorism program and infrastructure. U. S. law enforcement
    training programs and facilities help build the capacity of coalition
    partner nations to combat terrorism overseas and augment their existing
    capabilities by providing training, relevant support equipment, and
    technical advice. These programs and facilities include the (1)
    Antiterrorism Assistance program, (2) International Criminal

    Investigative Training Assistance Program (ICITAP), (3) Office of Overseas
    Prosecutorial Development, Assistance and Training (OPDAT), (4) Countering
    Terrorist Financing, (5) FLETC, and (6) International Law Enforcement
    Academies (ILEA).

    Antiterrorism Assistance The Bureau of Diplomatic Security*s Office of
    Antiterrorism Assistance

    Program designs, manages, implements, provides oversight, and evaluates
    the

    Antiterrorism Assistance program. The program provides training to
    approved foreign national participants in five areas: (1) law enforcement,
    (2) protection of national leadership, (3) control of borders, (4)
    protection of critical infrastructure, and (5) crisis management. Since
    its inception in 1983 as a major initiative against international
    terrorism, the program through fiscal year 2001 has trained more than
    28,000 foreign law enforcement and security personnel representing 124
    countries in crisis management, dignitary protection, bomb detection,
    airport security, border control, kidnap intervention, terrorist
    financing, pipeline security, and response to incidents involving weapons
    of mass destruction. These foreign law enforcement and security personnel
    can help protect Americans living, working, and traveling abroad, because
    they are responsible for taking offensive action against international
    terrorist cells and networks that target Americans overseas and in the
    United States. They also have the primary responsibility for responding to
    and mitigating the impact of terrorist attacks* including those directed
    against U. S. targets* that occur in their home countries.

    State*s Office of the Coordinator for Counterterrorism provides policy
    guidance to the program and ensures that the training assistance reflects
    U. S. national objectives and priorities. According to State*s Office of
    the Coordinator for Counterterrorism, antiterrorism assistance is
    considered on a priority basis for countries that meet one or more of the
    following criteria: (1) the country is categorized as a critical or high-
    threat for terrorism and cannot adequately protect U. S. facilities and
    personnel in the country with their own resources, (2) a substantial U. S.
    presence exists in the country, (3) the country is served by a U. S. air
    carrier or is the last point of departure for airline flights to the
    United States, (4) important bilateral policy interests are at stake, and/
    or (5) the country is not in violation of

    human rights legislation. Training may be initiated by the U. S.
    government or requested by the potential participant government. Once
    State makes a policy determination that antiterrorism assistance is
    needed, the U. S. mission in that country determines if such assistance is
    feasible. A Bureau of Diplomatic Security- led team of experts assesses
    the country*s civil police antiterrorism capabilities and identifies
    specific training needs.

    The team considers five basic areas that are fundamental in any nation*s
    defense against terrorism. Collectively, they establish the framework for
    determining a country*s ability to deter and/ or respond to terrorist
    threats. The team assesses the host government*s ability to (1) enforce
    the law, preserve the peace, and protect life and property; (2) protect
    its national

    leadership, the seat and functions of government, and the resident
    diplomatic corps; (3) control its international borders; (4) protect its
    critical infrastructure; and (5) manage crises having national
    implications.

    Finally, State*s Bureau of Democracy, Human Rights, and Labor helps
    determine a country*s eligibility to participate in the program based on
    the country*s human rights record. U. S. missions abroad screen each
    training candidate to ensure that no human rights abusers or foreign
    officials involved in corrupt practices are included.

    Most of the antiterrorism assistance involves U. S.- based training,
    technical consultations, seminars, in- country training, exercises, and
    program reviews. Training is tailored to meet a country*s specific needs
    in various police and internal security disciplines. While the program
    does not provide basic police training, it does provide courses designed
    to improve functional police skills, mid- level supervisory skills, and
    senior- level management and leadership skills. Training is provided at
    various federal, state, local, and private contractor venues in the United
    States. In addition, the Antiterrorism Assistance program proposes to
    build a Center for

    Antiterrorism and Security Training at the U. S. Army*s Aberdeen Proving
    Ground, Maryland, which would be a consolidated state- of- the- art
    facility for training in antiterrorism disciplines. In addition to meeting
    the program*s growing demands for classroom space, the facility, if
    approved by the Congress, would include shooting and explosives ranges, a
    tactical driving track, and an extensive urban tactical training complex.
    Overseas training is conducted in the participant country to help sustain
    program effectiveness. Training is done by a variety of federal agencies.
    For example, the ATF supports the Antiterrorism Assistance program through
    its explosives enforcement officers, who have traveled to more than

    43 countries to evaluate foreign governments explosives incidents
    countermeasures and response capabilities, and ability to neutralize
    explosives threats.

    The program also provides non- standard assistance* if there is a
    compelling need. Courses, consultations, or advisory assistance to address
    significant security threats can include police administration,
    management, and organizational effectiveness; police instructor training;
    police academy development; judicial security; interview and investigative
    techniques; and integrated exercises. Recent technical consultations, for
    example, focused with Egypt on explosive detector dogs, with Greece on
    security preparations for the 2004 Olympic Summer Games in Athens, and
    with Yemen on investigations.

    The Antiterrorism Assistance program also provides participant countries
    with grants to purchase equipment directly related to the training. For
    example, grants might be used to procure airport passenger and baggage
    screening equipment, crime scene investigation kits, bomb render- safe
    tools, and tactical and communication equipment. To provide control over

    the transfer of such equipment, the regional security officer at the U. S.
    mission provides the equipment to the appropriate foreign government end-
    user( s). Once a participant country has received a significant amount of
    assistance and has had sufficient opportunity to incorporate it into its
    security operations, State conducts a program review to determine if the
    assistance should be expanded, refocused, or curtailed.

    The effectiveness of the Antiterrorism Assistance program, according to
    the Department of State, rests in its ability to reduce the threat of
    terrorism toward U. S. facilities overseas and U. S. personnel living,
    working, and traveling abroad. U. S. missions operating in participant
    countries experience a close working relationship with the host nation*s
    law enforcement and security forces. The program also is intended to
    provide the participant country police and security forces with a cadre of
    trained officers, familiar with American values and thinking, with whom
    the regional security officer and other U. S. mission personnel can rely
    on during a crisis. For example, in preparation for the 2004 Olympic
    Summer

    Games in Athens, Greek law enforcement officials have used the
    Antiterrorism Training program and equipment grants to improve their
    security preparations by participating in explosive ordnance and vital
    installation security training. Antiterrorism Assistance program- trained
    explosive detection dogs also are being requested from surrounding
    countries to assist the Greek police. These K- 9 units have the potential
    to assist with the protection of U. S. interests during the 2004 Olympic
    Summer Games.

    Mobile Emergency After the terrorist attacks of September 11, 2001,
    Antiterrorism Assistance Training Team

    program officials realized that key *front line* states in the war on
    terrorism often did not have adequate personnel to send anyone to the
    United States for training at the program*s U. S.- based facilities.
    Pakistan, for example, declined all Antiterrorism Assistance training
    offers for months for that reason. In response to the urgency surrounding
    training support requirements of *front line* countries, program officials
    decided to forego the U. S. training experience and provide more in-
    country training, because participants may have to be withdrawn to handle
    operational crises. Thus, the program established the Mobile Emergency
    Training Team that can be airborne on 72 hours notice to provide this
    training in the

    participant country. Instructors will be trained in four key disciplines:
    VIP protection, critical response team (special weapons and tactics)
    operations, bomb disposal operations, and high- risk police patrol/
    firearms instructor training.

    International Criminal The purpose of ICITAP, which is located in
    Justice*s Criminal Division, is to

    Investigative Training provide training and development assistance to
    foreign police agencies

    Assistance Program worldwide in the form of technical advice, training,
    mentoring, equipment

    donation, and internships with criminal justice organizations. The mission
    of ICITAP is to support U. S. foreign policy and criminal justice goals by
    helping foreign governments develop the capacity to provide modern
    professional law enforcement services based on democratic principles and
    respect for human rights. ICITAP also has direct antiterrorism
    applications,

    which are discussed below. Specific ICITAP activities or projects are
    initiated at the request of the NSC, Department of State, and/ or USAID in
    agreement with the foreign governments requesting the assistance. Priority
    is to be given to countries in transition to democracy, where unique
    opportunities exist for major restructuring and refocusing of police and
    investigative resources toward establishment of the rule of law.
    Currently, ICITAP is managing programs in 18 countries and a regional
    program in the Newly Independent States. 37

    Although focused primarily on supporting U. S. criminal justice goals
    internationally, according to the Department of Justice, ICITAP also has a
    number of direct antiterrorism applications to include: (1) infrastructure
    development training and technical assistance, (2) criminal investigator
    training, (3) training academy development, (4) information acquisition,
    management, and analysis, (5) forensics technical assistance and training,
    (6) professional responsibility, (7) border control, (8) civil disorder
    management and control, and (9) managing significant events.

    37 ICITAP*s Newly Independent States Regional Assistance Program includes
    Belarus, Georgia, Moldova, Kazakhstan, Kyrgyzstan, Turkmenistan, Ukraine,
    and Uzbekistan.

    Office of Overseas Prosecutorial Created in 1991, OPDAT provides justice-
    sector institution- building

    Development, Assistance assistance, including training of foreign judges
    and prosecutors in and Training

    coordination with various government agencies and U. S. embassies.
    Although part of Justice*s Criminal Division, OPDAT programs are funded
    principally by the Department of State and USAID. 38

    OPDAT programs take place in South America, the Caribbean, Central and
    Eastern Europe, Russia, the new independent states of the former Soviet
    Union, Africa, the Middle East, Asia, and the Pacific region. In many of
    these countries, OPDAT has placed resident legal advisors. The advisors
    are experienced prosecutors who are intended to interact with local
    justice- sector officials and direct OPDAT assistance projects. These
    projects seek to strengthen the legislative and regulatory criminal
    justice infrastructure within the host country, and enhance the capacity
    of that

    country to investigate and prosecute crime more effectively, consistent
    with the rule of law. USAID*s Center for Democracy and Governance has an
    agreement with Justice that allows USAID missions around the world to
    access OPDAT for help in activities such as conducting justice sector
    assessments, reviewing laws and legislation, designing rule of law
    programs, and providing other technical assistance.

    In response to the August 1998 terrorist bombings of the two U. S.
    embassies in East Africa* and at the suggestion of State*s Office of the
    Coordinator for Counterterrorism, the Bureau of Diplomatic Security*s
    Antiterrorism Assistance program sponsored (in cooperation with OPDAT,
    Justice*s Counterterrorism Section, and the FBI) the development of the

    Financial Underpinnings of Terrorism Program specifically to assist U. S.
    coalition partners in identifying and attacking terrorism*s financial
    aspects. Because the motive behind terrorist crimes is often political or

    ideological rather than financial, terrorists* revenues, expenditures, and
    methods of moving funds differ from profit- oriented organized crime
    networks. Thus, this program takes a somewhat different approach to
    combating money laundering and organized criminal activity. The program
    conducts one session for senior policy level officials and a second
    session 38 USAID also supports programs to train foreign law enforcement,
    prosecutors, and judges

    and to assist in rewriting legislation and criminal sentencing guidelines.
    USAID missions and State*s Bureau for Democracy, Conflict, and
    Humanitarian Assistance have rule- of- law and governance programs in
    about 60 of the 85 countries where USAID has a presence.

    for front- line investigators, analysts, judges, and prosecutors. Senior
    officials receive training on the methods of financing terrorism,
    financial investigation as a means of combating terrorism, and legal and
    operational

    impediments, while the front- line officials conduct practical exercises
    and receive training focused on developing best practices for
    investigating and prosecuting those engaged in providing financial support
    to terrorists. According to OPDAT, sessions to date, for example, have
    helped strengthen Philippine money- laundering laws, which enhance the
    Philippine*s ability to detect and disrupt terrorist financing; provided
    assistance to Azerbaijan on counter- terrorist legislation; and helped
    State conduct a counterterrorism assessment in Pakistan.

    Working with the State Department*s Office of the Coordinator for
    Counterterrorism and the Antiterrorism Assistance program, OPDAT organized
    a series of seven seminars in Washington, D. C., to help provide

    guidelines to countries in strengthening their counterterrorism
    legislation and regulations and in complying with UN Security Council
    Resolution 1373. U. S. government experts, as well as presenters from the
    United Nations, Australia, Canada, Germany, and the United Kingdom,
    conducted the seminars for 36 participating countries. The Office of the
    Coordinator

    for Counterterrorism and OPDAT also provided a similar seminar in Botswana
    in March 2003 to southern African countries.

    A key element in protecting Americans against the threat of terrorism is
    U. S. assistance to its coalition partners in strengthening their capacity
    to investigate terrorist activity and prosecute and adjudicate overseas
    terrorist criminal acts, consistent with the rule of law. OPDAT*s
    CounterTerrorism Project takes a comprehensive, institution- building
    approach seeking to strengthen a country*s capability to investigate,
    prosecute, and adjudicate terrorist activity. To meet that goal, OPDAT*s
    Counter- Terrorism Project tries to (1) assist the host country in
    building or strengthening the legislative and regulatory infrastructure
    necessary to address threats from terrorist activity; (2) enhance, through
    development of relevant skills, the

    capacity 39 of host country officials to counter terrorist groups; (3)
    strengthen the capacity of host country to prevent, investigate, and
    prosecute terrorist groups through team building, cooperative and regional

    39 The term *capacity* means the potential of the host country*s justice
    sector human resources* its prosecutors and judges, police and other
    investigative personnel, and court and penal system officials.

    approaches; and (4) sustain results achieved through the development of
    permanent structures.

    Countering Terrorist Financing State*s Office of the Coordinator for
    Counterterrorism and Bureau for International Narcotics and Law
    Enforcement Affairs, along with the Departments of Justice and the
    Treasury, have a program called Countering Terrorist Financing. This
    program provides training and assistance to foreign governments to
    strengthen their financial and regulatory regimes to

    reduce terrorist financing. Federal Law Enforcement

    The Department of Homeland Security*s FLETC, headquartered in Glynn
    Training Center

    County (* Glynco*), Georgia, serves as an interagency law enforcement
    training organization for federal law enforcement agencies. The center
    also provides services to state and local and international law
    enforcement agencies. FLETC offers selected, specialized training programs
    for foreign law enforcement personnel through its International Programs
    Division. These offerings are designed to meet training needs not
    generally available to these agencies and to enhance networking and
    cooperation throughout the law enforcement community. The Department of
    Homeland Security supervises FLETC*s administrative and financial
    activities, while FLETC*s partner organizations 40 have considerable input
    regarding training issues and operational and functional aspects of the
    center. Representatives from these agencies take part in regular
    curriculum review and development

    conferences as well as the development of FLETC policies and directives.
    As administered under FLETC*s International Programs Division, training is
    provided at the center through State*s Antiterrorism Assistance program
    and overseas through the U. S. government*s Law and Democracy Program and
    the International Law Enforcement Academies. To date, law enforcement
    officials from the Middle East, Africa, Central and South

    America, and Asia have attended antiterrorism courses at the center.
    However, since September 11, 2001, the center has placed its emphasis on
    training U. S. law enforcement officials at its Glynco, Georgia, facility.
    Since that time, training of foreign law enforcement officials is
    conducted

    primarily overseas through the Law and Democracy Program, 40 Federal
    partner organizations are made up of 31 departments and independent
    agencies. Selected partner organizations include the Departments of
    Defense, Energy, Health and Human Services, Justice, State, and the
    Treasury; the CIA; and the Federal Emergency Management Agency, among
    others.

    Antiterrorism Assistance program, and the International Law Enforcement
    Academies.

    International Law Much of the technical assistance that the United States
    provides to other

    Enforcement Academies nations for fighting international crime* including
    terrorism* involves

    training at law enforcement academies established abroad. International
    Law Enforcement Academies provide law enforcement training to foreign
    governments. State*s Bureau for International Narcotics and Law
    Enforcement Affairs funds and manages the U. S. government*s interagency
    regional ILEAs in Europe (in Budapest, Hungary), Southeast Asia (in
    Bangkok, Thailand), and Southern Africa (in Gaborone, Botswana) and a
    graduate- level ILEA (in Roswell, New Mexico), in a cooperative effort
    with the Departments of the Treasury and Justice, including the FBI. In
    addition, the bureau plans to establish another regional ILEA in the
    Western Hemisphere (in San Jose, Costa Rica). In fiscal year 2003, the
    bureau is scheduled to provide law enforcement training to some 12,000
    officials,

    doubling the number trained in fiscal year 2001. The National Strategy for
    Combating Terrorism calls for broadening the scope and strength of the
    ILEAs.

    To achieve overall coordination of the ILEAs domestically, a Policy Board
    was established that is comprised of members from each department and
    appointed by the Secretary of State, the Attorney General, and the
    Secretary of the Treasury. The mission of these academies has been to
    support emerging democracies; help protect U. S. interests through
    international cooperation; and promote social, political, and economic
    stability by combating crime. ILEAs also are to encourage strong
    partnerships among regional countries to address common problems

    associated with criminal activities.  ILEA Europe. In 1995, the United
    States and the Government of Hungary

    cooperated to create the first ILEA in Budapest, Hungary, under FBI
    leadership. ILEA Budapest*s purpose is to train law enforcement officers
    from Central Europe and the newly independent states of the former Soviet
    Union. The academy offers two categories of courses. An 8- week core
    course* a personal and professional development program*

    focuses on leadership, personnel and financial management issues, ethics,
    the rule of law, and management of the investigative process. According to
    the State Department, approximately 250 to 300 mid- level police officers
    and managers receive this training annually, which is provided by various
    U. S. agencies and Hungarian and Western European law enforcement
    agencies. Specialized short- term courses provide law

    enforcement officers with training on combating various types of crime,
    such as organized crime, financial crime, corruption, nuclear smuggling,
    illegal migration, and terrorism* including training on prosecuting

    criminal cases. According to the State Department, about 850 police,
    prosecutors, immigration specialists, and others participate in these
    courses annually.

     ILEA Southeast Asia. ILEA Southeast Asia* located in Bangkok, Thailand*
    opened in March 1999 under Drug Enforcement Administration leadership.
    Like the ILEA Budapest program, the purpose of ILEA Bangkok is to
    strengthen regional law enforcement cooperation and improve performance.
    According to the State Department, this academy*s curriculum and structure
    are similar to those of ILEA Budapest, with the exception of a shorter
    core course (6 weeks). In 1999, over 700 law enforcement personnel
    representing 10 countries participated in courses at the academy.

     ILEA Southern Africa. In July 2000, the State Department announced an
    agreement with the Government of Botswana to establish the ILEA for
    Southern Africa in Gaborone, under the leadership of FLETC. Similar in
    overall format to the other academies, ILEA Gaborone is to follow the
    model developed for ILEAs in Budapest and Bangkok by providing courses on
    a wide range of law enforcement skills, including police survival,
    forensics, basic case management, fighting organized crime, supervisory
    police training, police strategy, narcotics identification and evidence
    handling, customs interdiction, illegal migration, and public corruption.
    ILEA Gaborone*s curriculum also addresses special topics, such as stolen
    vehicles, money laundering, crimes against women, domestic violence,
    terrorism, and other critical topics such as human

    rights and policing.  ILEA Roswell, New Mexico. In September 2001, State
    opened a new

    ILEA in Roswell, New Mexico. This new facility, which will be open to
    graduates of the regional ILEAs, will offer shorter- term (4 weeks versus
    8 weeks) advanced training with a greater focus on an academic versus
    practical or operational curriculum.  ILEA Western Hemisphere. Tailored
    to the regional needs of officials

    from Central and South America and the Dominican Republic, pilot courses
    of a new Western Hemisphere ILEA already have been conducted at a
    temporary site in Panama. However, activities were

    suspended until a permanent location could be selected. State plans to
    establish ILEA San Jose in Costa Rica.

    U. S. Assistance to The National Strategy to Combat Weapons of Mass
    Destruction calls for

    Other Countries to active nonproliferation diplomacy. It also discusses
    the importance of

    Detect Weapons of international cooperation in reducing threats and
    controlling nuclear

    Mass Destruction materials. Toward these efforts, the United States has a
    number of

    programs that provide assistance to other countries to prevent the
    proliferation of weapons of mass destruction. These nonproliferation
    programs are intended to, among other things, keep terrorists from
    acquiring and using weapons of mass destruction. Currently, these programs
    are divided among several federal agencies including the Departments of
    State, Defense, Energy, Homeland Security, and Justice. U. S. assistance
    began in the mid- 1990s under DOD*s Cooperative Threat Reduction program
    and then expanded to the Departments of State and Energy and other DOD
    programs.

    The agencies have provided a range of assistance, including installing
    security equipment around nuclear facilities, conducting research and
    development on nonproliferation and verification technologies, as well as
    providing conventional equipment and training. DOE has been leading many
    of these efforts. For example, over the last 7 years, Energy has worked
    cooperatively with Russia to install modern nuclear security systems at
    Russia's nuclear material sites. These security upgrades consist of (1)
    physical protection systems, such as fences and metal doors; (2) material
    control systems, such as seals attached to nuclear material containers and
    badge systems that only allow authorized personnel into areas containing
    nuclear material; and (3) material accounting systems, such as inventories
    of nuclear material and computerized databases. In addition, Energy*s
    National Nuclear Security Administration has been conducting research and
    development on new technologies that are

    intended to improve U. S. capabilities in nuclear explosion monitoring,
    proliferation detection, and response to chemical or biological attacks.
    Furthermore, as part of their nonproliferation assistance programs, Energy

    and the other five agencies have been providing equipment and training to
    Russia and other countries* mostly in Central and Eastern Europe.
    Radiation detection equipment is one of the many types of assistance that
    the U. S. agencies are providing. Other equipment ranges from simple hand
    tools for taking apart and searching different compartments of a vehicle
    for

    hidden contraband to boats and vehicles for conducting patrols. Similarly,
    training ranges from hands- on instruction in using the equipment and
    conducting searches to high- level technical exchanges on establishing the
    legal and regulatory basis for preventing illicit trafficking and trade in
    sensitive goods and materials that terrorists could use in a nuclear
    weapon. 41

    While the Departments of Defense, Energy, and State receive their own
    funding for their assistance programs, the Departments of Homeland
    Security and Justice receive their funding from State and/ or DOD. Energy
    also receives part of its funding from State. Table 6 lists each specific
    U. S. nonproliferation assistance program and activity.

    41 For a more detailed discussion and an evaluation of these programs, see
    U. S. General Accounting Office, Nonproliferation R & D: NNSA's Program
    Develops Successful Technologies, but Project Management Can Be
    Strengthened, GAO- 02- 904 (Washington,

    D. C.: Aug. 23, 2002). We reported that research areas of the
    Nonproliferation and Verification Research and Development Program lack a
    formal process to identify users* needs. See U. S. General Accounting
    Office, Nuclear Nonproliferation: U. S. Efforts to Help Other Countries
    Combat Nuclear Smuggling Need Strengthened Coordination and Planning, GAO-
    02- 426 (Washington, D. C.: May 16, 2002). We reported that U. S.
    assistance is

    not effectively coordinated and lacks an overall governmentwide plan to
    guide it, because agencies do not always coordinate their efforts through
    an interagency group chaired by the Department of State. U. S. General
    Accounting Office, Nuclear Nonproliferation: Security of Russia*s Nuclear
    Material Improving; Further Enhancements Needed, GAO- 01- 312 (Washington,
    D. C.: Feb. 28, 2001). We reported that hundreds of metric tons of nuclear

    material continue to lack improved security systems and no mechanism is in
    place to monitor the effectiveness of the systems once they are installed.

    Tabl e 6: U. S. Nonproliferation Assistance Programs Agency Program
    Activity description

    Department of Energy Material Protection, Control, and Accounting Installs
    improved security systems for nuclear material at civilian program nuclear
    sites, naval fuel sites, and nuclear weapons laboratories

    throughout Russia. These security upgrades have consisted of (1) physical
    protection systems, such as fences and metal doors; (2) material control
    systems, such as seals attached to nuclear material containers and badge
    systems that only allow authorized personnel into areas containing nuclear
    material; and (3) material accounting systems, such as computerized
    databases. In addition, Energy is providing sites with long- term
    assistance through equipment warranties, operating procedure development,
    and training.

    Second Line of Defense program Provides and installs radiation detection
    equipment, such as portal monitors, at Russian border crossings, including
    a Moscow airport. Energy may expand the program beyond Russia to

    include countries of the former Soviet Union. International Export Control
    program Provides funds to help countries of the former Soviet Union

    control the export of goods and technologies that could be used in the
    development of nuclear weapons. The program provides assistance to prevent
    legitimate enterprises, such as businesses that were affiliated with the
    Soviet Union's nuclear weapons complex, from intentionally or
    unintentionally engaging in illicit trade in such goods and technologies.

    Nonproliferation and Verification Research Manages projects that cover a
    wide spectrum of activities to and Development program improve U. S.
    capabilities in the areas of nuclear explosion

    monitoring, proliferation detection, and chemical and biological response.
    Projects range from manufacturing specialized satellitebased sensors that
    detect nuclear explosions to developing and delivering sensor technologies
    that detect the spread of nuclear, chemical, and biological weapons,
    materials, and technologies

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

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

    Export Control and Related Border Security Provides radiation detection
    equipment, such as vans equipped Assistance program with radiation
    detectors, and other assistance for interdicting nuclear smuggling to
    countries of the former Soviet Union and Central and Eastern Europe. (The
    program took over

    Nonproliferation and Disarmament Fund radiation detection assistance
    beginning in fiscal year 2002.) Republic of Georgia Border Security and
    Provides a wide range of assistance to the Republic of Georgia's Law
    Enforcement program border guards and customs service to interdict nuclear
    smuggling;

    fight other crimes, such as drug smuggling; and develop border
    infrastructure.

    (Continued From Previous Page)

    Agency Program Activity description

    Department of Cooperative Threat Reduction program Provides funds to
    various countries for the (1) purchase of Defense radiation detection
    equipment, such as pedestrian portal monitors

    to screen people and (2) handheld radiation detection monitors and other
    equipment to enable the countries to better patrol their borders, conduct
    searches for smuggled contraband, and equip their border posts.

    International Counterproliferation program Provides funds to the
    Department of Homeland Security and the FBI for training and equipment for
    countries of the former Soviet Union and Central and Eastern Europe.

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

    guards in other countries. The equipment includes radiation pagers (small
    detectors that can be worn on a belt to continuously monitor radiation
    levels or used as a handheld device to pinpoint the location of
    radioactive material detected by a portal monitor) as well as a variety of
    other high- and low- technology tools to conduct searches and detect
    sensitive goods and materials. Training includes assistance in operating
    the x- ray vans equipped

    with radiation detectors and providing hands- on instruction in using
    equipment to detect nuclear smuggling. Department of Homeland Security, U.
    S. Coast Guard Through funding provide by the State Department's Export
    Control and Related Border Security Assistance program,

    provides assistance for maritime interception of nuclear smuggling to
    countries of the former Soviet Union. Assistance provided has included
    boats with spare parts and the stationing of an in- country U. S. Coast
    Guard advisor.

    Department of Justice, Federal Bureau of Investigation Through DOD's
    International Counterproliferation program, trains and equips foreign law
    enforcement agencies to investigate and respond to actual seizures of
    smuggled nuclear or other material. Training has included seminars for
    high- level officials and courses on conducting investigations and
    managing a crime scene where a seizure has taken place. Equipment provided
    as part of the training has included hazardous material suits to make
    handling of seized material safer, evidence collection and sampling kits,
    and chemical detection equipment.

    Source: Departments of Defense, Energy, and State; U. S. Coast Guard; and
    the FBI.

    U. S. Security and Economic U. S. security and economic assistance
    programs, which are managed by

    Assistance Seeks to the Department of State, can enhance the capabilities
    of coalition partners

    Enhance in combating terrorism overseas. Long- standing U. S. security and

    Coalition Capabilities economic assistance programs have attempted to
    support the *global war

    on terrorism* in general and Operation Enduring Freedom in particular.
    They include the following:

    Foreign Military Financing The Foreign Military Financing program provides
    financial grants through the Department of State to foreign governments to
    purchase U. S.- made weapons and military training. It is intended to
    promote U. S. national security interests by contributing to global and
    regional stability, strengthening military support for democratically
    elected governments,

    and containing transnational threats, including terrorism. As such, the
    program can be a key economic assistance tool in supporting U. S.
    coalition partners in combating terrorism overseas. The Department of
    State provides grants for the acquisition of U. S. defense equipment,
    services, and training that enable key allies and friends to improve their
    defense capabilities. Improved capabilities are expected to (1) strengthen
    multilateral coalitions with the United States and its allies, (2) improve
    bilateral military relationships between the United States and the
    recipient nations, and (3) allow U. S. friends and allies increased
    interoperability with U. S. forces. Many of the grants during fiscal year
    2003 will be used to help combat terrorism overseas. For example, grants
    will be used to (1) target security requirements linked to the *war on
    terrorism* in Jordan, Oman, and Yemen; (2) assist Colombia*s effort to
    defend its economy by supporting a brigade to protect its oil pipeline;
    (3) support India and Pakistan in their efforts in the war on terrorism;
    (4) continue efforts to integrate recent NATO members and sustain support
    for Partnership for

    Peace countries in Central Europe, the Baltics, the Caucasus (especially
    Georgia), and in the Central Asian countries; and (5) sustain the
    Philippine*s military capability, particularly in its effort to address
    the terrorist threat.

    Foreign Military Sales The Foreign Military Sales program is used by the
    United States to sell weapons, weapons systems, and military equipment to
    foreign countries to maintain close ties with neighbors and key allies,
    maintain stable and secure regional partners, and ensure regional
    stability. Additionally, State*s Bureau of Political- Military Affairs,
    through FMS and other security assistance, helps new members of NATO
    upgrade their military capabilities and achieve greater interoperability
    with U. S. and other alliance forces and helps to strengthen the security
    and defense capabilities of key Central

    Asian and Caucasus partners, whose support is crucial to combating
    terrorism.

    International Military Education The International Military Education and
    Training program was established

    and Training in 1976 as a low- cost security assistance program intended
    to foster the

    development of more professional militaries around the world through
    training and education of foreign military and civilian personnel. 42 The
    program provides training on a grant basis to some 10,000 students

    annually from 133 allied and friendly countries. Formal instruction is
    provided through more than 2,000 courses taught at about 150 U. S.
    military schools and installations. In many of these countries, it is the
    only military engagement tool available to the United States. According to
    the Department of State, the program advances U. S. interests in
    furthering regional stability by enhancing military alliances, building
    coalitions, and strengthening efforts to combat terrorism abroad. State
    determines the political advisability of providing training to individual
    countries and funds the program through its International Affairs budget.
    DOD plans and manages the program through its Defense Security and
    Cooperation Agency, which works with the various military departments and
    unified military commands to implement the program. Coordination of the
    program overseas is handled by DOD*s security assistance offices located
    in U. S. embassies around the world, which field requests from their host
    countries to participate in the program. All foreign applicants are
    screened before being admitted to the program. Enhancing military
    professionalism is intended to make militaries more efficient, effective,
    and interoperable with U. S. and NATO forces as well as regional
    coalitions. Also, it seeks to foster a better understanding of democratic
    values, including civilian rule of the military, belief in the rule of
    law, and respect for internationally recognized civil and human rights.
    Finally, the program*s development of professional and personal military-
    to- military relationships provide

    U. S. access and influence to a critical sector of society that can help
    support U. S. access to foreign military bases and facilities* a critical
    component in efforts to combat terrorism overseas.

    Economic Support Funds Economic Support Funds are used to promote security
    and stability overseas, particularly in emergency situations, where the
    United States has vested interests. The funds are provided to foreign
    nations in grant form, 42 The International Military Education and
    Training program was established as part of the

    International Security Assistance and Arms Export Control Act of 1976 (22
    U. S. C. S: 2751 et seq.), Jun. 30, 1976.

    often without restrictions on the money*s use. Though not intended for
    military use, the money allows foreign governments to free up other funds
    for military use or other purposes. The Economic Support Fund is intended
    to promote the economic and political foreign policy interests of the
    United States by providing assistance to allies and countries in
    transition to democracy, supporting the Middle East peace negotiations,
    and financing

    economic stabilization programs, frequently in a multi- donor context.
    USAID, with overall foreign policy guidance from the Department of State,
    implements most Economic Support Fund programs. By promoting economic
    growth, good governance, and strong democratic institutions, the Economic
    Support Fund is intended to eradicate the economic and political disparity
    that often underlies social tension and can lead to radical, violent
    reactions against government institutions. Thus, these

    economic assistance programs focus on mitigating the root causes of
    terrorism.

    Peacekeeping Operations In addition to its contributions to UN
    peacekeeping operations, the United States maintains a Peacekeeping
    Operations program of its own that is designed to promote increased
    involvement of regional organizations and some individual countries in
    regional and international peacekeeping operations. Peacekeeping
    operations support U. S. national interests by promoting human rights,
    democracy, and regional security. They facilitate humanitarian responses
    to crisis situations. Also, they support the increased involvement of
    regional organizations in conflict resolution, multilateral peace
    operations, and sanctions enforcement through provision of logistics
    support, peacekeeping training, and peacekeeping equipment. The United
    States has a strong interest in enhancing the ability of other nations to
    lead or participate in voluntary peacekeeping and humanitarian operations
    in order to reduce the burden on the United States. Finally, peacekeeping
    operations can help address the root causes of terrorism by reducing the
    likelihood of hostile interventions by other powers, preventing the
    proliferation of small conflicts, facilitating the stability necessary for
    the establishment and growth of new market economies, containing the cost
    of humanitarian emergencies, and limiting refugee flows. This is
    accomplished through the separation of adversaries; facilitation of the
    delivery of humanitarian relief; repatriation of refugees and displaced
    persons; demobilization, disarmament, and reconciliation of combatants;
    and creation of conditions under which political reconciliation may occur
    and democratic elections may be held.

    Additional Assistance In addition to the security and economic assistance
    programs mentioned, through Military- to- Military

    DOD provides military- to- military training to other countries to improve
    Training

    their abilities to prevent and detect terrorism and, if necessary, disrupt
    and destroy terrorist organizations. These bilateral programs are part of
    the regional commands* Theater Security Cooperation Plans to improve U. S.
    allies* capabilities to combat terrorism.

    Joint Combined Exchange DOD*s Joint Combined Exchange and Training program
    provides

    and Training U. S. special operations forces opportunities to develop and
    maintain their

    skills and to train foreign militaries and other groups to combat
    terrorism overseas, among other missions. U. S. special operations forces
    generally are organized into small units for military action focused on
    strategic or

    operational goals. They are tasked with a variety of missions ranging from
    training, advising, and organizing foreign groups for unconventional
    warfare to training coalition forces for multinational military
    operations, including combating terrorism overseas. These missions require
    special skills that conventional forces do not have, such as the ability
    to speak foreign languages, understand regional cultural and environmental
    characteristics, and quickly deploy and operate unsupported in sometimes
    hostile or politically sensitive areas. The U. S. Special Operations
    Command believes that the best way its forces can train for these types of
    missions is to train with the people in the places where they may have to
    operate.

    In 1991, the Congress clarified DOD*s authority to spend training funds in
    connection with special operations forces training overseas with friendly
    foreign forces, as long as the primary purpose was to train U. S. forces.
    43 Since the enactment of this legislation, such training has commonly
    been

    referred to as Joint Combined Exchange Training. 44 Special operations
    forces are charged with nine principal missions and, on the basis of their
    unique capabilities, conduct a variety of other activities. The principal
    missions are to (1) train and otherwise assist foreign militaries to
    combat insurgency and other threats to stability (foreign internal
    defense);

    43 National Defense Authorization Act for Fiscal Years 1992 and 1993 (P.
    L. 102- 190), Dec. 5, 1991. 44 For a more detailed description and GAO*s
    evaluation of the JCET program, see U. S. General Accounting Office,
    Military Training: Management and Oversight of Joint Combined Exchange
    Training, GAO/ NSIAD- 99- 173 (Washington, D. C.: July 23, 1999). We
    reported that DOD had complied with the statutory requirement for
    conducting JCETs.

    However, DOD had not accurately reported to the Congress the number of
    JCETs that were conducted, their costs, or their relationship to
    counternarcotics and counterterrorism.

    (2) train, advise, and otherwise assist local forces for guerilla warfare
    (unconventional warfare); (3) protect against and prevent the spread of
    nuclear, chemical, and biological weapons (counterproliferation); (4) use
    offensive and defensive measures to prevent or resolve terrorist incidents
    (combating terrorism); (5) obtain information concerning capabilities and
    activities of actual or potential adversaries (special reconnaissance);
    (6) inflict damage on an adversary or recover personnel or material
    (direct action); (7) target an adversary*s information system while
    defending U. S. systems (information operations); (8) establish, maintain,
    or strengthen relations between U. S. and allied governments to facilitate
    military operations (civil affairs); and (9) influence attitudes of
    foreign audiences (psychological operations). Specific Joint Combined
    Exchange and Training operations and activities are classified.

    U. S. Special Operations The U. S. European Command initiated the Georgia
    Train and Equip

    Forces Training for the Republic Program to enhance Georgia*s counter-
    terrorism capabilities. The

    of Georgia program*s goal is to build strong effective staff organizations
    capable of

    creating and sustaining standardized operating procedures, training plans,
    operational plans, and a property accounting system. The curriculum
    consists of performance- oriented training and exercises. The time- phased
    training will be conducted by U. S. Special Forces to build upon the
    military- to- military relationship developed between the two countries.
    The program will consist of command center staff training for members of
    the Georgian Ministry of Defense as well as training for units of the Land
    Forces Command. Border Guards and other Georgian security agencies will be
    included to ensure interoperability among Georgia*s security forces.
    Almost 200 Georgians have completed the staff- training phase and about
    500 Georgians are completing the light- infantry tactics training.
    Military equipment to be provided will include uniform items, small arms
    and ammunition, communications gear, training gear, medical gear, fuel,
    and construction material.

    Figure 9 shows members of 2nd Company, Georgian Commando Battalion,
    performing a combat off load at a training range at Krtsanisi, Republic of
    Georgia. The U. S. Army*s 10th Special Forces Group (Airborne) is in
    Georgia conducting the Georgia Train and Equip Program, which will enhance
    Georgian soldiers' abilities in various battlefield techniques.

    Figure 9: 2nd Company, Georgian Commando Battalion, Perform a Combat Off
    Load With Members of the U. S. Army*s 10th Special Forces Group (Airborne)
    at a Training Range at Krtsanisi, Republic of Georgia

    U. S. Special Operations Forces The U. S. Pacific Command is assisting the
    Republic of the Philippines in

    Training for the Philippines developing a counter- terrorist capability
    within their armed forces through

    the Foreign Military Financing program. The U. S. Pacific Command deployed
    a Joint Task Force advisory team to the southern Philippines to begin
    preparations. The Joint Task Force advisory team, composed of U. S.
    Special Operations personnel is providing training at the command level at
    headquarters down through the company level in the field. The

    training emphasizes joint operations and tactics to help eliminate
    terrorist threats. Training includes counter- terrorism campaign planning,
    intelligence fusion, psychological operations, civil- military operations,
    and field tactics. U. S. Special Operations personnel completed training
    with 25 field companies and provided equipment that included aircraft, U.
    S. Coast Guard cutters, and helicopters.

    Figure 10 shows a U. S. Special Forces soldier demonstrating to a Filipino
    soldier how to adjust the sights on his M- 16 rifle during marksmanship
    training in Tipo- Tipo Town, Basilan Island, Philippines. U. S. forces

    currently are in the Philippines participating in joint combating-
    terrorism training with their Filipino counterparts.

    Figure 10: U. S. Special Forces Soldier Shows a Filipino Soldier How to
    Adjust the Sights on His M- 16 Rifle during Marksmanship Training in Tipo-
    Tipo Town, Basilan Island, Philippines

    Source: Jason Carter of the Pacific Stars and Stripes. (c) 2003 Stars and
    Stripes.

    Assisting Other Countries Some special events overseas, such as
    presidential summit meetings with International

    and the Olympic games, have international significance and thus may
    Security Events

    attract terrorist attacks. These international special events receive U.
    S. security protection, whether through the U. S. Secret Service providing
    protective security to senior U. S. officials, Diplomatic Security
    protecting U. S. personnel and facilities, or the military standing by to
    respond, if needed, to terrorist incidents involving weapons of mass
    destruction or to evacuate Americans.

    Unlike domestic special security events, there is no process to coordinate
    federal agencies* roles and responsibilities for special security events
    held outside of the United States. 45 Nevertheless, the United States can
    provide

    assistance to other countries for special security events. For example,
    the Department of State coordinated and managed federal agencies*
    assistance for the 1992 Olympic Summer Games in Barcelona, Spain; the 1994
    Olympic Winter Games in Lillehammer, Norway; and the 1994 Commonwealth

    Games in Victoria, British Columbia, Canada. For the upcoming 2004 Olympic
    Summer Games in Athens, Greece, the Department of State is coordinating
    federal agencies* assistance at the headquarters level in

    Washington, D. C., and at the U. S. Embassy in Athens, Greece. In
    Washington, D. C., the State Department*s Office of the Coordinator for
    Counterterrorism and Bureau of Diplomatic Security established an
    interagency group and at the U. S. Embassy in Athens, the bureau
    established an Olympic Security Coordinator and an Olympic Security
    Advisory Team to coordinate federal assistance. The advisory team is
    composed of agency officials from DOD, the FBI, the CIA, and the Federal
    Aviation Administration. As discussed earlier in this chapter, one
    initiative includes counterterrorism training for Greek law enforcement
    authorities through State*s Antiterrorism Assistance program.

    Security planning for the 2004 Olympic Summer Games in Athens is a
    multilateral effort. The Government of Greece requested Olympic security
    expertise from seven countries: the United States, the United Kingdom,
    France, Spain, Israel, Germany, and Australia. These countries make up the
    Olympic Security Advisory Group, which reports to the Greek Minister of
    Public Order on security issues at the strategic level. The group also

    provides advice on technical support issues at the operational level. The
    range of issues includes intelligence, planning, training and exercises,
    technology, command and control coordination, and venue security.

    45 For domestic situations, PDD 62 created a category of special events
    called National Special Security Events, which are events of such
    significance that they warrant greater federal planning and protection
    than other special events. For these events, the directive reaffirmed the
    FBI*s lead federal agency role for crisis management and designated the U.
    S. Secret Service as lead federal agency for security design, planning,
    and implementation. The directive also reaffirmed the Federal Emergency
    Management Agency as responsible for consequence management.

    Coordination Mechanisms Programs to assist other countries are coordinated
    through a variety of

    for Assistance to Enhance forums. For those aimed at improving other
    countries* capabilities to

    Coalition Capabilities combat terrorism, coordination across agencies is
    done in working groups

    under the NSC*s Counterterrorism Security Group (discussed in chapter 2).
    Specifically, the State Department chairs a Training and Assistance
    SubGroup that coordinates the different programs to provide terrorism-
    related training and assistance to foreign governments and their
    officials. The

    group works to prioritize countries that should receive assistance. The
    group reviews assistance programs of the various agencies to ensure they
    are properly sequenced, avoid duplication, and ensure that they are

    implemented in collaboration with or reinforce other efforts as
    appropriate. This group has a subordinate group, also chaired by the
    Department of State, called the Counterterrorism Finance Training and
    Technical Assistance Working Group. This group focuses on providing

    related finance training and technical assistance to a set of priority
    countries and attempts to ensure that the delivery of such assistance by
    different agencies does not conflict and is used effectively and
    efficiently. Within the State Department, the Bureau of Diplomatic
    Security and the

    Office of the Coordinator for Counterterrorism work with other agencies to
    decide how to spend Antiterrorism Training Assistance funds. In the field,
    the embassy country teams are also involved in coordinating programs

    from the various agencies with headquarters and negotiating the assistance
    packages with the foreign government. Agency Comments and

    The Departments of Defense, Justice, and State and the former Our
    Evaluation

    Immigration and Naturalization Service provided technical comments on the
    matters covered throughout this chapter. Based upon these comments, we
    made revisions, as appropriate. We also made revisions (primarily to the
    section on border security) based upon the creation of the Department of
    Homeland Security and the transfer of various agencies and functions from
    other departments into that department.

    Federal Efforts to Disrupt and Destroy

    Chapt 4 er Terrorist Organizations Federal agencies attempt to disrupt and
    destroy terrorist organizations through diplomatic initiatives, law
    enforcement efforts, financial operations to freeze assets, military
    operations, and covert action. Diplomatic initiatives, led by the
    Department of State, strengthen international cooperation and capabilities
    through bilateral and multilateral agreements. The State Department*s
    diplomatic leadership and agreements allow other agencies to cooperate
    more closely with

    foreign countries on specific types of efforts. Other multilateral
    agreements, including UN resolutions and conventions, also help to
    strengthen international cooperation. Law enforcement efforts, led by the
    Department of Justice, disrupt terrorist organizations through
    investigations, arrests, and prosecutions of terrorists. As a principal
    investigative agency of the federal government, the FBI conducts

    investigations on acts of terrorism against U. S. persons and property
    overseas. Operations to identify and freeze terrorists* financial assets
    are conducted by the Departments of the Treasury, Justice, and State and
    involve tracking monies, accounts, and wire transfers of terrorist
    organizations. Military operations, led by DOD, destroy terrorist
    organizations and complement other methods* diplomatic, legal, and
    economic* to prevent or disrupt terrorist organizations. DOD and its
    coalition partners are conducting Operation Enduring Freedom in
    Afghanistan and surrounding regions to destroy al Qaeda and the Taliban
    regime. Captured combatants* who are not considered prisoners of war by
    the U. S. government* have been detained and interrogated to provide
    intelligence information. Finally, covert actions, led by the CIA, have
    been used to disrupt and destroy terrorist organizations. This chapter
    describes the relevant federal programs in place and is not an evaluation
    of their effectiveness.

    Diplomatic Initiatives The National Strategy for Combating Terrorism
    includes an objective to

    Strengthen strengthen and sustain international efforts to combat
    terrorism. There is

    also an objective to establish and maintain an international standard of
    International accountability with regard to combating terrorism. The
    strategy also gives

    Cooperation the Department of State the lead in developing specific
    regional strategies

    for combating terrorism overseas, as well as policy action plans to deal
    with state sponsors of terrorism. Diplomatic initiatives, led by the
    Department of State, are key to achieving these objectives. Such
    diplomatic efforts help strengthen international cooperation in the effort
    to disrupt and destroy terrorists and their organizations. State helps to
    orchestrate other nations* bilateral support to assist the United States
    in conducting law enforcement cooperation, financial operations, and
    military

    operations. State negotiated a number of bilateral and multilateral
    agreements with foreign countries to support these operations. State also
    solicited international cooperation by actively trying to enlist
    multilateral organizations in the fight against terrorism. These efforts
    include multilateral agreements and conventions, resolutions, and
    international summits involving the United Nations and other international
    organizations. Various State Department offices, bureaus, and missions
    overseas* in conjunction with other federal agencies* coordinate these
    diplomatic initiatives.

    U. S. officials, from several agencies at both the headquarters and
    overseas, told us that bilateral agreements with individual nations are
    the most productive type of cooperation. However, they noted that
    multilateral agreements provide an important framework that, in the eyes
    of other countries, legitimizes their bilateral cooperation with the
    United States.

    Bilateral Cooperation The Department of State strengthens international
    cooperation through

    Supports Variety of agreements, consultations, and negotiations with other
    countries to assist

    Activities by U. S. other U. S. government agencies in their efforts to
    enforce laws, deny Government Agencies

    terrorist financing, and carry out military operations against terrorists
    and their organizations. The Department of State leads periodic U. S.
    delegations* consisting of a number of U. S. agencies* that meet with
    other nations to discuss and cooperate on terrorism issues of mutual
    bilateral concern. For example, State Department*s Coordinator for
    Counterterrorism recently led one of these U. S. delegations to meet with
    French officials. Through its diplomacy, the department facilitates
    cooperation in a variety of areas.

    Law enforcement The Department of State negotiates formal bilateral
    agreements to strengthen law enforcement cooperation with other individual
    countries. For example, there are a number of law enforcement- related
    treaties negotiated by the Department of State, in conjunction with the
    Department of Justice, related to legal assistance and extradition. These
    agreements

    promote increased cooperation with foreign law enforcement authorities for
    the exchange of evidence and apprehension of terrorist suspects.

    Terrorist financing The Departments of State and the Treasury have worked
    with a number of countries on a bilateral basis to strengthen measures to
    deny terrorists access to financial support. Since September 11, 2001, the
    United States, in conjunction with other countries, designated a number of
    individuals and

    organizations as sponsors of terrorism. At individual embassies, State
    Department economic officers work with their counterparts to improve joint
    efforts to disrupt terrorist financing.

    Military operations The State Department worked to negotiate a number of
    bilateral agreements for military cooperation to combat terrorism. In the
    wake of the September 11, 2001, attacks, State worked with DOD to
    establish bilateral agreements to support military operations in
    Afghanistan and surrounding regions. Ultimately, 89 countries agreed to
    provide over- flight rights for U. S. military aircraft and 76 agreed to
    provide landing and/ or

    bed- down rights for U. S. military aircraft. In addition, 23 countries
    agreed to host U. S. and coalition forces involved in military operations
    in Afghanistan. These later agreements, reached with neighboring
    countries, such as Pakistan and the Central Asian republics, were
    particularly significant in that they provided secure staging areas for U.
    S. and coalition military forces to carry out their missions. These
    bilateral agreements are in addition to other countries actually
    conducting military operations with the United States.

    Multilateral Cooperation The Department of State works with international
    organizations to

    through the UN Provides enhance multilateral support to disrupt and
    destroy terrorists and their

    Political Support for organizations. Foremost of these organizations is
    the United Nations. Its

    Coalition Efforts Counterterrorism Committee reviews international efforts
    to combat

    terrorism. The State Department works with the United Nations and its
    member states to establish a broad array of resolutions and conventions to
    create a multilateral framework for combating international terrorism.
    This UN- based multilateral framework falls into three broad categories of
    documents or agreements (as described below). Appendix VI provides a

    listing of protocols, conventions, and resolutions that the United Nations
    has identified as related to terrorism. 1 UN Conventions and Protocols
    There are 10 UN conventions and 2 protocols dating back to 1963 that

    are related to terrorism. An example of these is the 1997 International
    Convention for the Suppression of Terrorist Bombings. The State

    1 In addition to those listed in appendix VI, there are other UN efforts
    indirectly related to terrorism. According to ATF, these include efforts
    to combat illicit trafficking in firearms, ammunition, and explosives used
    not only by common criminals but also terrorists. UN efforts include the
    UN Protocol Against the Illicit Manufacturing of and Trafficking in
    Firearms and the UN Programme of Action on Small Arms and Light Weapons.

    Department, through its diplomatic efforts in Washington and around the
    world, has urged countries to agree to these conventions and protocols.
    Before September 11, 2001, only 2 countries were parties to all 12
    instruments. As of November 2002, 16 countries, including the United
    States, are a party to each of the 12 conventions and protocols.

    UN Security Council Resolutions The UN Security Council consists of 5
    permanent members with veto authority (China, France, Russia, the United
    States, and the United Kingdom) and 10 rotating members. 2 Under Chapter
    VII of the UN Charter, mandatory provisions in resolutions adopted by the
    UN Security Council form a legal basis for taking actions against
    terrorists. There are numerous UN Security Council Resolutions dating back
    to 1970 that are related to terrorism. For example, UN Security Council
    1373, which is a wide- ranging measure calling for international
    cooperation against terrorist financing. Among other things, this
    resolution calls for member nations to report back

    on their activities to combat terrorism. According to the National
    Strategy for Combating Terrorism, UN Security Council Resolution 1373 is
    one example of the United States enlisting the international community to
    establish and maintain an international standard of accountability with
    regard to combating terrorism.

    Figure 11 shows the UN Security Council voting on a terrorism- related
    resolution in the aftermath of the terrorist attacks against the United
    States on September 11, 2001.

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

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

    UN General Assembly The UN General Assembly consists of the entire
    membership, currently

    Resolutions numbering 189 nations. Resolutions from the General Assembly
    are

    adopted based upon the votes of the entire UN membership but, unlike UN
    Security Council Resolutions, are not binding. There are numerous UN
    General Assembly resolutions dating back to 1972 related to terrorism. An
    example of these is UN General Assembly Resolution 39/ 159 from 1984,
    which condemned all policies and practices of terrorism between states as
    a method of dealing with other states.

    State Department Works In addition to the United Nations, the State
    Department is working with

    With Variety of Other a number of other international organizations to
    promote multilateral

    International Multilateral cooperation to combat terrorism. The
    memberships of these other

    Organizations international organizations overlap, with several nations
    (including

    the United States) belonging to several of them. Examples of these
    international organizations and some of their related activities are as
    follows.

    North Atlantic Treaty The North Atlantic Treaty Organization is a
    political and security alliance

    Organization of 19 nations from North America and Europe. 3 In the wake of
    the

    September 11, 2001, terrorist attacks, NATO members invoked Article V* a
    collective defense provision of the 1949 Washington Treaty. The provision,
    invoked for the first time in NATO*s history, states that an armed attack
    on any ally is considered an attack against all. NATO approved eight
    measures to expand its options in the campaign against terrorism,
    including the deployment of its Standing Naval Forces to the Eastern
    Mediterranean Sea and its Airborne Early Warning force.

    European Union The European Union is a group of 15 countries forming a
    political and economic union. The European Union has taken steps to
    improve cooperation between European and U. S. law enforcement officials,
    coordination of the freezing of terrorist assets, and to provide a
    framework for cooperation on border security issues. The Group of Eight
    The Group of Eight (G- 8) is a group of major industrialized democracies

    that meet periodically on a number of political, economic, and security
    issues. 4 The G- 8 has been an active forum for supporting measures
    against terrorists and their organizations. Several of the group*s summits
    have resulted in joint declarations that condemn terrorism and pledge to
    improve member countries individual and collective efforts to combat
    terrorism, including endorsing international recommendations to combat

    terrorist financing. The Organization for Security

    The Organization for Security and Cooperation in Europe consists of and
    Cooperation in Europe

    55 nations from Europe, Central Asia, and North America that discuss human
    rights, economic development, and security issues. The organization has
    incorporated combating terrorism financing into its work plan and agenda,
    urging its members to implement certain recommendations to combat
    terrorist financing.

    3 NATO*s current membership includes Belgium, Canada, the Czech Republic,
    Denmark, Estonia, France, Germany, Greece, Hungary, Iceland, Italy,
    Luxembourg, the Netherlands, Norway, Poland, Portugal, Spain, Turkey, the
    United Kingdom, and the United States. In addition, Bulgaria, Estonia,
    Latvia, Lithuania, Romania, Slovakia, and Slovenia have been invited to
    begin accession talks to join NATO in May 2004.

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

    The Organization of American The Organization of American States consists
    of 35 nations from the

    States Western Hemisphere. The organization adopted the Inter- American

    Convention against Terrorism requiring, among other things, that each
    signatory state establish a legal and regulatory regime to combat the
    financing of terrorism. Parties also agreed to improve controls at banks
    and other financial institutions.

    Other international groups Other international groups provide collective
    support to specific functions related to terrorism. These include the
    Financial Action Task Force and the Egmont Group, which both are involved
    in disrupting terrorist financing. The membership of these groups overlaps
    with many of the other groups

    mentioned above. In addition, the State Department has sponsored and/ or
    attended a number of international meetings to discuss terrorism outside
    the forums described above. An example includes terrorism summits at Sharm
    el- Sheikh, Egypt, in 1994. These international summits resulted in
    declarations of support for national and international efforts to combat
    terrorism.

    Coordination Mechanisms The State Department generally is in charge of
    efforts to coordinate

    for Bilateral and Multilateral diplomatic initiatives related to combating
    terrorism overseas. Overall, the

    Diplomacy department*s Coordinator for Counterterrorism coordinates both
    bilateral

    and multilateral initiatives. Within the coordinator*s office, officers
    are assigned specific regional areas to coordinate activities. The
    department*s regional and functional bureaus also are involved in
    coordination of

    diplomatic initiatives, as are other federal agencies, as appropriate. For
    bilateral diplomatic initiatives, the department*s regional bureaus,
    functional bureaus, country desks, and U. S. embassies play a major role
    in coordination. For example, U. S. efforts with the Philippines to combat
    terrorism would involve the Coordinator for Counterterrorism, the Bureau
    of East Asian Affairs, the Bureau of Political Military Affairs, the
    Philippines country desk, and the U. S. Embassy in Manila. Other federal
    agencies with specific programs would also be involved in coordination,
    such as DOD in the case of military assistance to the Philippines related
    to combating terrorism. Another example would the Department of Justice*s

    involvement in negotiations of bilateral agreements related to mutual
    legal assistance or extradition, which is discussed later in this chapter.

    For multilateral diplomatic initiatives, the department*s Bureau of
    International Organization Affairs, working with the Coordinator for
    Counterterrorism, has the lead in coordinating activities with
    international

    organizations. Similar to regional bureaus, the bureau has individual
    desks for individual international organizations. Similar to U. S.
    embassies, the United States maintains diplomatic missions to
    international organizations, such as the U. S. Mission to the United
    Nations in New York; the U. S.

    Mission to NATO in Brussels, Belgium; and the U. S. Mission to the
    European Union, also in Brussels, Belgium. The department*s Bureau of
    International Narcotics and Law Enforcement coordinates multilateral law
    enforcement programs, such as the International Law Enforcement Academies.
    Again, other federal agencies with specific programs also are involved in
    coordination, such as the Department of the Treasury*s programs to disrupt
    terrorist financing and DOD*s European Command

    involvement in the case of NATO naval support to maritime operations in
    the Mediterranean. The State Department also participates in multilateral
    negotiations of treaties and other agreements relating to terrorism.

    Law Enforcement One of the enduring policy principles that guides U. S.
    strategies to combat

    Efforts to Disrupt terrorism overseas is to bring terrorists to justice
    for their crimes. The National Strategy for Combating Terrorism has an
    objective to destroy

    Terrorist Organizations terrorists and their organizations, in part, by
    expanding law enforcement

    efforts to capture, detain, and prosecute known and suspected terrorists.
    In addition, the National Strategy for Homeland Security has an objective
    to intensify international law enforcement cooperation.

    Such law enforcement efforts are led by the Department of Justice and
    attempt to disrupt and destroy terrorist organizations overseas. The
    Department of Justice, working with the Department of State, will expand,
    where appropriate, its law enforcement presence abroad to further
    counterterrorism interdiction, investigation, and prosecution. The
    Department of State coordinates U. S. efforts to improve international
    counterterrorism cooperation, including the diplomatic aspects of law
    enforcement. United States law enforcement efforts overseas involve
    investigating terrorism- related crimes and the apprehension and
    prosecution of terrorists. The Department of Justice, through the FBI,
    leads U. S. investigations of terrorist incidents overseas. Such
    investigations, although conducted by FBI, are done under the authority of
    the ambassador at the relevant U. S. embassy. Depending upon the nature of
    the terrorist incident, other federal agencies, such as the State
    Department and its embassies, also may participate in or support terrorism
    investigations. The Department of Justice, in conjunction with the State
    Department, leads the federal government*s efforts to apprehend terrorists
    overseas for prosecution. Suspected terrorists who are apprehended
    overseas are

    brought back to the United States for prosecution through extraditions and
    renditions. Foreign governments, through both bilateral and multilateral
    devices, provide key assistance with investigations, arrests, and
    prosecutions of terrorists. The Department of Justice coordinates its
    efforts to combat terrorism overseas through various mechanisms, including
    its legal attaches located in U. S. missions overseas, Joint Terrorism
    Task Forces, and Anti- Terrorism Task Forces. Efforts to identify,
    disrupt, and freeze terrorist assets are a related law enforcement
    activity and are covered in more detail in the next section.

    Investigations of Terrorist As a principal investigative agency of the
    federal government for terrorism

    Incidents Overseas Are Led matters, the FBI is responsible for detecting
    and investigating acts of

    by the FBI terrorism committed against U. S. citizens and property
    overseas.

    According to the FBI, extraterritorial jurisdiction is the principle that
    allows the bureau to expand its investigative authority outside U. S.
    borders and deploy FBI personnel to work in conjunction with host
    government law enforcement agencies to make arrests and prosecutions. The
    FBI undertakes these investigations under the authority of the ambassador
    at

    the relevant U. S. embassy abroad. According to the FBI, its role in
    investigating terrorist crimes overseas was expanded through a series of
    congressional acts in the mid- 1980s. For example, the FBI cited the
    Comprehensive Crime Control Act of 1984 5 and the Omnibus Diplomatic
    Security and Antiterrorist Act of 1986, 6 which expanded the federal
    jurisdiction of the United States to terrorist crimes, including hostage
    taking, homicide, conspiracy to commit homicide, or physical violence
    committed against U. S. national or interest anywhere in the world. The
    FBI also noted that the Antiterrorism and Effective Death Penalty Act of
    1996 7 granted authority to designate foreign terrorist organizations,
    prohibits the providing of material support or resources to a foreign
    terrorist organization, and makes it a federal crime to participate in
    certain international terrorism activities. These changes were the result
    of concerns that terrorists who committed the attacks against U. S.
    nationals

    5 P. L. 98- 473, Oct. 12, 1984. 6 P. L. 99- 399, Aug. 27, 1986. 7 P. L.
    104- 132, Apr. 24, 1996, as amended.

    overseas would escape justice and flee to countries that oppose the United
    States.

    Other Federal Law Depending upon the nature of a terrorist incident, other
    federal agencies

    Enforcement Agencies also may participate in or support terrorism
    investigations overseas. For

    Support Terrorism example, several agencies in the Department of the
    Treasury might support

    Investigations the FBI in conducting overseas investigations and in
    combating terrorism. Table 7 shows key federal investigative agencies that
    have a role in investigating acts of terrorism overseas.

    Table 7: Federal Agencies* Roles in Investigating Terrorist- Related
    Incidents Overseas Federal agency Agency role

    Department of Justice Leads law enforcement and criminal matters related
    to terrorism both domestically and overseas. Responsible for
    investigating, indicting, and prosecuting terrorists.

    Department of Justice, Federal Bureau of Leads efforts to investigate
    terrorist crimes domestically and overseas. Responsible Investigation for
    the apprehension, extradition, and rendition of foreign terrorists who are

    suspected of violating U. S. statutes. Department of Justice, Bureau of
    Alcohol,

    Investigates terrorist bombings and explosive blasts overseas using its
    International Tobacco, Firearms and Explosives (formerly under

    Response Team and explosive experts. Special agents with post- blast
    expertise, the Department of the Treasury)

    forensic chemists, and bomb technicians are used to overcome difficulties
    inherent in investigations of large- scale fire or explosives crime
    scenes.

    Department of State, Bureau of Diplomatic Leads investigations of selected
    incidents involving U. S. diplomatic facilities and/ or Security
    personnel. Participates in investigations of terrorist incidents against
    U. S. diplomatic

    personnel and other persons under its protection. Also investigates
    passport and visa fraud. Department of the Treasury, Financial Crimes
    Supports lead investigative agencies in determining actual or suspected
    terrorist Enforcement Network financial transactions and money laundering.

    Department of Homeland Security, Bureau of Investigates suspected
    terrorists or materials crossing U. S. borders, including illegal Customs
    and Border Protection (includes parts of

    movement of arms, munitions, and WMD components. Also investigates
    violations former U. S. Customs Service under the of economic sanctions,
    embargoes, and money laundering related to financing Department of the
    Treasury)

    designated international terrorist organizations. Department of Homeland
    Security, Bureau of

    Investigates cases of terrorists crossing U. S. borders. Also, it
    investigates cases of Immigration and Customs Enforcement (includes

    terrorists using transnational smuggling organizations, using illicit
    document parts of former Immigration and Naturalization

    vendors, and entering the United States illegally. Has officers stationed
    intermittently Service under the Department of Justice) for flexible
    periods of time at key choke point airports to disrupt the smuggling and
    trafficking of persons, including terrorists, to the United States.

    (Continued From Previous Page)

    Federal agency Agency role

    Department of Homeland Security, United States Investigates terrorists'
    threats against officials under its protective mission overseas, Secret
    Service (formerly under the Department of

    including the President and Vice President. the Treasury)

    Department of Defense Investigates acts of terrorism committed against DOD
    personnel or facilities overseas. Source: Departments of Defense, Justice,
    State, and the Treasury.

    Note: GAO analysis of agency documents.

    United States Works With In conducting terrorist investigations, the
    United States works with other

    Other Countries in countries to gather or share evidence. Much information
    and evidence are

    Conducting Investigations exchanged informally through law enforcement
    channels. When a formal request for assistance is necessary, and where
    there is no bilateral treaty, executive agreement, or applicable
    multilateral convention with another

    country, the United States often must rely upon letters rogatory to obtain
    international assistance. A letter rogatory is a request from a judicial
    official in one country to a judicial official in another country seeking
    assistance. Letters rogatory usually include background on the nature and
    targets of the criminal investigation, relevant facts about the case or
    investigation, the type of assistance needed, statutes alleged to have
    been

    violated, and a promise of reciprocity. Department of Justice officials
    said that they prefer to use the more modern, more reliable, and more
    expeditious Mutual Legal Assistance Treaty process than the more
    cumbersome letters rogatory process. Mutual Legal Assistance Treaties
    strengthen law enforcement by permitting direct communication between
    appropriate executive branch law enforcement officials in the United
    States and foreign countries rather than relying upon

    the letters rogatory process with its judge- to- judge communications
    transmitted through the diplomatic channel. Mutual Legal Assistance
    Treaties provide for the exchange of valuable evidence, often in a form
    that is admissible at trial. They enable the Justice Department to obtain
    foreign

    financial records, obtain statements or testimony of foreign witnesses,
    conduct search and seizure of foreign evidence, and in some cases, freeze
    and recover the forfeiture of proceeds of U. S. crimes committed abroad.
    The Department of State, in conjunction with the Department of Justice, is
    responsible for negotiating the treaties. Once a Mutual Legal Assistance
    Treaty is in force, the Department of Justice is responsible for making
    specific requests to other countries for assistance under the treaty. As
    of January 2003, the United States had bilateral Mutual Legal Assistance
    Treaties covering 47 foreign jurisdictions. In addition, many modern

    multilateral law enforcement conventions, including those dealing with
    terrorism and terrorist financing, contain broad mutual legal assistance
    articles.

    Return of Overseas The Department of Justice, in coordination with the
    Department of State,

    Terrorists via Extraditions is responsible for obtaining the arrest and
    return of accused persons who

    and Renditions commit acts of terrorism against U. S. persons and property
    overseas. The

    United States sometimes uses extradition treaties to obtain custody of
    accused terrorists. Extradition treaties provide for the request by one
    party to the treaty to the other party for the arrest and surrender of a
    person accused or convicted of a crime in the country making the request.
    The Department of Justice is currently working with the Department of
    State to renegotiate a number of extradition treaties to further broaden
    their coverage of terrorist- related crimes. Modern extradition treaties
    contain a *dual criminality* clause, which makes any offense considered a
    crime in both countries extraditable under the treaty. Thus, such modern
    treaties provide for growth and development in the criminal law, so that
    when countries criminalize new activity (including terrorist activity),
    those new crimes will be extraditable without the need to renegotiate the
    existing treaty. Often, before an alleged terrorist can be formally
    extradited to the United States, a number of factors must exist.
    Specifically:

     An extradition treaty must usually be in force between the United States
    and the country in which the fugitive terrorist is located.

     The extradition treaty must cover the crime or crimes for which the
    terrorist is wanted in the United States (either because it is an offense
    *listed* in the treaty, or because it meets the *dual criminality*
    requirement set out in the treaty; i. e., it is considered a crime in both
    countries).

     All requirements of the applicable extradition treaty must have been met
    (for example, the quantum of evidence required by the treaty has been
    provided in the formal extradition documents).

     The fugitive terrorist is otherwise extraditable (e. g., a national of a
    third country).

    Once the extradition proceedings in the foreign country are complete and
    the fugitive terrorist is ready for surrender, the Justice Department
    sends escort agents, usually from the United States Marshals Service, to
    collect

    and return the fugitive to the United States. As shown below in table 8,
    the U. S. government has obtained the extradition of six terrorists
    operating overseas since 1987, one of the most recent being an accused
    terrorist who was extradited from Germany in December 1998 for his role in
    the August 1998 U. S. Embassy bombings in East Africa. As of January 2002,
    the United States had extradition treaties in force with more than 100
    foreign jurisdictions.

    The United States also can obtain custody of an individual without the
    formalities of an extradition treaty by agreeing to have the host nation
    render the individual to the United States for trial or deport the
    individual out of the country. The United States used renditions in 11
    cases since 1987 to obtain custody of suspected terrorists operating
    overseas. As shown in table 8, the most recent reported rendition used by
    the United States to

    apprehend a suspected terrorist was in September 2001 when a terrorist
    suspect was taken into custody from an undisclosed country for
    perpetrating the hijacking of Pan American flight 73 in Karachi, Pakistan.
    That individual will stand trial in the United States for the terrorist
    attack in which 22 persons, including two U. S. citizens, were killed and
    at least 100 persons were injured. Table 8 shows reported extraditions and
    renditions of terrorist suspects to the United States over the last 15
    years, as reported by the State Department and the FBI.

    Table 8: Reported Extraditions and Renditions of Terrorists to the United
    States, 1987- 2001 Extradition or Month and year Name and crime( s)
    rendition Country

    September 1987 Viken Tcharkhutian Extradition Greece (May 1982 bombing of
    an Air Canada aircraft) September 1987 Fawaz Younis

    Rendition Cyprus (June 1985 hijacking of a Royal Jordanian Airlines
    aircraft)

    January 1991 Khalid al Jawary Extradition Italy (March 1973 bombing of
    three vehicles in New York City) March 1993 Mahmoud Abu Halima

    Extradition Egypt (February 1993 bombing of the World Trade Center in New
    York City)

    July 1993 Mohammed Ali Rezaq Rendition Nigeria (November 1985 hijacking of
    Egyptair flight 648)

    (Continued From Previous Page)

    Extradition or Month and year Name and crime( s) rendition Country

    February 1995 Ramzi Ahmed Yousef Extradition Pakistan (January 1995 Far
    East bomb U. S. airlines plot; February 1993 bombing of the World Trade
    Center in New York City)

    April 1995 Abdul Hakim Murad Rendition Philippines (January 1995 Far East
    U. S. airlines bomb plot) August 1995 Eyad Mahmoud Ismail Najim

    Extradition Jordan (February 1993 bombing of the World Trade Center in New
    York City)

    December 1995 Wali Khan Amin Shah Rendition Country not disclosed (January
    1995 Far East U. S. airlines bomb plot) September 1996 Tsutomu Shirosaki

    Rendition Country not disclosed (May 1986 attack on the U. S. Embassy in
    Jakarta, Indonesia)

    June 1997 Mir Aimal Kansi Rendition Country not disclosed (January 1993
    shooting at CIA headquarters in Langley, Virginia)

    June 1998 Mohammed Rashid Rendition Country not disclosed (August 1982
    bombing of a Pan American aircraft) August 1998 Mohamed Rashed Daoud al-
    Owhali Rendition Kenya

    (August 1998 bombing of the U. S. Embassy in Nairobi, Kenya)

    August 1998 Mohamed Sedeek Odeh Rendition Kenya (August 1998 bombing of
    the U. S. Embassy in Nairobi, Kenya)

    December 1998 Mamdouh Mahmud Salim Extradition Germany (August 1998
    bombing of the U. S. Embassy in Nairobi, Kenya)

    October 1999 Khalfan Khamis Mohamed Rendition South Africa (August 1998
    bombing of the U. S. Embassy in Dar es- Salaam, Tanzania)

    September 2001 Zayd Hassan Abd al- Latif Masud al- Safarini Rendition
    Country not disclosed (1986 hijacking of Pan American flight 73 in
    Karachi, Pakistan) Source: Patterns of Global Terrorism 2001, Department
    of State, May 2002 and Terrorism in the United States, 1999, the FBI,
    1999. There may be additional renditions since September 11, 2001, that
    have not been reported because they are classified.

    INTERPOL is a multilateral organization that, among other things,
    facilitates the arrest of terrorist suspects to bring them to the United
    States (or elsewhere) for trial. INTERPOL was established to promote
    international police cooperation to help officers from different police
    forces, countries, languages, and cultures work with each other to solve
    crimes. Although INTERPOL has a world headquarters in Lyon, France, every
    member country has its own INTERPOL office called a National

    Central Bureau. This bureau is the single point- of- contact for foreign
    governments requiring assistance with overseas investigations. Each member
    country employs its own officers to operate on its own territory in
    accordance with its own national laws. INTERPOL provides criminal

    intelligence with its member countries and plays a number of roles in
    information exchange, such as encouraging member countries to use shared
    automated systems and issuing international wanted notices for fugitives.
    When the whereabouts of a suspected terrorist is unknown or the United
    States seeks an immediate arrest of a terrorist suspect, the Department of
    Justice can request their arrest through a *Red Notice.* These notices are
    issued through INTERPOL with the intent to follow up

    with an extradition. While law enforcement authorities in some countries
    are authorized to make an immediate arrest of a suspected terrorist based
    on a Red Notice, other countries require an official provisional arrest or
    formal extradition request.

    Rewards for Justice The State Department*s Rewards for Justice Program
    provides a tool to law

    Program Leads to Arrests enforcement for arresting and prosecuting
    terrorist suspects. The program was established under the 1984 Act to
    Combat International Terrorism 8 and

    and Prosecutions is administered by the Department of State*s Bureau of
    Diplomatic Security.

    The program generally offers rewards up to $5 million for information that
    leads to the arrest or conviction in any country of any individual for
    conspiring, aiding, abetting, or committing an act of international
    terrorism against U. S. persons or property or the prevention,
    frustration, or favorable resolution of such an act. The USA PATRIOT Act
    of 2001 authorizes the Secretary of State to offer or pay rewards of
    greater than $5 million if the Secretary determines that a greater amount
    is necessary to combat terrorism or to defend the United States against
    terrorist acts. The Secretary authorized a reward of up to $25 million for
    information leading to the capture of Osama bin Laden and other key al
    Qaeda leaders.

    Information provided through the Rewards for Justice Program has been used
    to apprehend and arrest suspected terrorists. In the past 7 years, the
    United States has paid over $9.5 million to 23 individuals who provided
    credible information leading to the arrest of international terrorists.
    The program played a significant role in the arrest of a suspected
    terrorist in February 1995 for the bombing of the World Trade Center in
    1993. In

    8 P. L. 98- 533, Oct. 19, 1984.

    addition, the program provided key information about a planned terrorist
    attack against airline ticket counters. As a result, the United States and
    the host nation prevented the terrorist act from being carried out.

    Department of Justice Suspected terrorists apprehended and arrested
    overseas for crimes Prosecutes Suspected

    committed against U. S. citizens or interests are prosecuted in the United
    Terrorists

    States by the Department of Justice. The U. S. Attorney for the District
    of Columbia, together with the Department of Justice*s Counterterrorism
    Section, ordinarily prosecute the offense. In some cases, the prosecutions
    are led by other U. S. Attorneys. For example, on October 18, 2001, the
    Department of Justice successfully prosecuted four al Qaeda members in the
    Southern District of New York for their roles in the bombings of two U. S.
    Embassies in Kenya and Tanzania, which killed 224 persons, including

    12 U. S. citizens. The court sentenced the four suspects to life in
    prison. Coordination Mechanisms

    Investigations of terrorist incidents, including those related to
    international for Law Enforcement terrorism, are coordinated through the
    National Joint Terrorism Task Force. This task force serves as a
    coordinating mechanism for sharing information on suspected terrorists,
    including those of foreign origin. It

    operates out of the FBI*s Strategic Information Operations Center in
    Washington, D. C. In addition, such investigations also are coordinated
    through the FBI*s 66 local Joint Terrorism Task Forces. The FBI
    established

    these task forces to coordinate law enforcement efforts among federal,
    state, and local law enforcement agencies. Depending on the nature of
    terrorist activities in each location, the task forces may include

    representatives from other federal agencies such as the ATF, CIA, the
    Department of Homeland Security (to include the U. S. Secret Service, U.
    S. Coast Guard, the Bureau of Immigration and Customs Enforcement, and the
    Bureau of Customs and Border Protection) and the State

    Department*s Bureau of Diplomatic Security. One of the most robust Joint
    Terrorism Task Forces is in Washington, D. C., which has representatives
    from 15 federal agencies. These task forces serve as the coordinating
    mechanisms that combine the international and national investigative
    resources of the federal government with the street- level expertise of
    local

    law enforcement agencies. This *cop- to- cop* relationship enables law
    enforcement agencies to share information on suspected terrorists,
    including those of foreign origin.

    To coordinate strategic long- term planning and policy in areas related to
    national security efforts to combat terrorism, the Department of Justice
    established the National Security Coordination Council. 9 In areas related
    to prosecutions, the Department of Justice also established Anti-
    Terrorism Task Forces to integrate and coordinate the anti- terrorism
    activities in each of the judicial districts within the United States. The
    task forces are comprised of federal prosecutors from the U. S. Attorney*s
    Office, members

    of the federal law enforcement agencies, as well as the primary state and
    local enforcement officials in each district. They are intended to serve
    as a national network that coordinates closely with the Joint Terrorism

    Task Forces in the collection, analysis, and dissemination of information.
    The Anti- Terrorism Task Forces also are intended to develop the U. S.
    investigative and prosecution strategy in terrorism cases. Overseas,
    coordination within the federal government and with foreign governments is
    led by the Department of Justice, in coordination with Justice officials
    stationed at U. S. embassies. The FBI has legal attaches at overseas posts
    that work closely with law enforcement agencies of the

    host country on common crime problems. They also play a large role in
    facilitating the international battle against terrorism by enlisting the
    cooperation of foreign law enforcement, enabling the arrest of U. S.
    terrorist suspects, and solving crimes against U. S. citizens. For
    example, in the aftermath of the August 1998 bombings of two U. S.
    embassies in

    East Africa, the FBI was able to take immediate steps to initiate a joint
    investigation with local law enforcement authorities and to preserve the
    crime scene and critical evidence. The legal attaches also played a key
    role in the investigation, in that they were the first FBI agents to
    arrive in Nairobi, Kenya, and Dar es- Salaam, Tanzania, in the immediate
    aftermath of the terrorist bombings. The legal attaches also assist in
    coordinating investigations with federal law enforcement overseas by
    disseminating information to key U. S. federal agencies stationed abroad.
    They routinely share information on investigations with liaisons serving
    with DOD components overseas. Currently, there are FBI legal attaches
    stationed at 45 overseas posts, and additional positions have been
    approved. They sometimes serve multiple countries in a region. For
    example, the legal attache at the U. S. Embassy in Athens not only covers
    Greece but also Turkey, Cyprus, Lebanon, Syria, and Jordan.

    9 This is separate from the NSC, which is part of the Executive Office of
    the President and was discussed in more detail in chapter 2.

    The State Department*s regional security officers at U. S. embassies also
    play a key role overseas in coordinating with federal law enforcement
    agencies and with foreign governments. These officers, part of the
    department*s Bureau of Diplomatic Security, are stationed at all U. S.
    embassies. The regional security officers work with foreign law

    enforcement officials at the national, regional, and local level. They
    often serve as liaisons when other federal law enforcement agencies
    request assistance with investigations. They play a particularly important
    role at U. S. embassies not served by FBI legal attaches. They also work
    with

    foreign officials to monitor terrorist threats in the host country, and
    take preemptive measures as appropriate. For example, if the threat level
    increases against U. S. interests in a particular country, the regional
    security officer could request that local police forces adopt a higher
    threat posture around the U. S. embassy.

    Identifying and The National Security Strategy of the United States of
    America calls for

    Freezing Terrorists* the United States to work with its allies to disrupt
    the financing of

    terrorism by identifying and blocking the sources of funding for
    terrorists Financial Assets

    and denying them access to the international financial system. In
    addition, Disrupts Terrorist

    the National Strategy for Combating Terrorism includes an objective to
    Organizations interdict and disrupt material support for terrorists,
    including their financial support. Moreover, one of the enduring policy
    principles that guides U. S. strategies to combat terrorism overseas is
    isolating and applying pressure on states that sponsor terrorism to force
    them to change their behavior. The Departments of State, the Treasury,
    Homeland Security,

    and Justice conduct activities to deny terrorists and their sponsors
    access to financial assets. In some cases, the federal government
    designates terrorists and terrorist organization before the Departments of
    the Treasury, Justice, and State attempt to deny them financing and
    financial services. The United States also works with several
    international organizations to disrupt terrorist financing. Coordination
    occurs through interagency working groups or operations sponsored by the
    NSC and various departments. As of November 2002, the government reported
    that

    over $113 million in terrorist related assets had been frozen, including
    $35 million in the United States and $78 million in other countries.

    Designation of Terrorist As a prelude to freezing terrorist assets, the U.
    S. government can designate Organizations and Their

    a terrorist organization as a Foreign Terrorist Organization and the
    states, Sponsors and Supporters

    organizations, and individuals that sponsor or support them as
    Statesponsors Permits Action to Block

    of terrorism, or organizations or individuals that support terrorism,
    respectively. Different processes exist for designating such Assets

    organizations and states and those who support them. Those processes and
    related sanctions are described below.

    Foreign Terrorist Organizations Under the authority provided by the
    Antiterrorism and Effective Death Penalty Act of 1996, as amended by the
    USA PATRIOT Act of 2001, the Secretary of State, in consultation with the
    Attorney General and the Secretary of the Treasury, designates foreign
    terrorist organizations. 10 The Secretary is authorized to designate an
    organization as a foreign terrorist organization if it is (1) a foreign
    organization, (2) the organization engages in terrorist activity or
    retains the capability and intent to engage in terrorist activity or
    terrorism, 11 and (3) the terrorist activity or terrorism of the
    organization threatens the security of U. S. nationals or the national
    security of the United States. Designating these organizations allows the
    Treasury to block the assets of these organizations in U. S. financial
    institutions. It also makes it a crime to knowingly provide funds and
    other forms of material support to the designated groups and allows the
    blocking of visas for their

    members without having to show that the individual was involved in
    specific terrorist activities. As of April 2003, 36 groups had been
    designated as foreign terrorist organizations.

    State Sponsors of Terrorism The Secretary of State designates a government
    as a State Sponsor of Terrorism if that government has repeatedly provided
    support for acts of international terrorism. The United States imposes
    various sanctions on designated state sponsors of terrorism, such as (1) a
    ban on defense- related exports and sales, (2) certain controls over
    exports of dual use items, (3) restrictions on foreign assistance, and (4)
    imposition of financial and

    other restrictions, including U. S. opposition to loans by or other use of
    funds by the World Bank and other international financial institutions and
    amendments to the Foreign Sovereign Immunities Act to lift sovereign
    immunity in civil litigation in U. S. courts. The Secretary of State has

    10 P. L. 104- 132, Apr. 24, 1996, as amended. 11 For the purposes of this
    designation, *terrorist activity* as defined in 8 U. S. C. 1182( a)( 3)(
    B) (the Immigration and Nationality Act) or *terrorism* as defined in 22
    U. S. C. 2656f( d)( 2).

    designated seven countries as State Sponsors of Terrorism: Cuba, Iran,
    Iraq, Libya, North Korea, Sudan, and Syria. All of these countries have
    held such a designation for several years.

    Organizations and Individuals Executive Order 13224 establishes policies
    and procedures for designating

    That Support Terrorism terrorists, their organizations, and others who
    provide financial support or

    other services to them. 12 The executive order authorizes the Department
    of the Treasury, in consultation with the Department of State and the
    Attorney General, to block assets of individuals and organizations
    supporting terrorists in any financial institution in the United Sates or
    assets held by any U. S. person. As of September 2002, provisions under
    Executive Order 13224 had identified 236 organizations and individuals
    that support terrorism.

    Department of the Treasury Since PDD 39 in June 1995, the Secretary of the
    Treasury has been Efforts to Identify, Track,

    responsible for identifying and blocking terrorist financing. These
    efforts and Block Terrorist

    were stepped up after the terrorist attacks of September 11, 2001, when
    the Financial Assets

    President signed Executive Order 13224. This order directed the Secretary
    of the Treasury, in consultation with the Secretary of State and the
    Attorney General, to deny financing and financial services to terrorists
    and terrorist organizations. The executive order authorizes the blocking
    of assets of

    those designated individuals and organizations linked to global terrorism.
    It also prohibits transactions with designated terrorist groups, leaders,
    and corporate and charitable fronts. The Department of the Treasury also
    is

    working with key federal agencies in implementing key statutory provisions
    of the USA PATRIOT Act to permit more information sharing among law
    enforcement entities and financial institutions. A number of organizations
    within the Department of the Treasury are involved in these efforts.

    12 Executive Order 13224 *Blocking Property and Prohibiting Transactions
    with Persons Who Commit, Threaten to Commit, or Support Terrorism,* Sept.
    23, 2001.

    Executive Office for Terrorist The Executive Office for Terrorist
    Financing and Financial Crimes was

    Financing and Financial Crimes created in March 2003 and assumed selected
    functions of the former Office

    of Enforcement. 13 The office is charged with coordinating Treasury
    Department*s efforts to combat terrorist financing both in the United
    States and abroad. The new office is responsible for the following
    specific duties: (1) developing and implementing U. S. government
    strategies to combat terrorist financing domestically and internationally,
    (2) developing and

    implementing the National Money Laundering Strategy, (3) participating in
    the department*s development and implementation of U. S. government
    policies and regulations in support of the USA PATRIOT Act, (4) joining in

    representation of the United States in international bodies dedicated to
    fighting terrorist financing, and (5) developing U. S. government policies
    related to financial crimes. The office will work with other Treasury
    elements to include the International Affairs Task Force on Terrorism, the
    Office of Foreign Assets Control, and the Financial Crimes Enforcement
    Network (all described below).

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

    Financing Task Force countries in an effort to implement and improve
    mechanisms for blocking

    terrorist assets globally and thereby deny terrorists access to formal and
    informal financial systems. The task force tracks global progress in
    blocking terrorist assets and attempts to coordinate these efforts with

    various international organizations. Office of Foreign Assets Control The
    Office of Foreign Assets Control administers economic sanctions and

    embargo programs against specific foreign countries or groups (including
    designated terrorists, terrorist organizations, state sponsors, and
    individuals supporting those organizations) to further U. S. foreign
    policy and national security objectives. The office imposes control on
    financial transactions and freezes foreign assets, denying the targeted
    country, individual, or organization.

    Financial Crimes Enforcement The Financial Crimes Enforcement Network
    (FinCEN) has a mission is to

    Network (1) support law enforcement investigative efforts and foster
    interagency

    and global cooperation against domestic and international financial crimes
    13 The Department of the Treasury*s Office of Enforcement had been
    responsible for the policy, development, guidance, and coordination of
    Treasury*s law enforcement entities to combat money laundering, including
    terrorists financing. The office had also been involved in negotiating
    international agreements to engage in joint law enforcement operations and

    exchange financial information and records.

    and (2) provide U. S. policymakers with strategic analyses of domestic and
    worldwide money- laundering developments, trends, and patterns. The
    network supports law enforcement investigations to prevent and detect
    terrorist financing, money laundering and other financial crimes.

    Department of Homeland The new Department of Homeland Security also has a
    role in tracking

    Security Has Role Related to terrorist financing and conducting related
    investigations. The department*s Terrorist Financing

    Bureau of Immigration and Customs Enforcement and the U. S. Secret Service
    are involved in these activities. Bureau of Immigration and

    The Bureau of Immigration and Customs Enforcement, consisting in part of
    Customs Enforcement

    the former U. S. Customs Service, has a mission to target current
    terrorist funding sources and identify possible future sources. The bureau
    has a multi- agency entity called Operation Green Quest to bring together
    federal agency expertise across departments and bureaus to identify
    systems, individuals, and organizations that serve as sources of terrorist
    funding. According to Operation Green Quest officials, their
    investigations have resulted in a number of arrests, indictments,
    convictions, and seizures. Operation Green Quest is working in tandem with
    other federal law

    enforcement agencies in pursuing several specific cases related to
    terrorist financing. U. S. Secret Service The U. S. Secret Service is
    responsible for enforcement of laws relating to

    securities of the United States and financial crimes. Its efforts to
    combat international terrorism rest primarily on the investigation of
    counterfeiting of currency and securities.

    Department of Justice and The Department of Justice and the FBI also have
    efforts under way to

    the FBI also Track and disrupt terrorist financing. According to the
    department, the FBI has the

    Investigate Terrorist Assets lead in law enforcement and criminal matters
    related to terrorism, and

    terrorist financing is one element of overall terrorist investigations and
    prevention efforts. There are two major organizations within the
    department that are involved in these efforts.

    Terrorist Financing Task Force The Department of Justice established a
    Terrorist Financing Task Force to coordinate the terrorist financing
    enforcement efforts. Within Justice*s Criminal Division, the task force
    works with prosecutors around the country as well as with the FBI*s
    Foreign Terrorist Tracking Task Force and

    Terrorist Financing Operation Section to disrupt groups and individuals
    representing terrorist threats.

    Terrorist Financing Operations In response to the events of September 11,
    2001, the FBI established the

    Section interagency Terrorist Financing Operations Section within its

    Counterterrorism Division to work jointly with the law enforcement and
    intelligence communities to identify, investigate, disrupt, dismantle, and
    prosecute, as appropriate, terrorist- related financial and fund- raising
    activities. With access to FBI and CIA intelligence and criminal databases
    and connectivity to terrorism investigations, the section is a focal point
    for efforts to identify and target terrorist financing. According to the
    FBI, the Terrorist Financing Operations Section brings the bureau*s
    financial expertise to bear in identifying terrorist financing methods and
    movement of money into and out of the United States in support of
    terrorist activity. The section works with other agencies and partners in
    the law

    enforcement, intelligence, financial, and international sectors. To help
    prevent terrorist attacks, the section developed a centralized terrorist
    financial database to identify potential terrorist- related activity in
    the United States and abroad. This database is utilized in conjunction
    with a number of initiatives, which include working with the financial
    sector in developing predictive models and conducting data mining analysis
    to

    facilitate a proactive approach in identifying previously unknown
    *sleeper* terrorist suspects. According to the FBI, information developed
    by the section is shared within the law enforcement and intelligence
    community.

    International Cooperation The Departments of State, the Treasury, and
    Justice work with other

    to Identify and Freeze countries on a bilateral and multilateral basis to
    identify and freeze

    Terrorist Assets terrorist assets. At the State Department, the Office of
    the Coordinator for

    Counterterrorism and the Office of International Narcotics and Law
    Enforcement have the lead in coordinating capacity building to combat
    terrorist financing in other countries. Offices from other agencies lend
    their expertise on a bilateral and multilateral basis to provide technical
    assistance and training to countries to assist these countries in meeting
    international standards to combat terrorist financing. For example, the
    Treasury*s Office of International Affairs takes the lead in working with
    other countries. Treasury*s Office of Technical Assistance is working with
    a number of countries to assess their capabilities and provide technical
    support to disrupt terrorist financing. In another example, the Department
    of Justice*s Asset Forfeiture and Money Laundering Section provides
    assistance to other countries in drafting money- laundering legislation.
    Types of U. S. government technical assistance and training cover both the

    legal aspects (from drafting laws and implementing regulations to training
    prosecutors and judges) and financial aspects (from developing financial
    intelligence units to conducting financial investigations). Additional
    information on training and assistance was provided in chapter 3.

    As of November 2002, 208 countries and jurisdictions have pledged their
    support for the financial war on terrorism and 165 countries and
    jurisdictions have issued orders in force to freeze terrorist assets.
    Since

    September 11, 2001, the international community has frozen millions of
    dollars in terrorist- related assets under UN Security Council Resolutions
    1267, 1390, 1373, and 1455. Other countries improved their legal and
    regulatory systems to help block terrorist funds.

    On a bilateral basis, U. S. embassy officials representing the Departments
    of State, the Treasury, and Justice work with individual host countries on
    matters of terrorist financing. State economic officers, Treasury
    financial attaches, and FBI legal attaches all play roles in this type of
    bilateral

    cooperation. In 2002, the State Department required that each U. S.
    embassy establish a Terrorist Financing Task Forces, an initiative to
    further coordinate the activities of these agencies. The Department of
    Homeland Security*s Bureau of Immigration and Customs Enforcement
    (formerly

    U. S. Customs Service) provides expertise on import/ export issues. The
    Embassy*s Deputy Chief of Mission generally leads these task forces.

    On a multilateral basis, the U. S. government works with several
    international organizations, to increase international cooperation to
    combat terrorist financing. Examples of these include:

    United Nations Several UN Security Council Resolutions call on UN member
    states to take actions against terrorist financing. Resolution 1373 is the
    broadest of these and it, among other things, obligates member states to
    prevent and suppress the financing of terrorist acts, freeze funds and
    other financial assets or economic resources of persons who commit or
    attempt to commit terrorist acts, and criminalize the collection or
    provision of funds intended for use in carrying out terrorist acts. In
    addition, UN Security Council Resolution 1455 requires member states to
    continue sanctions against the Taliban, Osama bin Laden, and al Qaeda. It
    requires states to implement sanctions to include freezing economic
    resources, preventing the supply or sale of weapons, and preventing
    members of al Qaeda or the Taliban from entering or traveling through
    their territories.

    Financial Action Task Force The Financial Action Task Force is another
    international group that cooperates in efforts against terrorist financing
    and support. The task force* consisting of 31 members* has served as the
    preeminent multilateral organization to combat money laundering since
    1989. The Financial Action Task Force established a Terrorist Financing
    Working Group, which is co- chaired by Spain and the United States
    (through the Department of the Treasury). The working group is to identify
    members that will need assistance to come into compliance with the
    recommendations on terrorist financing. The task force issued eight
    special recommendations on terrorist financing, requiring all members to
    (1) ratify the UN International Convention for the Suppression of the
    Financing of Terrorism and implement relevant UN Security Council
    Resolutions against terrorist financing; (2) criminalize the financing of
    terrorism, terrorist acts, and terrorist organizations; (3) freeze and
    confiscate terrorist assets; (4) require financial institutions to report
    suspicious transactions linked to terrorism; (5) provide the widest
    possible assistance to other countries* law enforcement and regulatory
    authorities for terrorist financing investigations; (6) impose anti- money
    laundering requirements on alternative remittance systems; (7) require
    financial institutions to include accurate and meaningful originator
    information in money transfers; and (8) ensure that non- profit
    organizations cannot be misused to finance terrorism. The task force also
    requires members to provide closer scrutiny of transactions with non-
    cooperative countries and prohibits financial transactions with these
    members* jurisdictions.

    Egmont Group The Egmont Group is an international group that cooperates in
    efforts against terrorist financing and support. There are 69 members,
    with each member designating one of its agencies as its Financial
    Intelligence Unit to act as a central resource for collecting information
    and cooperating with the other Egmont members. For the United States, the
    Department of the Treasury has designated FinCEN as the Financial
    Intelligence Unit. The intelligence units work collectively to (1)
    eliminate impediments to information exchange, (2) make terrorist
    financing a form of suspicious activity to be reported by all financial
    sectors to their respective intelligence unit, and (3) undertake joint
    studies of money laundering vulnerabilities, especially those having some
    bearing on terrorism. The intelligence units foster interagency global
    cooperation in the efforts to combat international financial crimes. This
    includes sharing information on training and expertise with foreign law
    enforcement officials. FinCEN maintains country specific expertise of
    financial crimes, promotes the development of Financial Intelligence Units
    in other countries, and facilitates investigative exchanges with them.

    International Organization of International cooperation related to money
    laundering also occurs through

    Supreme Audit Institutions the International Organization of Supreme Audit
    Institutions, which

    represents 184 UN member nations* top accountability organizations related
    to government audit and oversight. The U. S. General Accounting Office and
    its counterparts from all parts the world are working cooperatively to
    improve their oversight capacity for government departments and regulatory
    financial institutions. This work takes the

    form of publishing and disseminating standards and guidelines in critical
    areas such as auditing, internal control, financial reporting, information
    technology, and public debt. In addition, the organization recently

    established a task force charged with studying the national audit offices*
    role in helping prevent and detect money laundering and sharing
    information and experiences with each other. The organization also has
    established partnerships with organizations such as the World Bank and the
    International Federation of Accountants to strengthen its impact in these
    areas.

    Coordination Mechanisms At the strategy and policy level, interagency
    coordination of U. S. for Efforts to Disrupt

    government efforts to deny terrorists financing is intended to occur
    Terrorist Financing and

    through a NSC- sponsored working group chaired by the Department of the
    Support

    Treasury. The interagency group helps to coordinate operations to disrupt
    terrorist networks by freezing terrorist accounts and seizing assets. The
    interagency group also helps to develop strategies and activities to deny
    terrorist financing with other countries. The highest- level interagency
    planning document is the National Money Laundering Strategy. The
    Departments of the Treasury and Justice jointly published this July 2002
    strategy. The strategy sets forth an action plan for how law enforcement,
    regulatory officials, the private sector, and the international community
    could take steps to make it harder for criminals to launder money
    generated from their illegal activities. In addition to addressing general
    criminal financial activities, the 2002 strategy presents the government*s
    plan to attack financing networks of terrorist entities. The strategy

    discusses the need to adapt traditional methods of combating money
    laundering to unconventional tools used by terrorist organizations to
    finance their operations.

    At the operations level, interagency coordination occurs through the
    Department of Homeland Security*s Operation Green Quest and the FBI*s
    Terrorist Financing Operations Section and Joint Terrorism Task Forces.
    These organizations, particularly Operation Green Quest and the Terrorist
    Financing Operations Section, were established to investigate and pursue

    terrorist cells and networks, including the financing of such networks.
    They act as both operational units and coordination mechanisms by pooling
    information and expertise from participating agencies, such as the
    Department of Homeland Security*s Bureau of Immigration and Customs

    Enforcement and U. S. Secret Service; the Department of Justice*s FBI and
    ATF; the Department of the Treasury*s Internal Revenue Service, FinCEN,
    and Office of Foreign Assets Control; and the CIA.

    Overseas coordination occurs at U. S. embassies through recently
    established Terrorist Financing Task Forces. The U. S. embassy*s deputy
    chief of mission leads these task forces with important roles also being
    played by Department of State economic officers, Department of the
    Treasury financial attaches, FBI legal attaches, and Department of
    Homeland Security customs attaches.

    Military Operations The National Strategy for Combating Terrorism includes
    objectives to Provide Means to

    destroy terrorists and their organizations and to deny them sanctuaries
    and havens. According to the strategy, the intelligence community, in
    Destroy Terrorist

    conjunction with the Departments of State and Defense, will conduct an
    Organizations

    annual review and assessment of international terrorist sanctuaries and
    develop plans to address them. Military operations, led by DOD, provide a
    means to meet these objectives that complement other means* political,
    diplomatic, legal, economic, and financial. Following the coordinated
    terrorist attacks against the United States on September 11, 2001, DOD has
    deployed forces worldwide in military operations against terrorists and
    their supporters. As part of those deployments, DOD led Operation Enduring
    Freedom with its coalition partners to disrupt and destroy global

    terrorist organizations. U. S. Special Operations Forces worked on the
    ground in Afghanistan with the Northern Alliance to help coordinate naval
    and air attacks against the Taliban regime and al Qaeda in Afghanistan. U.
    S. and coalition maritime interception operations disrupt terrorist
    organizations* transport of terrorists and shipping of materiel and
    illegal contraband to help support their operations. Members of al Qaeda
    and Taliban forces captured during Operation Enduring Freedom have been
    designated as combatants without prisoner of war status and are being
    detained by the United States and its coalition partners for interrogation
    and potential prosecution. A number of military contributions made by the
    U. S. coalition partners helped support Operation Enduring Freedom. Some
    of these contributions included aircraft to support the air campaign over
    Afghanistan, ground troops inside the country, including special
    operations

    forces, and naval forces dispatched to the North Arabian Gulf and Indian
    Ocean.

    DOD Deployed Worldwide According to the Chairman of the Joint Chiefs of
    Staff, U. S. forces now

    in Military Operations are deployed to an unprecedented number of
    locations in the wake of

    the September 11, 2001, terrorist attacks. 14 One of the most visible
    Against Terrorists and Their

    deployments relate to operations in and around Afghanistan, discussed
    Supporters

    in more detail below. In addition, military forces have been deployed on
    missions related to terrorism in a number of other countries, including
    Colombia, Cuba, Georgia, the Philippines, and Yemen.

    DOD Leads Operation Following the attacks on September 11, 2001, the
    Secretary of Defense Enduring Freedom and

    directed the preparation of *credible military options* to respond to
    Topples Taliban Regime international terrorism. The U. S. Central Command*
    DOD*s regional military command whose area of responsibility includes
    Afghanistan and surrounding geographic areas* devised a plan to destroy
    the al Qaeda network inside Afghanistan along with the Taliban regime,
    which was harboring and protecting terrorists. On October 7, 2001, 26 days
    after the attacks on the World Trade Center in New York City and the
    Pentagon, Operation Enduring Freedom was launched on a global scale as a
    broad and sustained campaign to disrupt and destroy terrorists and
    terrorist organizations. According to the Secretary of Defense, the
    objectives of the military operations were as follows:

     Make clear to the Taliban leaders and their supporters that harboring
    terrorists is unacceptable and carries a price.

     Acquire intelligence to facilitate future operations against al Qaeda
    and the Taliban regime that harbors the terrorists.

     Develop relationships with groups in Afghanistan that oppose the Taliban
    regime and the foreign terrorists that they support.

     Make it increasingly difficult for the terrorists to use Afghanistan
    freely as a base of operations.

    14 Posture Statement of General Richard B. Myers, Chairman of the Joint
    Chiefs of Staff, before the Committee on Armed Services, House of
    Representatives, February 5, 2003.

     Alter the military balance over time by denying to the Taliban the
    offensive systems that hamper the progress of various opposition forces.

     Provide humanitarian relief to Afghans suffering oppressive living
    conditions under the Taliban regime.

    Military operations were conducted in Afghanistan in conjunction with U.
    S. coalition with the goal of removing the Taliban from power and
    destroying the al Qaeda network within Afghanistan. U. S. forces and its
    coalition partners combined operations with the Northern Alliance fighters
    (primarily from the Tajik and Uzbek ethnic groups) and the Southern
    Alliance fighters in the defeating the Taliban forces.

    A series of bombing sorties were launched against the Taliban*s air
    defense, command and control, and mobility capabilities. U. S. Special
    Operations Forces on the ground worked with the Northern Alliance fighters
    to identify targets for a coordinated air attack. Long- range air strikes
    using advanced laser- guided weapons were launched from aircraft carriers
    in the Arabian Sea, Indian Ocean, and from regional land bases. U. S.
    Navy, Marine, and Air Force pilots delivered in excess of 18,000
    munitions, of which more than 10,000 were precision- guided bombs. As
    shown in

    figure 12, B- 52 long- range bombers launched from Diego Garcia (a British
    archipelago in the Indian Ocean) also were used during the air campaign.

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

    U. S. forces conducted surveillance of Afghanistan and the movement of
    enemy forces through a combination of intelligence assets. U. S. Special
    Operations Forces on the ground provided human intelligence while manned
    and unmanned surveillance aircraft patrolled the skies, providing
    information on sites, facilities, and troop concentrations. Figure 13
    shows U. S. Special Operations Forces adapting to their environment by
    riding on horseback to conduct operations in northern Afghanistan.

    Figure 13: U. S. Special Forces Troops Riding Horseback in Afghanistan
    With Members of the Northern Alliance during Operation Enduring Freedom

    These operations have resulted in the destruction of the Taliban regime,
    although U. S. forces continue to locate and engage remaining pockets of
    terrorists and their supporters to improve security and stability in
    Afghanistan. According to U. S. Central Command officials, many al Qaeda
    members, including their operational planners, facilitators, and
    logisticians, have been captured or killed. In addition, al Qaeda training

    facilities in Afghanistan have been destroyed, command and control
    capabilities have been disrupted, and the remaining al Qaeda leaders are
    on the run.

    As of April 2003, according to the U. S. Central Command, the initial
    objectives of Operation Enduring Freedom to destroy the base of the al
    Qaeda terrorist organization in Afghanistan and replace the Taliban regime
    that supported al Qaeda largely have been met. Combined Joint Task Force
    180, which took direct control of operations in Afghanistan in June 2002,
    continues this mission. It also is conducting operations to ensure that
    Afghanistan will not again be a safe haven for terrorists and to
    facilitate the reintroduction of Afghanistan into the community of
    nations.

    The U. S. Central Command*s operations in Afghanistan have been
    complemented by cooperative efforts with Pakistan to eliminate the al
    Qaeda organization in that country. According to the U. S. Central
    Command, these efforts have led to the capture of hundreds of al Qaeda and
    Taliban members, including very senior members of the al Qaeda
    organization. This cooperation continues to degrade the al Qaeda
    organization and is a critical component in the terrorist organization*s
    destruction.

    DOD and U. S. Coast Guard The National Strategy for Combating Terrorism
    includes an objective to

    Conduct Maritime interdict and disrupt material support for terrorists. As
    part of this

    Interception Operations objective, U. S. military forces, in conjunction
    with coalition partners,

    conduct maritime interception operations to disrupt shipping by terrorist
    organizations. According to the Chairman of the Joint Chiefs of Staff, the
    President approved expanded maritime interception operations in July 2002,
    authorizing commanders to stop, board, and search merchant ships
    identified to be transporting terrorists and/ or terrorist- related
    material. 15 These operations have been concentrated in the areas of
    responsibility of

    the U. S. European Command and U. S. Central Command. In support of
    Operation Enduring Freedom, U. S. naval forces conducted maritime
    interception operations with a number of coalition partners. Operations by
    the U. S. European Command include NATO maritime and air forces. These
    operations resulted in more than 16, 000 vessels being queried and about
    200 vessels being boarded and searched. One operation led to the detention

    15 Posture Statement of General Richard B. Myers, Chairman of the Joint
    Chiefs of Staff, before the Committee on Armed Services, House of
    Representatives, Feb. 5, 2003.

    of four suspected al Qaeda members in the Gulf of Oman as navy vessels and
    aircraft from Canada, France, Italy, and the Netherlands targeted,
    intercepted, and boarded two vessels. The four captured al Qaeda members
    were transported to the detainee facility at Bagram Air Base, Afghanistan.
    Figure 14 shows coalition forces conducting such operations in the Arabian
    Sea.

    Figure 14: British Troops Prepare to Board an Oil Tanker as Part of the
    Coalition*s Maritime Interception Operations in the Arabian Sea

    The U. S. Coast Guard also participates in maritime interception
    operations. In its role as a military service, the U. S. Coast Guard
    supports regional military commands, which have requested and received U.
    S. Coast Guard cutters to conduct such operations. A 1995 Memorandum of
    Agreement between the Departments of Defense and Transportation identified
    the appropriate roles, missions, and functions of the U. S. Coast Guard to
    support the national military and naval strategies of the United States.
    The agreement recognized that the U. S. Coast Guard maintains many
    proficiencies and platforms directly applicable to maritime interception
    operations and that is it appropriate and desirable for the U. S. Coast
    Guard

    to participate in such operations. To accomplish its missions to combat
    terrorism, both domestic and overseas, the U. S. Coast Guard developed a

    U. S. Coast Guard Maritime Strategy for Homeland Security. This strategy
    puts a premium on identifying and intercepting threats well before they
    reach U. S. shores by conducting layered, multi- agency, maritime security
    operations that include surveillance and reconnaissance, tracking, and
    interception.

    Detainees Held by DOD for Throughout the military operations in
    Afghanistan, U. S. forces and military

    Intelligence Gathering coalition partners captured over 5,000 Taliban and
    al Qaeda forces and

    confiscated laptop computers and cell phones. DOD holds some al Qaeda
    fighters who had information about operational methodology and future
    operations in Kandahar and Bagram, Afghanistan. DOD transported other
    detainees to detention facilities at Naval Air Station Guantanamo Bay,
    Cuba. Over 500 detainees from 44 countries were transported to

    Guantanamo Bay. Figure 15 shows part of the newly constructed detention
    facility at Naval Air Station Guantanamo Bay, Cuba.

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

    The U. S. Southern Command activated Joint Task Force 160 to staff the
    maximum- security installation and provide security and support functions
    at Naval Air Station Guantanamo Bay. The detainees, originally housed in
    the wire enclosures at Camp X- Ray, are now housed in a more permanent

    facility, known as Camp Delta. The U. S. Southern Command also established
    Joint Task Force 170 to coordinate U. S. military and government agency
    interrogation efforts in support of Operation Enduring Freedom. A Joint
    Interagency Interrogation Facility was established to support
    interrogations focused on intelligence collection, force protection, and
    planned terrorist activities. These efforts also support law enforcement
    agencies and military tribunal efforts.

    The detainees are not considered to be prisoners of war. The President
    determined that the Geneva Convention of 1949 applies to the conflict with
    the Taliban in Afghanistan because Afghanistan is a state and signatory of
    the Geneva Convention. However, the President determined that the Taliban
    detainees do not have prisoner of war status because they fail to meet the
    criteria under article 4 of the Geneva Convention. For example,

    throughout combat in Afghanistan, the Taliban did not wear distinctive
    signs, insignias, symbols, or uniforms, and were not organized into
    military units with identifiable chains- of- command. In addition, the
    President determined that the Geneva Convention of 1949 does not apply to
    al Qaeda detainees because they are considered to be a non- state
    terrorist network.

    DOD*s Military Order issued on November 13, 2001, permits military
    commissions to try non- U. S. citizens accused of terrorism against the
    United States and DOD has announced procedural draft guidelines for

    those commissions. Non- U. S. citizens selected by the President, to
    include al Qaeda and Taliban members, those involved in acts of
    international terrorism against the United States, and those members or
    actors who knowingly harbor such terrorist may be tried. According to the
    order, the

    Secretary of Defense will appoint members to each commission, which will
    have three to seven members. One commission member the presiding officer
    will ensure discipline and the decorum and dignity of the

    proceedings. As of March 2003, no trials have been held. Coalition
    Partners Support

    Following the attacks on September 11, 2001, the Department of State led
    U. S. Military Operations efforts to build a coalition to support the
    global war on terrorism. About 90 nations made contributions to Operation
    Enduring Freedom including intelligence, personnel, equipment, and
    military assets. In the U. S. Central

    Command*s area of responsibility, coalition partners deployed more than
    16,000 troops. In Afghanistan, coalition partners contributed more than
    8,000 troops to both Operation Enduring Freedom and to the UN- mandated
    International Security Assistance Force in Kabul, which represented over

    half of the 15,000 non- Afghan forces in Afghanistan. 16 Some 9 countries
    provided ground forces to serve in Afghanistan and 21 countries deployed
    forces to support the International Security Assistance Force in
    Afghanistan. Other key military contributions included support to aircraft
    in the air campaign over Afghanistan, ground troops inside Afghanistan,
    including special operations forces, and naval forces dispatched to the
    North Arabian Gulf and Indian Ocean for maritime surveillance and
    interception operations. Table 9 summarizes the military contributions
    made by selected coalition partners to support Operation Enduring Freedom.
    These contributions are in addition to the basing and overflight
    agreements negotiated by the State Department and discussed under
    diplomatic initiatives at the beginning of this chapter.

    Tabl e 9: Significant Military Contributions by Selected Coalition
    Partners in and around Afghanistan in Support of Operation Enduring
    Freedom Type of operations Contributions in support of Operation Enduring
    Freedom Ground operations

    Special operations forces Australia, Canada, Denmark, Germany, New
    Zealand, Norway, and the United Kingdom deployed special operations forces
    in Afghanistan and surrounding regions to perform the full spectrum of
    missions.

    Infantry support Canada, France, Italy, Pakistan, Turkey, and the United
    Kingdom deployed infantry and equipment in Afghanistan and surrounding
    regions to perform security and combat operations.

    Naval operations

    Maritime interception Australia, Canada, France, Italy, the Netherlands,
    Poland, and the United Kingdom deployed operations ships, aircraft, and
    forces in the Arabian Gulf and surrounding areas to support maritime
    interception operations. Logistical support Japan, India, and Poland
    deployed ships for logistical support, such as refueling and escort
    assistance.

    Combat operations France, Italy, Turkey, and the United Kingdom deployed
    ships to support combat operations in the region. Denmark and the
    Netherlands also deployed naval ships to relieve U. S. units in the U. S.
    Southern Command.

    16 UN Security Council Resolution 1386 (Dec. 20, 2001) authorized the
    establishment of the International Security Assistance Force to provide
    assistance and maintain security in Kabul, Afghanistan, and its
    surrounding areas.

    (Continued From Previous Page)

    Type of operations Contributions in support of Operation Enduring Freedom
    Air operations

    Combat air patrol Denmark, France, and Norway deployed fighter aircraft in
    Afghanistan and surrounding regions to support combat air patrol missions.
    Australia deployed fighter aircraft to perform combat air patrol missions
    at Diego Garcia in support of the U. S. Pacific Command. The Czech
    Republic and the United Kingdom deployed personnel and aircraft in support
    NATO airborne warning and control systems missions.

    Strategic airlift Belgium, Canada, Denmark, France, and Norway deployed
    aircraft in Afghanistan and surrounding regions to support strategic
    airlift operations. Japan also deployed aircraft to support re- supply and
    transport requirements within the U. S. Pacific Command*s area of
    responsibility.

    Logistical support Australia, France, the Netherlands, New Zealand,
    Norway, Turkey, and the United Kingdom deployed aircraft to Afghanistan
    and surrounding regions to conduct logistical support, including aerial
    refueling.

    Surveillance and reconnaissance France and United Kingdom deployed
    aircraft in Afghanistan and surrounding regions to provide support to
    intelligence, surveillance, and reconnaissance missions.

    Other support

    Mine clearing operations Denmark, Jordan, Norway, Poland, and the United
    Kingdom deployed personnel and equipment in Afghanistan to conduct mine
    clearing missions.

    Civil- military support Belgium, Denmark, Finland, France, Germany,
    Greece, Italy, Netherlands, New Zealand, Norway, Portugal, Romania, Spain,
    Sweden, Turkey, and the United Kingdom deployed civil military personnel,
    aircraft, and equipment to support the UN International Security
    Assistance Force in Afghanistan.

    Humanitarian support Belgium, the Czech Republic, Denmark, Finland,
    France, Germany, Jordan, Kyrgyzstan, the Netherlands, Norway, Portugal,
    Russia, South Korea, Spain, Sweden, Turkmenistan, and the United Kingdom
    provided humanitarian support to Afghanistan.

    Consequence Bulgaria, the Czech Republic, and the United Kingdom provided
    consequence management management support teams (nuclear, biological, and
    chemical teams) in Afghanistan and surrounding regions. Source: DOD.

    Note: GAO analysis of DOD data.

    Forces from NATO countries played a key role in the effort to end
    Afghanistan*s role as a safe haven for terrorists and terrorist
    organizations by providing direct and indirect military support to the
    United States. As shown above, NATO members providing support included
    Belgium, Bulgaria, Canada, the Czech Republic, Denmark, France, Germany,
    Greece, Italy, the Netherlands, Norway, Poland, Portugal, Spain, Turkey,
    and the United Kingdom. In addition, forces under direct NATO control were
    deployed to support U. S. forces. For example, NATO deployed five airborne
    warning and control systems aircraft to the continental United States to
    patrol the skies and free up similar U. S. aircraft for missions over
    Afghanistan. The alliance also sent its Standing Naval Force to the

    Mediterranean Sea to establish a NATO presence in the region. NATO*s
    support in the region helped provide enhanced intelligence sharing, access

    to ports and airfields, increased security for U. S. bases on allied
    territory, and backfill for selected U. S. and allied military assets
    withdrawn from NATO*s area of responsibility. Figure 16 shows aerial
    reconnaissance support provided by a NATO country.

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

    Coordination Mechanisms At the headquarters level, military operations are
    coordinated at DOD.

    for Military Operations Within the Joint Staff*s various directorates for
    intelligence, operations,

    logistics, and planning, there are sections dedicated to military
    operations against terrorism. For example, the Joint Staff*s Directorate
    for Planning (J- 5) has a special section for planning the worldwide
    campaign against

    terrorism. This section developed DOD*s National Military Strategic Plan
    for the War on Terrorism. DOD currently coordinates its worldwide,
    military operations through various regional and functional commands. The
    regional commands* responsible for a specific geographic area of

    responsibility* include the U. S. Central Command, the U. S. European
    Command, the U. S. Northern Command, the U. S. Pacific Command, and the U.
    S. Southern Command. 17 DOD*s functional commands include the U. S. Joint
    Forces Command, the U. S. Special Operations Command, U. S. Strategic
    Command, U. S. Space Command, and U. S. Transportation Command. The U. S.
    Special Operations Command is preparing to take a lead role in the war on
    terrorism in future operations and will transition from a *supporting* to
    a *supported* command in this role. As discussed previously, the State
    Department*s Bureau of Political- Military Affairs and

    various regional bureaus are involved in headquarters coordination of
    military operations with other countries, particularly when diplomatic
    negotiations are required to obtain coalition support. At the field level,
    military operations are coordinated by DOD*s regional commands. Depending
    on the operation, the regional and functional commands are either
    *supported commands* (having the lead for that operation) or *supporting
    commands* (providing support to the lead command). For example, for
    operations in Afghanistan, the U. S. Central Command was the supported
    command, in charge of planning and executing operations. It got help from
    supporting commands to include the

    U. S. Transportation Command (which supplies airlift), the U. S. Special
    Operations Command (which supplies special operations forces), and other
    commands. These commands also have subordinate headquarters or forward
    operating bases overseas to coordinate military operations in the field.

    The regional commands also coordinate their activities through interagency
    working groups and various plans. DOD created interagency working groups
    following the September 11, 2001, terrorist attacks on the United States
    and they include agencies representing diplomacy, intelligence, and law
    enforcement. Some of the agencies had long- standing

    liaisons at the commands, while other agencies established liaisons for
    the first time. An example of a long- standing liaison would be State
    Department political advisors with the rank of ambassador, who help the
    commands coordinate diplomatic activities with the department in
    Washington, D. C., and with U. S. embassies in the command*s area of
    responsibility. Regional military commands also have command- specific

    17 The U. S. Northern Command became operational in October 2002. Its
    focus is on homeland security and, therefore, was not covered in this
    report on efforts to combat terrorism overseas.

    campaign plans to implement DOD*s National Military Strategic Plan for the
    War on Terrorism in their geographic area of responsibility. They also
    have Theater Security Cooperation Plans to lay out the command*s
    strategies for working with other countries in the region to further U. S.
    foreign policy and military goals.

    Covert Actions Can Another tool that can be used to disrupt and destroy
    terrorist organizations

    is covert action by the intelligence community. 18 By executive order and
    Be Used to Disrupt

    statute, the CIA specifically is authorized to initiate such actions that
    are and Destroy Terrorist

    individually authorized by the President. 19 Other federal agencies and
    Organizations

    departments also may be tasked to support covert action, with a separate
    presidential authorization. The Intelligence Authorization Act of 1991
    allows the President to authorize covert actions if they are necessary to
    support the foreign policy objectives of the United States. According to
    the

    act, any new covert action must be justified according to this standard in
    a written finding that the President must submit to the House and Senate
    Select Committees on Intelligence, unless the President determines that it
    is necessary to limit access to the finding to meet extraordinary
    circumstances affecting vital U. S. interests. This finding must specify
    the government agencies participating in the action, can never be
    retroactive, and may not authorize any action that would violate the U. S.
    Constitution or U. S. statute. In extraordinary circumstances, the
    President may restrict access to findings to certain congressional
    officials, but such reasons for

    the restriction must be submitted to the committees. Finally, the
    President must notify the committees of any significant change to a
    previously approved covert action. The Congress has supported such actions
    in the

    past, urging the President to *use all necessary means, including covert
    action, to disrupt, dismantle and destroy infrastructure used by
    international terrorists, including overseas terrorist training facilities
    and safe havens.* 20

    18 Covert action is an operation designed to influence governments,
    events, organizations, or persons in support of foreign policy in a manner
    that is not necessarily attributable to the United States. It may include
    political, economic, propaganda, or paramilitary activities.

    19 Executive Order 12333, Dec. 4, 1981 and P. L. 102- 88, Aug. 14, 1991.
    20 P. L. 104- 132 S: 324, Apr. 24, 1996.

    The Director of Central Intelligence, in discussing covert actions in an
    unclassified forum, provided several examples of CIA efforts to disrupt
    terrorist organizations. 21 By 1993, the U. S. intelligence community
    already had recognized al Qaeda as a significant threat and began
    operations to reduce its capabilities. These efforts included hitting al
    Qaeda*s infrastructure, working with foreign security services, disrupting
    and

    weakening Osama bin Laden*s businesses and finances, and recruiting or
    exposing operatives. By 1999, these efforts had coalesced into a concerted
    offensive disruption campaign against the al Qaeda network. During the
    millennium threat period, CIA and FBI disruption operations identified 36
    terrorist agents and successfully targeted 21. A parallel operation in
    East Asia led to the arrest or detention of 45 members of Hizballah.
    Later, during the Ramadan threat period (winter of 2000), terrorist cells
    planning attacks on U. S. and foreign military and civilian targets in the
    Persian Gulf were broken up and their equipment seized. This equipment
    included hundreds of pounds of explosives as well as anti- aircraft
    missiles. The operation also netted proof that some Islamic charitable
    organizations had been either hijacked or created to provide support to
    terrorists operating in other countries. Finally, in the spring and summer
    of 2001, the CIA helped break up a terrorist cell in Jordan, disrupted a
    plan to attack U. S. facilities in Yemen in concert with a foreign
    partner, and mounted a broad disruption

    effort that substantially delayed attacks, including one planned on the U.
    S. military in Europe.

    Agency Comments and The Departments of Defense, Justice, and State and ATF
    provided technical

    Our Evaluation comments on the matters covered throughout this chapter.
    Based upon

    these comments, we made revisions as appropriate. We also made revisions
    (primarily to the sections on law enforcement and terrorist financing)
    based upon the creation of the Department of Homeland Security and the
    transfer of various agencies and functions from the Department of the
    Treasury into that department.

    21 These unclassified examples are from the Written Statement for the
    Record of the Director of Central Intelligence before the Joint Inquiry
    Committee, Oct. 17, 2002.

    Federal Efforts to Respond to Terrorist

    Chapt 5 er Incidents Overseas The National Strategy for Combating
    Terrorism includes an objective to ensure a fully integrated incident
    management capability. In addition, the

    National Strategy for Homeland Security calls for the United States to
    improve international cooperation in response to terrorist attacks.
    Further, the National Strategy to Combat Weapons of Mass Destruction calls
    for

    the United States to be prepared to manage the consequences of a WMD
    attack, including those that occur overseas. Federal efforts to respond to
    terrorist incidents overseas consist of actions taken before, during, and
    after a terrorist incident. Advance preparations include contingency plans
    and exercises in anticipation of terrorist attacks. Incident response is
    managed by the State Department through interagency task forces at
    agencies* headquarters, the ambassador at a U. S. embassy, and special
    emergency support teams. The FBI leads law enforcement aspects of crisis
    management to investigate incidents and obtain evidence for prosecution.
    The State Department, in conjunction with USAID and other agencies,

    manages the consequences of an attack* including those involving WMD
    agents. After a terrorist attack, federal agencies review the incident to
    determine whether security procedures were followed, establish
    accountability within the government, and provide lessons learned to

    prevent or mitigate future attacks. This chapter describes the relevant
    federal programs in place and is not an evaluation of their effectiveness.

    Advance Preparations In anticipation of terrorist incidents overseas, the
    federal government takes

    for Terrorist Incidents a number of preparations in advance. The State
    Department requires that

    overseas posts prepare and exercise emergency contingency plans. In
    addition, a number of other agencies participate in exercises* generally
    sponsored by DOD* to test their responses to an overseas terrorist
    incident.

    Contingency Planning at As lead agency for interagency coordination of
    international terrorist

    Overseas Posts incidents, the Department of State has prepared a variety
    of contingency

    arrangements and plans in the event of a terrorist attack. State*s
    Emergency Planning Handbook serves as a consolidated source of guidance
    for overseas posts on how to plan for and deal with emergencies abroad.
    The handbook explains post mechanisms for crisis management, identifies
    post emergency management responsibilities, discusses emergency and crisis
    management mechanisms within State and with other U. S. government
    agencies; highlights the kinds of information the post will need to plan
    for specific emergencies; and provides

    action- oriented checklists that posts may use to ensure rapid, clear, and
    complete responses in emergencies.

    Every diplomatic post overseas is required to have an operative Emergency
    Action Plan designed to provide procedures on how to deal with foreseeable
    contingencies specific to the post. The post plan is written by members of
    the Emergency Action Committee, which translate guidance issued by State
    into a post- specific action plan for managing a crisis event.

    The ambassador establishes the Emergency Action Committee and designates
    personnel responsible for specific crisis- related functions. Every U. S.
    diplomatic post is required to have an Emergency Action Committee.

    Exercises Practice Incident PDD 39 requires key federal agencies to
    maintain well- exercised

    Response capabilities to combat terrorism. Exercises test and validate
    policies and

    procedures, test the effectiveness of response capabilities, increase the
    confidence and skill levels of personnel, and identify strengths and
    weaknesses in responses before they arise in actual incidents.

    The State Department conducts internal exercises at overseas posts to test
    their Emergency Action Committees and Emergency Action Plans, and to
    generally prepare them for crisis management. The department conducts
    exercises designed to expose posts to issues of decision- making,
    contingency planning, implementation of plans and formulation, and
    interpretation and coordination of policy. These exercises may cover a
    wide range of contingencies related to terrorism, such as hostage

    barricades, terrorist threats, and bombings. The State Department has been
    running these at post exercises since 1983. In addition to these
    departmentled exercises, the post- level Emergency Action Committee is to
    prepare, execute, and evaluate post- level crisis exercises. These
    exercises are designed to test individuals* understanding of their roles
    under all

    foreseeable crises. They seek to identify gaps or ambiguities in the plan
    or in department guidance.

    The Department of State, in conjunction with other federal agencies, also
    coordinates an interagency exercise program to combat terrorism overseas.
    1 Coordination of the exercises program is done through NSC*s
    Counterterrorism Security Group and its Exercise and Readiness Subgroup.
    The interagency exercise program is designed to strengthen the U. S.
    government*s overall ability to deal with terrorist attacks. On an annual
    basis, about four to six full- scale interagency overseas field exercises
    are conducted. The exercises involve the actual movement of response teams
    in a scenario that simulates a realistic overseas terrorist

    incident. In addition, tabletop exercises are held periodically to
    practice the coordination and management of a terrorism crisis without the
    expense of actually deploying special teams of people. The scenarios and
    agencies differ from exercise to exercise to develop and improve U. S.
    capabilities to deal with a variety of situations. Some exercises are
    conducted in overseas location with host government participation.

    DOD sponsors many interagency exercises to prepare for terrorist incidents
    overseas. For example, every year DOD sponsors no- notice interagency
    field exercises. These exercises require regional commanders to execute
    their own response plans and test interagency interoperability. DOD also
    sponsors periodic senior- level interagency tabletop exercises. These
    exercises emphasized interagency coordination among agency

    officials for a crisis incident. DOD*s exercises also have included the
    Departments of State, Health and Human Services, and Energy; the FBI; the
    Environmental Protection Agency; and USAID.

    DOD also has exercises for its forces outside the interagency exercise
    program. Some require the regional commander to exercise all levels of
    their response capabilities* tabletop sessions with their staff, response
    forces, and integration with Special Operations Forces. In addition, DOD
    runs exercises related to evacuations of U. S. diplomatic personnel and

    1 For a more detailed description and evaluation of these exercises, see
    GAO/ NSIAD- 99- 135 and U. S. General Accounting Office, Combating
    Terrorism: Analysis of Federal Counterterrorist Exercises, GAO/ NSIAD- 99-
    157BR (Washington, D. C.: June 25, 1999). In this report, we reported that
    federal agencies had increased the number of counterterrorism exercises,
    but only a few included no- notice deployments of personnel and equipment.
    More than two- thirds of the exercises had WMD scenarios, while others had
    more likely scenarios involving conventional arms and explosives. Also,
    very few exercises dealt with the likely situation of both crisis and
    consequence management occurring simultaneously. Also, we found that State
    Department used DOD- and DOE- led exercises to practice its leadership
    role. These exercises were well developed and enhanced the preparedness of
    the federal government to respond to terrorist incidents overseas.

    other Americans. Some of these may include some participation of other
    agencies. For example, since 1991, the State Department has participated
    in the U. S. Marine Corps* Special Operations Capable Exercise Program to
    help train Marine Expeditionary Units in Noncombatant Evacuation
    Operations.

    Response to a Terrorist PDD 39 divided incident response into crisis
    management and consequence

    Incident Overseas management. Crisis management includes efforts to stop a
    terrorist

    attack, respond to the attack itself, and arrest and prosecute terrorists.
    Consequence management includes efforts to provide medical treatment and
    emergency services and evacuate people from dangerous areas. When
    terrorist attacks occur without threat warning, crisis and consequence
    management will be concurrent activities. The presidential decision
    directive specified that the Department of State is the lead federal
    agency for interagency coordination of international terrorist incidents,
    to include both crisis and consequence management. 2 The State Department
    is to manage the incident through interagency task forces at headquarters
    and through the ambassador at the appropriate U. S. embassy. The
    Department of Justice, through the FBI, would lead the law enforcement
    aspects of crisis management, potentially deploying its response teams to
    investigate incidents and obtain evidence for prosecution purposes. As the
    lead agency for a terrorist incident, State also is responsible for
    marshaling the federal assets necessary to manage the consequences of an
    attack. A number of other federal agencies have response teams that can be
    deployed overseas to support the response. State, in conjunction with
    other agencies, has capabilities and contingency plans for WMD incidents
    the kind of incident most likely to overwhelm host government
    capabilities.

    Incident Management at In managing a crisis overseas, the Department of
    State coordinates

    Headquarters operations through its 24- hour global Operations Center at
    the department

    in conjunction with the NSC. During a crisis, the department*s Operations
    Center establishes a 24- hours task force to coordinate the flow of 2 For
    international incidents, the distinction between crisis management and
    consequence management is less significant than for domestic incidents. In
    a domestic incident, the FBI

    leads crisis management and FEMA leads consequence management. As a
    domestic incident progresses, federal leadership in an incident can
    transfer from the FBI to FEMA. In an international incident, the State
    Department leads both crisis and consequent

    management, thus there is no transfer of command from one agency to
    another.

    communication and instructions between the department, relevant agencies
    involved, overseas posts, and foreign governments. The task force would be
    chaired by the Coordinator for Counterterrorism and would

    include relevant State bureaus as well as other U. S. government agencies.
    The global watch is the initial point of contact for posts experiencing
    emergency crises overseas. The 24- hour global watch and crisis management
    support staff is maintained within the Operations Center.

    Incident Management at In an overseas incident, the ambassador* working
    with the Emergency

    Overseas Posts Action Committee* would act as the on- scene coordinator
    for the U. S. government. Interagency and State Department teams could
    provide assistance. For example, the Department of State can deploy an
    interagency Foreign Emergency Support Team (FEST) in coordination

    with the NSC to assist the host government and the ambassador at the post.
    The FEST primarily is an advisory team and serves as the single point- of-
    contact for the ambassador in coordinating all U. S. government

    support during a terrorist incident. The FEST will not enter the host
    country unless requested by the ambassador, with the host government*s
    permission. Depending upon the type of incident overseas and the host

    governments* capabilities, the FEST can be tailored with expertise to
    manage the crisis. The FEST can tailor its team to include experts on
    managing specific types of WMD incidents, such as nuclear, biological, and
    chemical threats. For example, the FEST can provide (1) guidance on

    terrorist policy and incident management, (2) dedicated secure
    communications to support the U. S. embassy throughout the incident, and
    (3) special expertise and equipment not otherwise available, including a
    professional hostage negotiations adviser. According to the National
    Strategy for Combating Terrorism, the Departments of State and Defense
    (and other relevant agencies) will ensure adequate staffing for the FEST.
    Procedures for deploying the FEST are outlined in the interagency
    International Guidelines, which were issued in January 2001.

    State also maintains its own security response teams that can deploy in
    anticipation of a terrorist crisis. The Bureau of Diplomatic Security has
    Mobile Training Teams and Security Support Teams to respond to increased
    threats or critical security needs at posts. These teams can provide
    special training or assistance to plan or implement a draw down or

    evacuate post personnel. These teams are to provide supplemental support
    to regional security officers and stand ready for immediate deployments to
    any post worldwide.

    Law Enforcement Crisis management has an important law enforcement
    function, including

    Investigations for Overseas efforts to gather evidence, and arrest and
    prosecute terrorists. PDD 39 and

    Incidents PDD 62 affirmed the role of the Department of Justice, through
    the FBI, to

    coordinate the efforts of law enforcement agencies in preventing terrorist
    attacks and investigating those attacks when they occur in international
    waters or against U. S. persons and interests overseas.

    According to the FBI, the bureau has a number of capabilities it can
    deploy overseas to coordinate large scale investigations. In cases when an
    incident occurs overseas, the FBI initially deploys its legal attaches to
    respond to the crime scene to communicate initial reports to the FBI*s
    main deployment team. In the interim, an advance team will depart from
    Washington, D. C., and will include (1) a command element, (2) an
    investigative component, (3) logistics personnel, (3) Critical Incident

    Response Group, (4) physical security specialists to report on the
    continuing threat to responding FBI personnel, and (5) communicators. And,
    if needed and allowed by the host nation, the FBI will deploy a Rapid
    Deployment Team overseas to provide additional investigative support,
    including language specialists and expert forensics personnel from an FBI
    laboratory. The Rapid Deployment Teams were established following the 1998
    bombings of the two U. S. embassies in Kenya and Tanzania so that more
    capabilities and additional personnel could be deployed to crime scenes in
    nations that are receptive to joint investigations. Based on the needs at
    the incident site and with the concurrence of the host nation, the FBI
    will deploy additional agents to assist with the investigation. Figure 17
    shows the damage inflicted to the USS Cole by a terrorist bomb explosion.
    The FBI deployed its response teams to Aden to investigate the bombing.

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

    As discussed in chapter 4, other federal agencies may assist the FBI in
    its terrorism investigations overseas. For example, the ATF has
    significant explosives investigation capability, which can support FBI
    investigations of bombings. When needed, the bureau can deploy its
    International Response Team to help gather evidence and identify the cause
    and origin of an explosion or fire.

    Managing the Consequences PDD 39 affirmed State as the lead agency for
    consequence management of a Terrorist Incident

    overseas, responsible for ensuring that the U. S. government is prepared
    to respond to a foreign incident. Consequence management predominantly is
    an emergency management function and includes efforts to provide medical
    treatment and emergency services, evacuate people from dangerous areas,
    and restore services. The responsibility for managing the consequences of
    a terrorist incident remains with the host nation, although

    the United States may provide assistance under certain circumstances. If
    the ambassador determines that the host government is unable to cope with
    managing the incident without outside help, the United States can

    provide assistance if it is requested and it is in U. S. interests to
    provide it. A foreign consequence management event is an incident that
    occurs abroad and involves chemical, biological, radiological, or nuclear
    contamination. It is not limited to a terrorist incident; it also can be
    caused by a war, natural cause, or accident. In other words, a consequence
    management event is not defined by how the release of a WMD agent
    occurred, only that a release occurred. The terrorist bombings of the USS
    Cole and the U. S. embassies in East Africa, for example, were not foreign
    consequence management events. In addition, a foreign consequence
    management event must threaten to overwhelm existing host- nation response
    capabilities and prompt a host- nation request for immediate international
    assistance. According to the Department of State, the release of chemical,
    biological, radiological, or nuclear contaminants is required by
    international

    agreements to be reported, regardless of how the agent was released.
    Finally, consequence management of an incident is the sole responsibility
    of the host nation. The United States may be asked to provide assistance
    only.

    Depending upon the type of incident overseas, the Department of State may
    also deploy a Consequence Management Support Team. The team is tailored to
    meet the specific emergency situation or condition in the host country and
    may deploy as an integral part of the NSC- directed FEST. The team leader
    normally would be from State*s Bureau of Political- Military Affairs and
    would be responsible for coordinating consequence management activities
    and for keeping the ambassador informed about ongoing relief activities.
    The team leader serves as a primary liaison between the ambassador, FEST,
    and team*s technical experts. The team

    also would coordinate U. S. government consequence management activities
    with the authorities of the host country. According to the Department of
    State, the Consequence Management Support Team deployed several times,
    most recently to the Persian Gulf, but had not yet deployed with the FEST.

    Role of USAID PDD 39 designated USAID*s Office of Foreign Disaster
    Assistance as the lead agency for coordinating the U. S. government
    humanitarian relief and rehabilitation activities overseas for incidents
    involving weapons of mass destruction. The office facilitates a
    coordinated U. S. government response for an incident through the U. S.
    ambassador in support of the affected host

    country. The office responds to these incidents at the request of the U.
    S. ambassador to the affected country and works through the host nation,
    U. S. government, international organizations, other donor governments,
    and nongovernmental organizations. In a crisis incident overseas, the
    State Coordinator for Counterterrorism may request an

    Office of Foreign Disaster Assistance representative to deploy as part of
    the FEST and assist in the development of a consequence management
    strategy for the humanitarian response. Also, if necessary, the office
    will provide guidance and liaison to the Bureau of Political- Military
    Affairs- led Consequence Management Support Team and work in conjunction
    with the team in the development of a humanitarian strategy.

    The Office of Foreign Disaster Assistance can respond to virtually any
    type of disaster abroad, including a terrorist incident. USAID is the
    focal point for U. S. government disaster relief and humanitarian
    assistance overseas.

    After a U. S. ambassador*s disaster declaration, the Office of Foreign
    Disaster Assistance can respond with humanitarian relief items or by
    providing funds to the United Nations, international organizations, or
    local and international non- governmental organizations to perform
    humanitarian relief activities. The office can also provide damage and
    needs assessment specialists and a wide variety of disaster management
    consultants, should the post require them. The office has stockpiles of
    basic disaster relief items, such as tents, plastic sheeting, and
    blankets. These stockpiles are strategically located around the world and
    can be used to provide humanitarian assistance in the event of a terrorist
    incident, as is the procedure for any other humanitarian disaster that
    overwhelms local

    capacity. These stockpiles are used frequently, and due to changing stock
    levels, the office determines how to best support a specific disaster and
    when to release stockpile material. To help manage the humanitarian relief
    activities on the ground, the office can deploy its Disaster Assistance
    Response Team to carry out sustained response activities in the field and
    a Response Management Team in Washington, D. C., that is responsible for
    providing support to the Disaster Assistance Response Team and assisting
    with the information management and coordination of the event from an
    interagency operations center. The activities of these teams will vary
    depending upon the type, size, and complexity of the disaster.

    Role of DOD Is Unique If ongoing military operations permit, DOD supports
    the Department of State for crisis and consequence management functions
    overseas in the event of a terrorist incident. DOD is unique in that it
    has the greatest depth and breadth of worldwide response capabilities.
    Specific types of support include threat assessments, technical advice,
    operational support, tactical

    support, and transportation. In the event of a terrorist incident
    overseas, DOD also provides force protection to the Department of State.
    DOD and State have memorandums of understanding on the coordination and
    implementation of plans for the protection of U. S. citizens abroad in
    emergencies, and on the protection and evacuation of U. S. citizens and

    designated aliens abroad. A pending or actual terrorist crisis may require
    the evacuation of U. S. government employees, as well as other Americans
    in the area. These evacuations* known as Noncombatant Evacuation
    Operations* may be necessary in the face of continued terrorist attacks or
    in an attack involving weapons of mass destruction. DOD support for the
    Department of State for a foreign consequence management operation is not
    automatic and is either approved or disapproved by the Secretary of
    Defense. DOD assets, albeit unique and robust compared to those of other
    U. S. government agencies, are finite. According to DOD, ongoing military
    operations may preclude DOD support for a foreign consequence management
    operation.

    Weapons of Mass Destruction U. S. government efforts to provide
    consequence management overseas have focused on WMD incidents, which are
    the most likely to overwhelm host nation capabilities. In PDD 39, the
    President directed the State Department, in coordination with DOD and
    USAID*s Office of Foreign Disaster Assistance, to develop a plan to
    provide assistance to foreign populations that are victims of terrorist
    WMD attacks. In response, the State*s Bureau of Political- Military
    Affairs wrote draft guidelines for a consequence management response to an
    international WMD incident. The guidelines provide a framework of planning
    guidance for all types of deliberate or accidental chemical, biological,
    radiological, or nuclear incidents. They outline operational concepts for
    a U. S. response overseas and provide a foundation for operational plans
    and procedures. They also identify procedures by which the United States,
    partner nations, host nations, and international response agencies can
    most effectively unify and synchronize their response actions. The
    guidelines require that State (along with the Departments of Defense,
    Energy, and Health and Human Services

    and USAID) maintain the capability to respond rapidly to any incident when
    approved by the NSC. The response would be authorized subject to the
    concurrence of the ambassador and host government.

    The guidelines also identify various federal response teams and detail
    their deployment and employment considerations. As discussed above, State
    maintains a standing Consequence Management Support Team

    that would manage the consequences of a WMD emergency overseas. The
    Consequence Management Support Team, through its USAID representative,
    would coordinate all U. S. government consequence management activities
    with the appropriate authorities of the host country, as well as the
    international organizations, private voluntary organizations, and non-
    government organizations that may be involved in the emergency. The same
    federal agencies that would provide consequence management in

    a domestic WMD incident could also respond overseas. While some of these
    agencies have a more domestic focus, they have unique capabilities that
    could be deployed overseas. 3 Figure 18 shows federal agency response
    teams that could be called upon in an overseas WMD incident. Several of
    these response teams transferred into the Department of Homeland Security
    on March 1, 2003, from a variety of other departments.

    3 For more details on these teams, see U. S. General Accounting Office,
    Combating Terrorism: Federal Response Teams Provide Varied Capabilities;
    Opportunities Remain to Improve Coordination, GAO- 01- 14 (Washington, D.
    C.: Nov. 30, 2000). We reported that federal response teams do not
    duplicate one another; however, agencies lack a coherent

    framework to develop and evaluate budget requirements for teams. Because
    most response teams have multiple missions, federal agencies do not track
    the resources for their teams based on their roles in combating terrorism.

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

    Evaluations in the After a terrorist attack, the federal government
    reviews the facts leading

    Aftermath of a up to the incident. These reviews are done to determine
    whether security

    procedures were followed; to establish accountability within the Terrorist
    Incident

    government, if appropriate; and to provide lessons learned to prevent or
    mitigate future attacks.

    Reviewing Terrorist The Secretary of State convenes an Accountability
    Review Board in cases

    Incidents Against involving acts of terrorism against U. S. diplomatic
    installations and

    Diplomatic Posts personnel abroad that involve serious injury, loss of
    life, or significant

    destruction of property. 4 These boards investigate the facts and
    circumstances surrounding the damage to determine whether security
    measures systems and procedures were adequate and implemented. The boards
    also propose recommendations aimed at saving lives and improving security
    systems and procedures, including those aimed at improving crisis
    management. Each board consists of five members four appointed by the
    Secretary of State and one appointed by the Director of Central
    Intelligence.

    State convened two Accountability Review Boards following the August 1998
    bombings of the U. S. Embassies in Nairobi, Kenya, and Dar es- Salaam,
    Tanzania, to examine the facts and circumstances surrounding the near
    simultaneous bombings. The boards examined a number of security measures
    and procedures including (1) whether the incidents were security related,
    (2) whether security systems and procedures were

    adequate and implemented properly, (3) the impact of intelligence and
    information availability, (4) whether any employee of the U. S. government
    or member of uniformed services breached his or her duty, and (5) whether
    any other facts or circumstances in these cases may be relevant to
    security management of U. S. missions abroad.

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

    Reviewing Incidents DOD also has convened ad hoc commissions to evaluate
    terrorist incidents

    Against Military Targets aimed at its overseas military facilities. For
    example, following the June

    1996 truck bombing of the al- Khobar Towers military housing facility near
    Dhahran, Saudi Arabia, the Secretary of Defense directed a task force to
    assess facts and circumstances surrounding the attack, including the
    security policies, infrastructures, and systems. 5 The Secretary also
    asked the team to recommend measures to minimize casualties and damage
    from such attacks in the future. The task force*s report made a number of
    recommendations to improve security at military facilities overseas.

    Past Incidents Studied to In addition to reviewing individual incidents,
    the State Department*s Provide Lessons Learned

    Bureau of Diplomatic Security analyses numerous past incidents and related
    exercises to provide more general lessons learned. Since 1987, the bureau
    has analyzed various threats and incidents, including terrorist attacks,
    and published its results. This annual publication, done with the
    assistance of other federal agencies, is called Political Violence Against
    Americans. It focuses on major incidents based upon, among other things,
    their lethality, property damage, and use of unusual tactics or weapons.
    The publication is designed to provide a comprehensive picture of
    political violence against U. S. interests. In addition, the bureau
    conducts an annual longer- term analysis covering a number of years that
    provide lessons learned in crisis management. 6 These promote awareness of
    basic crisis management principles.

    Agency Comments and The Departments of Defense and State and USAID
    provided technical

    Our Evaluation comments on the matters covered throughout this chapter.
    Based upon

    these comments, we made revisions, as appropriate. We also made revisions
    (primarily to the figure on WMD response teams) based upon the creation of
    the Department of Homeland Security and the transfer of various response
    teams and functions into that department.

    5 The Downing Assessment Task Force, also known as the Downing Commission
    because it was headed by General Wayne Downing, issued its report on Aug.
    30, 1996. 6 For example, see U. S. Department of State, Bureau of
    Diplomatic Security, Lessons Learned in Crisis Management 1983- 1994, Feb.
    1995, and Terrorist Tactics and Security Practices: Lessons Learned and
    Issues in Global Crime, 1994.

    Appendi xes Matrix of Department of Defense Programs

    Appendi I x and Activities to Combat Terrorism Overseas The Department of
    Defense (DOD) supports the Department of State, which is the lead federal
    agency for coordinating U. S. government efforts to combat terrorism
    overseas. Within the department, the military services as well as multiple
    offices and agencies manage various programs and activities to combat
    terrorism abroad. DOD also works with other U. S. government agencies,
    foreign government military organizations and agencies, and international
    organizations in carrying out these programs and activities. Some of these
    activities directed at combating terrorism overseas (e. g., coordination)
    may actually occur in the United States.

    Appendix I identifies and describes the following:  the strategic
    framework of DOD*s efforts to combat terrorism overseas;  DOD*s programs
    and activities to detect and prevent terrorism overseas;  DOD*s programs
    and activities to disrupt and destroy terrorist

    organizations overseas; and  DOD*s programs and activities to respond to
    terrorist incidents

    overseas.

    Tabl e 10: Department of Defense Programs and Activities to Combat
    Terrorism Overseas Department of Defense office or military service
    Program or activity Description of program or activity

    STRATEGIC FRAMEWORK Agency head*s role in combating terrorism

    Office of the Secretary of The Secretary of Defense is The Secretary of
    Defense is responsible for supporting (1) the lead Defense the principal
    defense policy federal agency* the Department of State* in responding to a
    terrorist advisor to the President.

    incident overseas, (2) the Department of Justice (through the Federal
    Bureau of Investigation (FBI)) for crisis management of a domestic The
    Office of the Secretary of

    terrorist incident, and (3) the Federal Emergency Management Agency
    Defense is the principal staff

    (FEMA) for consequence management of a domestic terrorist incident.
    element of the Secretary of Defense in the exercise of policy development,
    planning,

    resource management, fiscal, and program evaluation responsibilities.

    (Continued From Previous Page)

    Department of Defense office or military service Program or activity
    Description of program or activity

    Special agency official or office in charge of combating terrorism

    Office of the Assistant Special operations and

    Serves as the principal staff assistant and advisor to the Secretary of
    Secretary of Defense for

    low- intensity conflict Defense and to the Under Secretary of Defense for
    Policy for the broad Special Operations and LowIntensity spectrum of
    combating terrorism policy and support. Conflict

    Office of the Assistant to the Civil support Serves as the focal point for
    the coordination of DOD efforts in Secretary of Defense for

    preparation for requests from civilian agencies on weapons of mass
    Homeland Defense

    destruction (WMD) consequence management. The Assistant to the Secretary
    of Defense for Homeland Defense provides civilian oversight for the Joint
    Task Force for Civil Support.

    Chairman of the Joint Chiefs Principal military advisor to

    Serves as the principal advisor and focal point to the Secretary of of
    Staff the President, Secretary of Defense for all DOD antiterrorism
    issues. Defense, and the National Security Council

    Office of the Under Secretary Acquisition, technology, and Responsible for
    the development, application, testing, and evaluation of of Defense for
    Acquisition, logistics new and commercial- off- the- shelf technology for
    combating terrorism. Technology and Logistics

    Office of the Assistant Command, control,

    Provides policy guidance and oversight for information, information
    Secretary of Defense for communications, and

    technology and physical security programs, security and investigative
    Command, Control, intelligence

    matters, counterintelligence, DOD foreign counterintelligence,
    Communications, and intelligence, and information operations programs.
    Intelligence Office of the Assistant

    Reserve affairs Provides policy direction and oversight of the military
    departments* Secretary of Defense for

    Reserve Component readiness/ training policies and funding for Reserve
    Reserve Affairs

    Component domestic and overseas combating terrorism preparedness. The
    Assistant Secretary of Defense for Reserve Affairs also exercises policy
    direction and oversight for the Domestic Preparedness Program. Office of
    the Assistant

    Health affairs Supports the federal interagency process with medical
    research and Secretary of Defense (Health

    development programs and interfaces with the National Disaster Medical
    Affairs)

    System. Service Secretaries

    Military services Establish and provide resources for combating terrorism
    programs, (Secretaries of the Army, the

    incorporating existing physical security, base defense, and law Navy, and
    the Air Force)

    enforcement initiatives, which address terrorism as a potential threat to
    DOD elements and personnel, to include the Reserve Components.

    Office of the Assistant to the Domestic Preparedness

    Develops and implements the Domestic Preparedness Program*s *first
    Secretary of Defense for

    Program and Consequence responder* training and exercise missions and
    manages the Homeland Defense

    Management Program Consequence Management Program Integration Office.
    Integration Office

    Commanders of the Command policies and

    Establish command policies and programs for the protection of all forces
    combatant commands programs (military, civilian, and family members) and
    facilities in their area of

    responsibility to include assigned personnel, those under operational
    control, and individuals that fall under memorandums of understanding.
    Joint Task Force for Civilian Support to civilian agencies Responsible,
    through the Commander, Joint Forces Command, for Support marshalling the
    capabilities of the Armed Forces in support of civilian

    agencies responding to domestic consequence management contingencies
    involving weapons of mass destruction.

    (Continued From Previous Page)

    Department of Defense office or military service Program or activity
    Description of program or activity

    Directors of defense agencies Providing resources for

    The directors establish and provide resources for combating terrorism and
    field activities combating terrorism programs programs, incorporating
    existing physical security programs with

    antiterrorism awareness, which address terrorism as a potential threat to
    DOD elements and personnel.

    Agency plans or strategies to combat terrorism

    Chairman of the Joint Chiefs

    National Military Strategy of

    Sets the strategic direction for all aspects of the Armed Forces for 3- 5
    of Staff the United States of America years. This document includes
    objectives, force structure, capabilities,

    (Sept. 1997) and the strategic environment. The most recent strategy
    (issued in September 1997) notes the rising danger of asymmetric threats,
    including terrorism. It stresses the need for the military to adapt its
    doctrine, training, and equipment to ensure a rapid and effective joint
    and interagency response to these threats.

    Chairman of the Joint Chiefs

    National Military Strategic

    Provides the strategic framework to guide the conduct of the global war of
    Staff Plan for the War on Terrorism on terrorism by the U. S. Armed
    Forces. This classified plan discusses

    (Oct. 19, 2002) the strategic environment and outlines national guidance
    to (1) defeat terrorists and terrorist organizations; (2) deny
    sponsorship, support, and sanctuary to terrorists; (3) diminish the
    underlying conditions that permit terrorism; and (4) defend the United
    States, its citizens, and its interests at home. This plan also provides
    defense guidance, including the national defense strategy and concept for
    the global war on terrorism. It

    lays out the strategic approach for the war on terrorism, identifies
    strategic military objectives, and provides the strategic military
    approach to carry out the war on terrorism over an extended period of
    time. The plan addresses planning for and establishing administrative and
    logistics systems and command and control for each contingency.

    Rather than prescribing specific battle plans or future operations, the
    plan provides combatant commanders with principles for planning their
    military operations as well as specific tasks and initiatives to combat
    terrorism overseas. Also, it provides a framework from which regional
    commanders, the military services, and other agencies can formulate their
    own individual action plans. In response to this plan, individual

    regional commands have drafted their own classified campaign plans to
    combat terrorism overseas.

    Office of the Assistant Combating Terrorism Program Includes all actions*(
    1) antiterrorism (defensive measures taken Secretary of Defense for

    to reduce vulnerability to terrorist acts), (2) counterterrorism Special
    Operations and

    (offensive measures taken to prevent, deter, and respond to terrorism),
    Low- Intensity Conflict

    (3) terrorism consequence management (preparation for and response to the
    consequences of a terrorist incident/ event), and (4) intelligence support
    (collection and dissemination of terrorism- related information as

    the first line of defense)* taken to oppose terrorism throughout the
    entire threat spectrum, to include terrorist use of weapons of mass
    destruction and/ or high explosives.

    (Continued From Previous Page)

    Department of Defense office or military service Program or activity
    Description of program or activity

    Office of the Assistant DOD Directive 2000.12, DOD

    This directive (1) changes the name of the DOD Combating Terrorism
    Secretary of Defense for

    Antiterrorism/ Force

    Program to the DOD Antiterrorism/ Force Protection Program, Special
    Operations and LowIntensity

    Protection Program (Apr. 13, (2) updates DOD policies and assigns
    responsibilities for implementing Conflict

    1999) the program, (3) authorizes publication of DOD standards and related

    guidance, (4) establishes the Chairman of the Joint Chiefs of Staff as the
    principal advisor and focal point for antiterrorism/ force protection
    issues, and (5) defines antiterrorism/ force protection responsibilities
    of the military departments, commanders of the combatant commands, and
    defense agencies.

    This directive also establishes DOD policy, among other things, (1) to
    protect DOD elements and personnel from terrorist acts, (2) that
    antiterrorism/ force protection is the commander*s responsibility, (3) to

    maintain a Combating Terrorism Readiness Initiatives Fund to respond to
    emergent, unforeseen requirements, and (4) to comply with the *No Double
    Standard* policy on dissemination of specific, credible terrorist threat
    information that has not or cannot be countered (i. e., it is the policy
    of the U. S. government that official Americans cannot benefit from
    receipt of information that might equally apply to the public, but is not
    available to the public).

    Also, this directive established the Antiterrorism Coordination Committee
    and its Senior Steering Group to reduce vulnerabilities to terrorist
    attacks. Both act as a clearinghouse for policy recommendations and
    facilitate coordinating antiterrorism/ force protection actions and
    taskings.

    Office of the Assistant DOD Instruction 2000.16,

    This instruction (1) reissues DOD Instruction 2000.16, DOD

    Secretary of Defense for

    DOD Antiterrorism Standards Antiterrorism Standards (Jan. 8, 2001), (2)
    updates policy Special Operations and

    (June 14, 2001) implementation, (3) assigns responsibilities, (4)
    prescribes procedures

    Low- Intensity Conflict under DOD Directive 2000.12, DOD Antiterrorism/
    Force Protection

    Program, for protection of personnel and assets from acts of terrorism,
    and (5) assists DOD components in implementing this instruction and DOD
    Directive 2000. 12. It references DOD Instruction 5210.84, Security of DOD
    Personnel at U. S. Missions Abroad, which provides guidance for the
    security of DOD personnel at overseas locations. It also refers to
    specific guidance for DOD elements and personnel under the

    responsibility of the Department of State in the Memorandum of
    Understanding Between the Department of State and the Department of
    Defense on Overseas Security Support. Finally, it refers to specific
    common criteria and minimum construction standards to mitigate
    antiterrorism vulnerabilities and terrorist threats. This instruction
    reaffirms DOD*s policy to (1) protect DOD personnel,

    their families, installations, facilities, information, and other material
    resources from terrorist acts; (2) establish primary standards for
    antiterrorism efforts; and (3) provide commanders at all levels with the
    authority to enforce security measures and the responsibility for
    protecting persons and property under their control.

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    Department of Defense office or military service Program or activity
    Description of program or activity

    Office of the Assistant DOD Instruction 2000.14,

    This instruction establishes policy, assigns responsibility, and
    prescribes Secretary of Defense for

    DOD Combating Terrorism

    procedures under DOD Directive 0- 2000.12, DOD Combating Terrorism

    Special Operations and

    Program Procedures Program, for implementation and use in the DOD
    Antiterrorism Program. Low Intensity Conflict

    (June 15, 1994) This instruction establishes DOD policy to (1) protect DOD
    personnel and their families, facilities, and other material resources
    from terrorist acts and, in the event of a terrorist attack, to respond
    with properly trained, organized, and equipped personnel (including local
    law enforcement or host nation assets) to terminate the incident or reduce
    the effects of the attack; (2) provide guidance on the conduct of DOD
    personnel and their families if seized by terrorists; (3) ensure actions
    to combat terrorism outside of the United States will comply with
    applicable Status of Forces Agreements, other international agreements,
    and memoranda of understanding, as well as coordinate with the U. S.
    embassy and host nation; and (4) coordinate defense attache and

    security assistance organization antiterrorism programs overseas with the
    chief of mission at the U. S. embassy and comply with Department of State
    standards.

    Office of the Under Secretary Unified Facilities Criteria Sets standards
    to minimize the possibility of mass casualties in buildings of Defense for
    Acquisition, 4- 010- 01, DOD Minimum

    or portions of buildings owned, leased, privatized, or otherwise occupied,
    Technology and Logistics

    Antiterrorism Standards for

    managed, or controlled by DOD. The standards provide a level of Buildings
    (July 31, 2002) protection against terrorist attacks for all inhabited DOD
    buildings where no known threat of terrorist activity currently exists.

    Office of the Under Secretary Unified Facilities Criteria Identifies the
    minimum standoff distances and separation for new and of Defense for
    Acquisition, 4- 010- 10, DOD Minimum

    existing buildings and expeditionary and temporary structures. Technology
    and Logistics

    Antiterrorism Standoff Distances for Buildings (July 31, 2002)

    Office of the Under Secretary DOD Directive 5200.8,

    Outlines the requirements of DOD*s physical security program. of Defense
    for Policy Security of DOD Installations

    Commanders at the unit, activity, installation, and major command levels

    and Resources (Apr. 25, use the standards outlined in this and other
    guidance documents to 1991)

    determine their physical security equipment requirements. Office of the
    Under Secretary

    DOD Regulation 5200.8- R, This regulation, in accordance with DOD
    Directive 5200.8, Security of

    of Defense for Policy Physical Security Program DOD Installations and
    Resources, prescribes DOD policies and (May 13, 1991) minimum standards
    for the physical protection of DOD personnel, installations, operations,
    and assets. The physical security program involves both active and passive
    measures designed to prevent unauthorized access to personnel, equipment,
    installations, material, and documents, and to safeguard them against
    espionage, sabotage, damage, and theft. The regulation provides policy and
    guidance on installation access and circulation control, security of
    weapons systems and platforms, protection of bulk petroleum products,
    security of communications systems, and security of material.

    (Continued From Previous Page)

    Department of Defense office or military service Program or activity
    Description of program or activity

    Assistant to the Secretary of DOD Directive 3150.3,

    This directive (1) reissues DOD Directive 3150.3, Survivability and

    Defense (Atomic Energy) Nuclear Force Security and Security (S2) of
    Nonstrategic Nuclear Forces (NSNF), to add strategic

    Survivability (S2) (Aug. 16, nuclear weapons and forces to the existing
    DOD Nonstrategic Nuclear 1994)

    Forces Program and update policy and responsibilities for nuclear force
    survivability and security; (2) describes the DOD program to develop
    concepts, procedures, equipment, facilities, and training programs that
    ensure the survivability and security of nuclear weapons systems
    throughout the threat spectrum, including terrorism; and (3) requires the
    military services to maintain nuclear force survivability and security
    programs.

    Assistant Secretary of DOD Directive

    This manual is a classified document. Defense for Command,

    C- 5210. 41- M, Nuclear

    Control, Communications, and Weapon Security Manual (U) Intelligence

    (Apr. 1994) Assistant Secretary of

    DOD Regulation 5200.1- R, This regulation implements Executive Order
    12958, Classified National

    Defense for Command,

    Information Security Program Security Information, within DOD and
    establishes the DOD Information Control, Communications, and (Jan. 14,
    1997)

    Security Program to promote proper and effective classification,
    Intelligence

    protection, and downgrading of official information requiring protection
    and the declassification of information no longer requiring such
    protection. Office of the Assistant

    DOD Worldwide Combating Serves as a continuing forum to communicate
    guidance, exchange Secretary of Defense for

    Terrorism Conference ideas, and generate policy recommendations that will
    reduce DOD Special Operations and

    vulnerability to terrorism. The 2001 conference established seven Low-
    Intensity Conflict

    working groups (Intelligence, Operations, Policy, Research and
    Development, Consequence Management, Resources, and Interagency
    Community).

    Assistant Secretary of DOD Directive 5240.2, DOD

    This directive, among other things, (1) integrates DOD Defense for
    Command,

    Counterintelligence (May 22, counterintelligence capabilities and
    coordination procedures into a Control, Communications, and 1997)

    national counterintelligence structure under the direction of the National
    Intelligence

    Security Council (NSC) under Presidential Decision Directive/ NSC- 24, U.
    S. Counterintelligence Effectiveness; (2) establishes and maintains a
    comprehensive, integrated, and coordinated counterintelligence effort
    within DOD; (3) assigns responsibilities for the direction, management,
    coordination, and control of DOD counterintelligence activities; and (4)
    establishes the Defense Counterintelligence Board.

    This directive establishes DOD policy that, among other things,
    counterintelligence activities be undertaken to detect, identify, assess,
    exploit, and counter or neutralize the intelligence collection efforts,
    other intelligence activities, sabotage, terrorist activities, and
    assassination efforts of foreign powers, organizations, or persons
    directed against

    DOD, its personnel, information, materiel, facilities, and activities.

    (Continued From Previous Page)

    Department of Defense office or military service Program or activity
    Description of program or activity

    Assistant Secretary of DOD Instruction 5240.10,

    This instruction (1) establishes policies, assigns responsibilities, and
    Defense for Command,

    DOD Counterintelligence prescribes procedures to ensure that the
    counterintelligence Control, Communications, and Support to Unified and

    requirements of the combatant commanders of the Unified and Specified
    Intelligence

    Specified Commands Commands are met under the parameters established by
    law, Executive (Apr. 8, 1992) order, and DOD directives and (2) provides
    general principles for the command relationships and support requirements
    between the counterintelligence organizations of the military departments
    and the Unified and Specified Commands during peacetime, exercises,
    contingencies, and through the spectrum of armed conflict.

    This instruction establishes DOD policy that, among other things, the
    counterintelligence mission is provided to all DOD components with the
    necessary counterintelligence support (the functions of collection and
    production, operations, and investigations) to gather information and
    conduct activities to protect against espionage and other intelligence
    activities, sabotage, international terrorist activities, or
    assassinations

    conducted for, or on behalf of, foreign powers, organizations, or persons.

    DETECT AND PREVENT TERRORISM ABROAD Antiterrorism/ force protection

    Local commander Antiterrorism/ Force Protection Defensive measures (to
    include force protection) used to reduce the (defensive measures)
    vulnerability of individuals and property to terrorist acts, to include
    limited response and containment by local military forces. Combatant
    commanders, military services, and defense agencies, working in close
    cooperation with the intelligence community and law enforcement agencies,
    will use all authorized means to deter, detect, defend, respond to, and
    mitigate terrorist attacks. These antiterrorist measures include increased
    security and vigilance for key personnel, installations, and equipment.
    Established Antiterrorism Coordination Committee and its Senior Steering
    Group.

    Antiterrorism/ force protection categories

    Local commander Physical security equipment Any item, device, or system
    that is used primarily for the protection of assets, personnel,
    information, or facilities, to include alarms, sensors, protective
    lighting and their control systems and the assessment of the

    reliability, accuracy, timeliness, and effectiveness of those systems,
    such as (1) exterior surveillance and/ or intrusion detection systems
    (wide- area security and surveillance systems); (2) lighting systems; (3)
    access controls and alarm systems; (4) residential security equipment; (5)
    equipment for executive protection, to include added doors, increased
    ballistic protection at offices and residences, personal body armor and
    protective equipment, and armored vehicles; and (6) detection devices
    (under vehicle surveillance systems) and

    canine systems.

    (Continued From Previous Page)

    Department of Defense office or military service Program or activity
    Description of program or activity

    Local commander Physical security site Facility improvements using
    operations and maintenance or military improvements construction funding,
    new construction, or new construction design, whose purpose is to protect
    DOD assets, personnel, or information from terrorist threats. The
    improvements may include walls, fences, barricades, or other fabricated or
    natural impediments used to restrict, limit, delay, or deny entry into a
    DOD installation or facility. Improvements may include (1) primary
    facility modifications/ features that include special structural
    improvements to walls, doors, windows, and ceilings; interior barriers;
    and any land acquisition for standoff distances; (2) supporting facility
    modification/ features, such as site improvements in fencing, perimeter/
    area lighting, blast mitigation barriers, vehicle barriers, and special
    landscaping; (3) safe havens; (4) evacuation

    facilities; and (5) surveillance platforms. Local commander Physical
    security

    Includes all personnel who manage physical security programs, management
    and planning resources, and assets, such as headquarters staff and
    headquarters

    staff elements performing such functions. Local commander Security forces/
    technicians Personnel and operating costs associated with protective
    forces whose

    primary or supporting mission is to safeguard assets, personnel, and
    information. Security forces/ technicians include personnel engaged in
    such activities as (1) dedicated response forces and security forces; (2)
    locksmiths; (3) perimeter, installation, or facility access control; (3)
    inspection and maintenance of barriers and security system components; (4)
    antiterrorism training for security forces; and

    (5) antiterrorism awareness programs and training. Local commander Law
    enforcement Personnel and operating costs associated with any law
    enforcement

    activity, such as (1) protective service details, including advance work;
    (2) response forces; and (3) military police.

    Local commander Security and investigative Includes DOD criminal
    investigative resources, conduct of vulnerability matters assessments
    (periodic high- level reviews and physical security

    assessments), security and intelligence activities, and any
    crossdiscipline security functions, such as (1) terrorism investigations;
    (2) executive antiterrorism training; (3) surveillance and
    countersurveillance teams; (4) protective service details, including
    advance work; (5) route surveys; (6) antiterrorism awareness programs and
    training; and (7) Joint Staff Integrated Vulnerability Assessments.

    Local commander Research, development, test, Includes any RDT& E resources
    expended in the area of antiterrorism and evaluation (RDT& E) and force
    protection to provide new and enhanced capabilities to combat

    terrorism. The two primary programs are the Counterterror Technical
    Support Program and the Physical Security Equipment Development Program.

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    Department of Defense office or military service Program or activity
    Description of program or activity

    Technical Support Working Counterterror Technical A fast- track research
    and development program for advanced Group Support Program technologies
    and state- of- the- art prototype equipment that addresses

    both interagency and international combating terrorism requirements. The
    Technical Support Working Group (TSWG)* the research and development arm
    of the National Security Council*s (NSC) Interagency Working Group on
    Counterterrorism* provides resources and program management. The
    Department of State provides policy oversight to TSWG, which is co-
    chaired by the Departments of Defense and Energy and the FBI. TSWG
    consists of over 50 federal government organizations that identify
    operational needs and coordinate research

    and development for combating terrorism. Typical TSWG projects include (1)
    stand- off explosive detection of terrorist devices, (2) large vehicle
    bomb countermeasures (detect and disable), (3) entry point screening, (4)
    structural blast mitigation, (5) national infrastructure

    assurance and protection, and (6) advanced sensor detection and defeat.

    Physical Security Equipment Physical Security Equipment

    A research and development program designed to support the rapid Action
    Group Development Program acquisition and quick field integration of
    state- of- the- art security

    technology to deployed forces, in particular commercial off- the- shelf
    equipment. The Physical Security Equipment Action Group funds and provides
    resources to the program. The group consists of representatives from the
    Army, the Navy, the Air Force, the Joint Staff, and the Defense Threat
    Reduction Agency. The program evaluates, develops, and integrates
    equipment and systems related to (1) intrusion

    detection, (2) entry control, (3) access control, (4) waterside security,
    (5) delay/ denial, (6) interior and exterior robotics, and (7) explosive
    detection systems. Vulnerability assessments

    Chairman of the Joint Chiefs Integrated Vulnerability

    Ensures that commanders at all levels have an accurate awareness of of
    Staff Assessment Team the existing vulnerabilities and readiness of
    antiterrorism programs within their command. The assessments assist
    commanders in implementing risk management practices when allocating
    resources in a uniform and complementary fashion that are adaptable to
    changing terrorist threats. Approximately 96 assessments are planned for
    fiscal year 2003.

    Antiterrorism activities

    Office of the Deputy Assistant Chemical, biological, and

    Based on an assessment by the Strategic Deterrence Joint Warfighting
    Secretary of Defense for radiological monitoring,

    Capabilities Assessment, a monitoring, detection, and identification
    Chemical and Biological

    detection, and identification package was developed for protection of the
    Pentagon and other Defense

    strategic U. S. sites within the United States and in forward threat
    areas, including Northeast Asia and Southwest Asia. Equipment is to detect
    chemical and radiological agents. Systems include the Automatic Chemical
    Agent Detection Alarm and the Personnel and Vehicle Entry Radiological
    Detectors. According to DOD, detection capability for biological agents
    currently is limited to *detect to treat.* Emphasis is placed on
    monitoring, sampling, confirmatory analysis, and medical

    surveillance through such systems as Portal Shield, Joint Bio Point
    Detection System, Portable Bio Aerosol Sampler, Dry Filter Units, and
    Polymerase Chain Reaction Identification Devices.

    (Continued From Previous Page)

    Department of Defense office or military service Program or activity
    Description of program or activity

    Military security assistance

    Defense Security Cooperation Foreign Military Financing The Department of
    State provides grants to foreign governments for the Agency acquisition of
    U. S. defense equipment, services, and military training,

    which enable key U. S. allies and friends to improve their defense
    capabilities. It promotes U. S. national security interests by
    contributing to global and regional stability, strengthening military
    support for democratically elected governments, and containing
    transnational threats, including terrorism. This security assistance is a
    key tool in

    supporting U. S. coalition partners in combating terrorism overseas. It
    reduces the likelihood of conflict and war that could threaten the United
    States. The Department of State*s Bureau of Political- Military Affairs
    sets policy for the program, while the Defense Security Cooperation Agency
    manages the program on a day- to- day basis. Security assistance offices
    within U. S. embassies abroad play a key role in managing the program
    within recipient countries.

    Defense Security Cooperation Foreign Military Sales A U. S. security
    assistance program used to sell defense articles or Agency services to
    authorized governments. The program is used to maintain close ties with
    neighbors and key allies, maintain stable and secure

    regional partners, and ensure regional stability. This program helps
    countries, such as the new members of the North Atlantic Treaty
    Organization (NATO), upgrade their military capabilities and achieve
    greater interoperability with U. S. and other alliance forces. Also, it
    helps strengthen the security and defense capabilities of recipient
    countries, whose support is crucial to combating terrorism. These
    countries

    include, for example, the new U. S. Central Asian and Caucasus partners in
    the war on terrorism. The Department of State*s Bureau of
    PoliticalMilitary Affairs approves foreign military sales, while security
    assistance offices at U. S. embassies abroad promote the sale of U. S.-
    produced

    defense items and carry out most of the tasks associated with foreign
    military sale cases. An implementing agency within DOD the Army, the Navy,
    the Air Force, or the Defense Logistics Agency, depending upon the type of
    item being considered negotiates the terms of the sale. The Defense
    Security Cooperation Agency buys the items from U. S. manufacturers for
    the recipient country.

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    Department of Defense office or military service Program or activity
    Description of program or activity

    Defense Security and International Military Serves as a low- cost security
    assistance program intended to foster the Cooperation Agency Education and
    Training development of more professional militaries around the world
    through training and education of foreign military and civilian personnel.
    The program provides training on a grant basis to some 10, 000 students
    annually from 133 allied and friendly countries. Formal instruction is
    provided through more than 2,000 courses taught at about 150 U. S.
    military schools and installations. The program advances U. S. interests

    in furthering regional stability by enhancing military alliances, building
    coalitions, and strengthening efforts to combat terrorism abroad.

    DOD plans and manages the program through the Defense Security and
    Cooperation Agency, which works with the various military departments and
    unified military commands to implement the program. Coordination of the
    program overseas is handled by DOD*s security assistance offices located
    in U. S. embassies around the world, which field requests from their host
    countries to participate in the program.

    Enhancing military professionalism is intended to make militaries more
    efficient, effective, and interoperable with U. S. and NATO forces as well
    as regional coalitions. Also, it fosters a better understanding of

    democratic values, including civilian rule of the military, belief in the
    rule of law, and respect for internationally recognized civil and human
    rights. Finally, the program*s development of professional and personal
    militaryto- military relationships provide U. S. access and influence to a
    critical sector of society that can help support U. S. access to foreign
    military bases and facilities* a critical component in efforts to combat
    terrorism

    overseas.

    Embassy security

    U. S. Marine Corps Protection of information at U. S. Marine security
    guards control access to 130 U. S. embassies and U. S. diplomatic missions

    missions worldwide. overseas

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    Department of Defense office or military service Program or activity
    Description of program or activity

    Military training (with foreign governments)

    U. S. Special Operations Joint Combined Exchange

    Provides U. S. special operations forces opportunities to develop and
    Command and Training maintain their skills and to train foreign militaries
    and other groups

    to combat terrorism overseas, among other missions. U. S. special
    operations forces are tasked with nine principal missions to (1) train and
    otherwise assist foreign militaries to combat insurgency and other threats
    to stability (foreign internal defense); (2) train, advise,

    and otherwise assist local forces for guerilla warfare (unconventional
    warfare); (3) protect against and prevent the spread of nuclear, chemical,
    and biological weapons (counterproliferation); (4) use offensive and
    defensive measures to prevent or resolve terrorist incidents (combating
    terrorism); (5) obtain information concerning capabilities and activities
    of actual or potential adversaries (special reconnaissance); (6) inflict
    damage on an adversary or recover personnel or material (direct action);
    (7) target an adversary*s information system while defending U. S. systems
    (information operations); (8) establish, maintain, or strengthen

    relations between U. S. and allied governments to facilitate military
    operations (civil affairs); and (9) influence attitudes of foreign
    audiences (psychological operations). Specific Joint Combined Exchange and
    Training operations and activities are classified. U. S. European Command
    Republic of Georgia Train and Enhances the Republic of Georgia*s counter-
    terrorism capabilities. The

    Equip Program program*s goal is to build strong effective staff
    organizations capable of creating and sustaining standardized operating
    procedures, training plans, operational plans, and a property accounting
    system. The curriculum consists of performance- oriented training and
    exercises. The time- phased training will be conducted by U. S. Special
    Forces to build

    upon the military- to- military relationship developed between the two
    countries. The program will consist of command center staff training for
    members of the Georgian Ministry of Defense as well as training for units
    of the Land Forces Command. Border guards and other Georgian security
    agencies will be included to ensure interoperability among Georgia*s
    security forces. Almost 200 Georgians have completed the staff- training
    phase and about 500 are completing the light- infantry tactics training.
    Military equipment to be provided will include uniform

    items, small arms and ammunition, communications gear, training gear,
    medical gear, fuel, and construction material.

    U. S. Pacific Command U. S. Special Operations Develops a counter-
    terrorist capability within the Philippines armed Forces Training for the

    forces through the Foreign Military Financing program. The U. S. Pacific
    Philippines

    Command deployed a Joint Task Force advisory team to the southern
    Philippines to begin preparations. It is composed of U. S. Special
    Operations personnel and provides training at the command level at
    headquarters through the company level in the field. The training
    emphasizes joint operations and tactics to help eliminate terrorist

    threats. Training includes counterterrorism campaign planning,
    intelligence fusion, psychological operations, civil- military operations,
    and filed tactics. U. S. Special Operations personnel completed training
    with 25 field companies and provided equipment that included aircraft,

    Coast Guard cutters, and helicopters.

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    Department of Defense office or military service Program or activity
    Description of program or activity

    U. S. Special Operations U. S. Special Operations

    U. S. Special Forces trained approximately 200 Yemeni military forces in
    Command Forces Training for Yemen counterterrorism tactics.

    Border security U. S. Air Force Combat Air Patrols Provides protection of
    U. S. air space. DISRUPT AND DESTROY TERRORIST ORGANIZATIONS ABROAD
    Counterterrorism

    Office of the Assistant Counterterrorism (offensive Offensive measures
    taken to prevent, deter, and respond to terrorism. Secretary of Defense
    for

    measures) The Nunn- Cohen Amendment of the Goldwater- Nichols Act of 1986
    Special Operations and Low established the (1) U. S. Special Operations
    Command, (2) Assistant Intensity Conflict

    Secretary of Defense for Special Operations/ Low- Intensity Conflict, (3)
    coordinating board for low- intensity conflict within the NSC, and (4)
    created a new Major Force Program for special operations forces

    resources. Also, the act included counterterrorism activity for special
    operations.

    Counterterrorism categories

    U. S. Special Operations Special Operations Forces U. S. Special
    Operations Forces conduct offensive counterterrorism Command measures and
    operations directed at preventing, deterring, and

    responding to terrorist acts against U. S. interests worldwide. U. S.
    Special Operations Forces receive the most advanced and diverse training
    available and exercise continually, often with foreign counterparts, to
    maintain proficiency and develop new skills. Regional Special Operations
    Special Operations Forces

    Regional Special Operations Commands are subordinate unified Commands and
    Geographic Combatant commands assigned to the Geographic Combatant
    Commands. The Commands

    Regional Special Operations Commands plan, prepare, and conduct special
    operations, including counterterrorism, within the Geographic Combatant
    Commander*s area of responsibility. The Regional Special Operations
    Commands also provide a trained, operationally ready, and deployable Joint
    Special Operations Task Force headquarters that can respond rapidly to
    terrorism using forces assigned permanently or temporarily to the
    Geographic Combatant Commander.

    U. S. Army Special Operations Special Operations Forces The command is
    responsible to the U. S. Special Operations Command Command for the
    readiness of Special Forces, Rangers, special operations aviation

    units, psychological operations units, and civil affairs personnel for
    deployment worldwide in support of unified combatant commanders. The
    command is headquartered at Fort Bragg, N. C., and has both active and

    U. S. Army Reserve special operations forces. Naval Special Warfare
    Special Operations Forces The command is responsible to the U. S. Special
    Operations Command Command for the readiness of active and reserve naval
    special warfare forces. The command deploys SEAL, Special Boat, SEAL
    Delivery Vehicle teams, and other Naval Special Warfare Detachments
    worldwide and

    administratively supports forward- based naval special warfare units. The
    command is located at the Coronado Naval Amphibious Base in Coronado,
    Calif.

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    Department of Defense office or military service Program or activity
    Description of program or activity

    U. S. Air Force Special Special Operations Forces The command is
    responsible to the U. S. Special Operations Command Operations Command for
    the readiness of Air Force active, reserve, and National Guard special
    operations forces for deployment worldwide. The command consists of three
    special operations wings, two special operations groups, and one

    special tactics group. The command is located at Hurlburt Field, Fla. U.
    S. Air Force Transportation support to the

    Provides transport capability to the Foreign Emergency Support Team
    Foreign Emergency Support

    (FEST) through use of two C- 32B (Boeing 757- 200) aircraft. The U. S. Air
    Team

    Force supports worldwide operations to select U. S. government agencies on
    the recommendation of the Deputies Committee and approval by the Secretary
    of Defense. Office of the Assistant

    RDT& E Like the antiterrorism component, the counterterrorism component
    has Secretary of Defense for

    two RDT& E programs as well: (1) Counterterror Technical Support Special
    Operations and

    Program (renamed the Combating Terrorism Technology Support Low- Intensity
    Conflict Program) and (2) Counterproliferation Support to Special
    Operations Forces program. Program management is provided by the Combating

    Terrorism Technology Support Office, which is staffed through the U. S.
    Navy. Office of the Assistant

    Counterterror Technical Originally established to help fund research and
    development Secretary of Defense for

    Support Program (renamed activities of the TSWG, this program was renamed
    and enlarged to Special Operations and Low the Combating Terrorism

    fund its international component and to better focus DOD*s research
    Intensity Conflict

    Technology Support Program) and development efforts on counterterrorism,
    which includes

    countermeasures for weapons of mass destruction. In addition to the
    research and development initiatives discussed above, this program also
    encompasses counterterrorism requirements. Projects include (1) improved
    audio and video surveillance of terrorists; (2) advanced night vision
    capabilities; (3) through- wall- imaging capability for use by tactical
    forces; (4) small, hand- held gamma and neutron radiation

    detector; and (5) diagnostic equipment for improvised devices. Office of
    the Assistant

    Counterproliferation Support A specialized RDT& E program to develop and
    demonstrate special Secretary of Defense for to Special Operations Forces
    operations forces unique devices. These projects enable Special Special
    Operations and Low Operations Forces and special mission units to detect,
    disable, and Intensity Conflict

    neutralize weapons of mass destruction and their associated facilities
    under the direction of a geographic combatant commander in support of a
    Chairman of the Joint Chiefs of Staff Concept Plan. These devices are
    employed by Special Operations Forces units with direct application to the
    nation*s efforts to counter the spread of weapons of mass destruction.
    Efforts include (1) defeat of hard and deeply buried targets; (2)
    explosive ordnance disposal (biological, chemical, and nuclear); and (3)
    maritime efforts to prevent the spread of WMD technology or systems

    using the sea lanes.

    (Continued From Previous Page)

    Department of Defense office or military service Program or activity
    Description of program or activity

    Defense Advanced Research Counterterrorism research

    Conducts research and development on ways to counter asymmetric Projects
    Agency and development threats and an unconventional, yet highly lethal
    attack by a loosely

    organized group of transnational terrorists or other factions seeking to
    influence U. S. policy. Such attacks occur using equipment that has a
    smaller mass, exhibit fewer observables, and are more lethal than a
    conventional military attack. Consequently, such evidence is more
    difficult to detect, correlate, and understand. Specific needs include the
    capability to (1) automatically recognize and identify humans at a
    distance; (2) detect an enemy agent conducting surveillance of a U. S.
    target; (3) automatically discover, extract, and link together sparse
    evidence of a group*s intentions and activities from vast amounts of
    classified and unclassified information and sources that lead to the

    discovery of additional relationships and patterns of activity that
    correspond to unusual events, potential threats, or planned attacks; (4)
    more precisely model the beliefs and organizational behavior of small
    terrorist groups to better simulate and wargame such adversaries; and

    (5) provide more effective collaborative reasoning and decision aids to
    improve the speed and effectiveness of teams of analysts and decision
    makers in ever- changing situations.

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    Department of Defense office or military service Program or activity
    Description of program or activity

    Military operations

    U. S. Central Command Operation Enduring Freedom Since the coordinated
    terrorist attacks against the United States on September 11, 2001, the U.
    S. Central Command has been conducting Operation Enduring Freedom with its
    coalition partners, which now number 51 other countries, to disrupt and
    destroy global terrorist

    organizations. The initial focus of Operation Enduring Freedom was on
    Afghanistan to destroy the base of the al Qaeda terrorist organization and
    replace the Taliban regime that supported al Qaeda. These objectives
    largely have been met in Afghanistan. Combined Joint Task Force 180 (see
    below), which took direct control of operations in Afghanistan in June
    2002, continues this mission. It also is conducting operations to ensure
    that Afghanistan will not again be a safe haven for terrorists and to
    facilitate the reintroduction of Afghanistan into

    the community of nations. The U. S. Central Command*s operations in
    Afghanistan have been complemented by cooperative efforts with Pakistan to
    eliminate the al Qaeda organization in Pakistan. According to the U. S.
    Central Command, these efforts have led to the capture of hundreds of al
    Qaeda and Taliban members, including very senior members of the al Qaeda

    organization. This cooperation continues to degrade the al Qaeda
    organization and is a critical component in its ultimate defeat. Operation
    Enduring Freedom also involves numerous other activities, including
    bilateral cooperation with most of the countries within the U. S. Central
    Command*s area of responsibility, Maritime Interception Operations to
    intercept al Qaeda movement and communications, and maintaining a quick
    strike capability against fleeing al Qaeda targets within the command*s
    area of responsibility. Maritime Interception Operations involve a high-
    level of coalition cooperation. The entire Maritime Interdiction Operation
    in the Horn of Africa region is a coalition operation under Combined Task
    Force 150.

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    Department of Defense office or military service Program or activity
    Description of program or activity

    U. S. Central Command Combined Joint Task Force To detect, disrupt, and
    defeat terrorists who pose an imminent threat to Horn of Africa coalition
    partners in the Horn of Africa region (Kenya, Somalia, Ethiopia,

    Sudan, Eritrea, Djibouti, and Yemen). In November 2002, Combined Joint
    Task Force Horn of Africa was established to carry out Operation Enduring
    Freedom in that portion of the U. S. Central Command*s area of
    responsibility that previously was conducted directly by the command.
    Particular attention is focused on U. S. cooperation with Yemen.

    The Combined Joint Task Force Horn of Africa acts on credible intelligence
    to attack, destroy, and/ or capture terrorists and their support networks
    in the region. It also works with host nations to deny the reemergence of
    terrorist cells and activities by supporting international agencies
    working to enhance long- term stability for the region. Currently,

    the headquarters element has about 400 members representing each military
    service, civilian personnel, and coalition force representatives afloat
    aboard the USS Mount Whitney, which operates in the Gulf of Aden. An
    additional 900 personnel are stationed ashore at Camp Lemonier in
    Djibouti. The headquarters element will transition ashore to Camp
    Lemonier, Djibouti, in the spring of 2003.

    U. S. Central Command Combined Joint Task Force Constitutes a flotilla of
    coalition warships from France, Germany, Spain, 150 the United Kingdom,
    and the United States in searching for terrorist

    operatives and contraband while patrolling the Red Sea, Gulf of Aden, and
    Indian Ocean areas around the Horn of Africa. Combined Joint Task Force
    150 is based in Djibouti.

    U. S. Central Command Combined Joint Task Force Serves as the forward
    headquarters of the primary U. S. force in 180 Afghanistan. Combined Joint
    Task Force 180 is located at Bagram Airfield outside of Kabul,
    Afghanistan. (See Operation Enduring Freedom above.)

    U. S. Central Command Operation Iraqi Freedom Ongoing operations in Iraq
    are designed to eliminate potential sources of weapons of mass destruction
    for international terrorists as well as eliminating the regime a long-
    time supporter of terrorism. As part of Operation Iraqi Freedom, a group
    directly related to al Qaeda in northern Iraq already has been largely
    eliminated. The full impact of successful operations in Iraq in the war on
    terrorism will not be known until the operation is over. However, as a
    result of the operations, the U. S. Central Command expects to
    significantly enhance its ability to defeat

    international terrorism.

    Intelligence on terrorist groups and threat assessments

    Defense Intelligence Agency Intelligence Support to Collection, analysis,
    and dissemination of all- source intelligence on Combating Terrorism
    (first line terrorist groups and activities intended to protect, deter,
    preempt, or of defense)

    counter the terrorist threat to U. S. personnel, forces, critical
    infrastructures, and interests.

    (Continued From Previous Page)

    Department of Defense office or military service Program or activity
    Description of program or activity

    DOD National Foreign Intelligence This program has two mission areas: (1)
    Support to Military Program Operations, Force Protection, and (2) Support
    to Law Enforcement, Counterterrorism. The Support to Military Operations,
    Force Protection, mission area includes the personnel and funding for
    intelligence activities associated with protecting lives and property,
    reducing risks, and expanding opportunities for operation success through
    early detection and

    definition of threats to U. S. forces. Its focus is on gathering
    information on terrorist activities aimed at U. S. personnel, forces,
    critical infrastructures, and interests.

    The Support to Law Enforcement, Counterterrorism, mission area includes
    the personnel and funding for intelligence activities associated with
    gathering information on any foreign terrorist activity aimed at U. S.
    personnel or interests, in support of a well- coordinated use of
    diplomatic,

    intelligence, law enforcement, and military assets. U. S. Army, Deputy
    Chief of

    Tactical Counterintelligence Defense intelligence support to combating
    terrorism includes personnel Staff for Intelligence,

    and funding associated with U. S. Army and U. S. Marine Corps tactical
    Counterintelligence/ Human counterintelligence resources, U. S. Army
    security and intelligence Intelligence Division, and U. S. activities,
    Tactical Intelligence and Related Activities, and Joint Military Marine
    Corps, Headquarters,

    Intelligence Program activities. Intelligence Department, Director of
    Intelligence

    Counterintelligence activities include, for example, (1) terrorism
    investigations, (2) surveillance and countersurveillance teams, (3)
    counterterrorism analysis and production, (4) force protection source

    operations, (5) threat assessments, (6) counterterrorism collection, (7)
    route surveys, and (8) intelligence staff support to deployed task forces.

    U. S. Army Counterintelligence activities Conducts comprehensive and
    coordinated counterintelligence activities worldwide to detect, identify,
    assess, counter, neutralize, and/ or exploit threat intelligence and
    international terrorist collection efforts and activities. The U. S.
    Army*s counterintelligence mission is to support force protection and
    antiterrorism efforts. It supports the command*s

    responsibility to protect personnel, equipment, and facilities against
    foreign intelligence services and international terrorist threats. The U.
    S. Army*s Deputy Chief of Staff for Intelligence, Counterintelligence/
    Human

    Intelligence Division has management oversight of the U. S. Army*s
    program. U. S. Marine Corps Counterintelligence activities Collects,
    produces, and disseminates counterintelligence information

    and conducts activities to protect commands against espionage, other
    intelligence activities, sabotage, assassinations, or terrorist activities
    conducted by or on behalf of foreign governments, foreign organizations,
    or foreigners. Counterterrorism support is provided to the service, joint

    combatant, and operational commanders through counterintelligence
    investigations; operations; collections and reporting; and analysis,
    production, and dissemination. The Director of Intelligence, Intelligence
    Department, Headquarters, U. S. Marine Corps, Washington, D. C., provides
    program and policy guidance.

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    Department of Defense office or military service Program or activity
    Description of program or activity

    RESPOND TO TERRORIST INCIDENTS ABROAD Terrorism consequence management a

    U. S. Army, Office of the Terrorism Consequence Terrorism consequence
    management is an emerging component in Director, Operations,

    Management Response DOD*s efforts to combat terrorism. DOD focuses its
    terrorism Readiness, and Mobilization; consequence management activities
    in two areas: (1) installation Military Support Division,

    preparedness and (2) support to the lead federal agency. Under this
    Operation Directorate; and the component, DOD brings to the interagency
    arena a wide variety of U. S. Army Soldier and

    unique warfighting technical and operational support capabilities that
    Biological Chemical could be used to provide assistance to state and local
    authorities, if Command, Aberdeen Proving

    requested by the lead federal agency. DOD*s response assets are found
    Ground, Md. in both its Active and Reserve Components. DOD*s role is to
    support the lead federal agency: the Department of State for terrorist
    incidents U. S. Marine Corps, Marine

    overseas, the Department of Justice (through the FBI) for crisis Corps
    Systems Command, management of domestic terrorist incidents, and FEMA for
    consequence Quantico, Va.

    management of domestic terrorist incidents. DOD*s focus is to provide
    assistance using its unique resources and capabilities, which are not U.
    S. Navy, Combatant

    found in the other federal agencies. These include the ability to mass
    Commander, Atlantic

    mobilize and provide extensive logistical support. Because DOD*s assets
    Command, Norfolk, Va.

    are structured, manned, and equipped for a warfighting mission, the
    Secretary of Defense must first determine that DOD*s special capabilities
    U. S. Air Force, Readiness and

    and expertise are both necessary and critical to respond to an act of
    Installation Support Division,

    terrorism and that the provision of such assistance will not adversely the
    Air Force Deputy Chief of Staff

    military preparedness of the U. S. Armed Forces. for Installations and
    Logistics, and Force Protection Division,

    In foreign consequence management, DOD cooperates closely with the Office
    of the Air Force

    Department of State. Regional combatant commands are conducting Surgeon
    General

    exercises of their functional consequence management plans, both in
    combined capacity with partner nations in their areas of responsibility
    Assistant Secretary of

    and with interagency counterparts. Defense for Health Affairs, Services*
    Surgeon General*s

    Offices, and local commanders

    Terrorism consequence management- installation preparedness

    Office of the Assistant Deputy Secretary of Defense

    Establishes the DOD policy to protect personnel on military installations
    Secretary of Defense for

    Memorandum, Preparedness

    and DOD- owned or leased facilities against chemical, biological, Special
    Operations and LowIntensity

    of U. S. Military Installations

    radiological, nuclear, and high- yield explosive attacks; to respond to
    Conflict

    and Facilities Worldwide

    these attacks with trained and equipped emergency responders; and Against
    Chemical, Biological,

    to ensure installations are able to continue critical operations during
    Radiological, Nuclear, and an attack and to resume essential operations
    after an attack. The High- Yield Explosive Attack memorandum also
    promulgated the actions necessary to accomplish (Sept. 5, 2002)

    this policy in terms of (1) installation preparedness, (2) personnel
    protection, (3) concept of operations, (4) standards and guidelines, and
    (5) budget and programs.

    Military services Installation First Response This was a new initiative in
    fiscal year 2001. The military services Preparedness were directed to
    develop requirements, train personnel, and procure

    equipment for first response preparedness at DOD installations and
    facilities.

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    Department of Defense office or military service Program or activity
    Description of program or activity

    U. S. Army Deputy Chief of Installation Preparedness

    Conducts a complete assessment of U. S. Army installations WMD Staff for
    Operations and Plans Program (planned) preparedness. Also included are
    training, exercise, and equipment packages to prepare installation first
    responders for WMD incidents on and off post. The Director of Operations,
    Readiness, and Mobilization is the U. S. Army*s Action Agent for this
    program.

    U. S. Navy First Responder Provides planning, training, medical equipment,
    and non- medical Preparedness equipment for personnel who will respond to
    chemical, biological, and radiological incidents.

    U. S. Air Force Disaster Response Force Provides planning, training,
    exercise, and response equipment for the Disaster Response Force to
    respond to a WMD incident. First responders include security forces, fire
    department, medical personnel, and Explosive Ordnance Disposal personnel.
    The U. S. Air Force program includes conducting and evaluating training
    and exercises for

    base and headquarters personnel, support for formal and supplemental
    training courses, developing and evaluating response plans, and other
    associated activities required to implement the WMD Threat Response
    Program. Only 11 U. S. Air Force installations will be funded over 7 years
    (beginning in fiscal year 2001). Defense Advanced Research

    RDT& E Like the antiterrorism and counterterrorism components, the
    Projects Agency consequence management component has its own RDT& E
    programs:

    (1) Counterterror Technical Support Program and (2) Defense Advanced
    Research Projects Agency (DARPA) Biological Warfare Defense Program.

    Defense Advanced Research Counterterror Technical Research and development
    initiatives to support all facets of combating Projects Agency Support
    Program terrorism. Projects that specifically address consequence
    management

    requirements include (1) protective clothing, (2) forensics equipment for
    on- scene analysis, (3) responder databases, and (4) urban modeling.

    Defense Advanced Research Biological Warfare Defense

    Applied research program to develop and demonstrate technologies to
    Projects Agency Program thwart the use of biological warfare agents
    (including bacterial, viral, and

    bio- engineered organisms and toxins) by both military and terrorist
    opponents (against U. S. assets at both home and abroad). DARPA*s primary
    strategy is to create technologies applicable to broad classes of
    pathogens and toxins. The program is focused on supporting the warfighter;
    however, many of the technologies also have applicability as

    a supporting element of DOD*s combating terrorism activities. Projects
    include (1) real- time environmental sensing; (2) external protection
    (including novel methods of protection, air and water purification, and
    decontamination); (3) consequence management tools; (4) advanced medical
    diagnostics for the most virulent pathogens and their molecular
    mechanisms; (5) pre- and post- exposure medical

    countermeasures; and (6) pathogen genomic sequencing. The program
    collaborates with pharmaceutical, biotechnology, government, and academic
    centers of excellence. The program also is closely coordinated with the
    Defense Threat Reduction Agency, the Food and Drug Administration, the
    Centers for Disease Control and Prevention, the Department of Energy
    (DOE), and the intelligence

    community.

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    Department of Defense office or military service Program or activity
    Description of program or activity

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

    DOD Joint Task Force for Civil Plans and carries out military assistance
    to civil authorities for Support consequence management of WMD incidents.
    It supports the lead

    federal agency, establishes command and control of designated DOD forces,
    and provides military assistance to civil authorities to save lives,
    prevent human suffering, and provide temporary critical life support. It
    consists of a headquarters element with an operational focus, but has no
    assigned forces. The Joint Task Force for Civil Support could deploy
    overseas 60 dedicated personnel, who are located at Fort Monroe, Va.

    U. S. Army Chemical- Biological Rapid Coordinates and integrates DOD*s
    technical assistance for the detection, Response Team neutralization,
    containment, dismantlement, and disposal of weapons of

    mass destruction containing chemical, biological, or related materials.
    Assists first responders in dealing with consequence management.
    Operational control is exercised by the (1) supported commander, (2) Joint
    Special Operations Task Force, (3) Joint Task Force for Civil Support, or
    (4) Response Task Force. The Chemical- Biological Rapid Response Team
    could deploy overseas 14 dedicated personnel. They are located at Aberdeen
    Proving Grounds, Md.

    Defense Threat Reduction Defense Nuclear Advisory Provides unique nuclear-
    related technical assistance to the Response Agency Team Task Force or the
    lead federal agency. Teams consist of health physicists, radiation
    physicians, legal advisors, and other related

    professionals. The team can deploy within 4 hours. Defense Threat
    Reduction Consequence Management

    Assists other DOD organizations in matters involving weapons of mass
    Agency Advisory Team destruction and radiological accidents and incidents.
    The agency

    maintains a deployable Consequence Management Advisory Team that provides
    technical, consequence management planning, weapons effects modeling,
    general counsel, public affairs, and health physics expertise to augment
    commanders* staffs. The team also has a reachback capability to more
    robust technical resources within the agency. The team is a formal part of
    the Joint Forces Command Joint Technical

    Augmentation Cell for continental United States consequence management
    response. It also augments the Joint task Force- Civil Support for U. S.-
    based response. Because team members are assigned additional full- time
    duties within the Defense Threat Reduction Agency, no dedicated manpower
    is associated with this team.

    U. S. Air Force Radiological Assessment A rapidly deployable team with the
    personnel and equipment necessary Team to respond to accidents or
    incidents involving radioactive materials. The team can provide in- depth
    technical assistance in identifying the immediate health risks associated
    with radiological threats. The team is located at Brooks Air Force Base,
    Tex., and could deploy within 72 hours.

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    Department of Defense office or military service Program or activity
    Description of program or activity

    U. S. Army 52 nd Ordnance Group Provides military explosive ordnance
    disposal/ bomb squad units to (Explosive Ordnance defeat or mitigate the
    hazards from conventional, nuclear, or chemical Disposal) military
    munitions and weapons of mass destruction. Three Explosive Ordnance
    Disposal companies have unique counter booby trap equipment and are
    trained to operate specialized equipment provided by the Department of
    Energy (DOE) for diagnostics and rendersafe/

    mitigation of a nuclear device. The 52 nd Ordnance Group*s three companies
    could be deployed overseas. They are located in San Diego, Calif.; San
    Antonio, Tex.; and at Fort Belvoir, Va.

    U. S. Army Technical Escort Unit Provides worldwide, no- notice capability
    to provide advice, detection, field sampling, field verification,
    assessment, monitoring, render- safe, decontamination, recovery,
    packaging, transportation, and escort of weaponized and non- weaponized
    chemical and biological materials, devices, or hazards. The Technical
    Escort Unit has approximately 190

    military and civilian personnel that could be deployed overseas. They are
    located at Aberdeen Proving Grounds, Md.; Fort Belvoir, Va.; Pine Bluff
    Arsenal, Ark.; and Dugway Proving Grounds, Utah. U. S. Army Edgewood
    Chemical and Provides on- site laboratory capability to analyze chemical
    safety

    Biological Forensic Analytical materials, foreign chemical warfare agents,
    and other hazardous Center Modular On- site

    industrial chemicals. The laboratory consists of a series of transportable
    Laboratory

    modules that contain analytical instruments and their own electrical
    generators. Five personnel accompany the laboratory, including chemists
    and sampling technicians. The on- site laboratory can be deployed within 4
    hours. U. S. Army U. S. Army Medical Research

    Provides the primary source of medical information dealing with the
    Institute of Chemical Defense, management of chemical warfare agent
    casualties for the federal Medical Chemical Biological

    government. The team assists the WMD incident commander by Advisory Team
    identifying the medical implications to military and/ or civilian
    operations and advising on the initial and long- term management of
    chemical casualties at the incident site. The team also supervises the
    collection of

    biological samples (bodily fluids) for subsequent verification of chemical
    agent exposure that can be used to facilitate confirmation, diagnosis, and
    treatment.

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    Department of Defense office or military service Program or activity
    Description of program or activity

    U. S. Army U. S. Army Medical Research Conducts research to develop
    strategies, products, procedures, and Institute of Infectious

    training programs for medical defense against biological warfare threats
    Diseases

    and infectious diseases. Also, it develops vaccines, drugs, diagnostic
    tests, and medical management procedures to protect military personnel
    against biological attack or endemic infectious diseases. It provides
    medical and scientific experts and technical guidance to commanders on the
    prevention and treatment of hazardous diseases and management of
    biological casualties. It serves as DOD*s reference center for the
    identification of biological agents. Primary capabilities are technical
    expertise, extensive laboratory facilities, and the Aeromedical Isolation
    Team, which is a rapid response unit that can deploy to any area of the

    world to transport and provide patient care under high containment of
    contagious and dangerous diseases. The team has a limited capability,
    equipment, and staff and is not geared to handle mass casualties. No
    personnel are assigned directly to the Aeromedical Isolation Team. When
    deployed, the team would consist of two elements, each capable of
    transporting only one patient. The institute is located at Fort Detrick,

    Md. U. S. Army Special Medical Augmentation Provides technical advice in
    the detection, neutralization, and

    Response Team Nuclear/ containment of chemical, biological, or
    radiological hazardous materials Biological/ Chemical

    in a terrorist event. The Special Medical Augmentation Response Team
    Nuclear/ Biological/ Chemical has six teams, located at various sites,
    which could be deployed overseas. Six members per team have these
    collateral duties.

    U. S. Army Special Medical Augmentation Provides a rapid response
    evacuation unit to any area of the world to Response Team Aero transport
    and provide patient care under conditions of biological Medical Isolation

    containment to service members or U. S. civilians exposed to certain
    contagious and highly dangerous diseases. The Special Medical Augmentation
    Response Team Aero- Medical Isolation includes approximately 20 personnel
    who have this collateral duty that could be deployed overseas. They are
    stationed at Fort Detrick, Md.

    U. S. Army Radiological Advisory Medical Assists and furnishes
    radiological health hazard guidance to the on Team scene commander, U. S.
    Army Response Task Force (discussed below),

    or local medical authorities at an incident site and the installation
    medical authority. The Radiological Advisory Medical Team has 8- 10
    personnel who have these collateral duties and could be deployed overseas.
    They are located at Walter Reed Army Medical Center in Washington, D. C.
    U. S. Army and U. S. Navy Radiological Control Teams Provides radiological
    monitoring support and advice to the U. S. Army Response Task Force
    (discussed above). The teams are capable of

    deploying within several hours. The teams are located at Fort Monmouth, N.
    J., and Norfolk, Va.

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    Department of Defense office or military service Program or activity
    Description of program or activity

    U. S. Marine Corps Chemical- Biological Incident A highly trained, rapid
    response force that is capable of providing Response Force consequence
    management for terrorist- initiated chemical and biological attacks to
    mitigate the effects of multiple/ mass casualty incidents. It also
    provides force protection in the event of a terrorist incident,
    domestically

    or overseas. Capabilities include threat identification, casualty
    extraction, personnel decontamination, and medical triage/ treatment/
    stabilization. The force also maintains an information *reach- back*
    capability to chemical/ biological subject matter and disaster response
    experts for consultation. The Marine Corps Systems Command at Quantico,
    Va., manages the program. The force is a national asset that operationally
    falls under the Joint Forces Command. The Chemical- Biological Incident

    Response Force has 373 dedicated personnel who could be deployed overseas.
    They are located at Indian Head, Md. U. S. Navy U. S. Navy Environmental
    and

    Provides doctors, industrial hygienists, environmental health officers,
    Preventive Medical Unit,

    microbiologists, preventive medical technicians, and other related
    Chemical, Biological, professional who could be deployed in response to an
    incident. Teams Radiological, Environmental

    remain on alert for a rapid response and can advise the Chemical/ Defense
    Response Team

    Biological Rapid Response Team and local public health authorities and
    augment other Chemical/ Biological Rapid Response Team medical assets. U.
    S. Navy U. S. Navy Medical Research

    Provides a transportable biological field laboratory that is capable of
    Institute rapid identification of biological warfare agent. With a team of
    two

    operators, the laboratory can be ready to deploy within 4 hours. Assistant
    Secretary of

    Response Teams Provide short- duration medical augmentation to federal and
    defense Defense (Health Affairs) agencies responding to disaster,
    humanitarian, and emergency incidents. Response Teams are composed of
    medical experts who can be deployed to assist in emerging medical
    situations. Such situations include medical operational threat assessment
    and risk communication; surveillance; investigation; intervention and
    control of occupational

    environmental illnesses, injuries, and disease; advance diagnostic
    testing; and health hazard assessments and surveillance detection and
    identification of chemical, biological, radiological, or environmental
    agents. Management oversight is provided by the Assistant Secretary of

    Defense (Health Affairs), each military service*s Office of the Surgeon
    General, and military installation commanders, who act as host to tenant
    commands.

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    Department of Defense office or military service Program or activity
    Description of program or activity

    Military assistance to other countries for international special security
    events

    Regional military International special security

    Provides a military response, if needed, to a terrorist incident overseas
    commanders events involving weapons of mass destruction or to evacuate
    Americans during

    an international special security event, such as a presidential summit
    meeting or the Olympic Games. For example, DOD representatives participate
    in the Olympic Security Advisory Team at the U. S. Embassy in Athens to
    coordinate federal assistance to the Government of Greece in preparation
    for the 2004 Olympic Summer games in Athens. The team provides advice to
    the Greek Ministry of Public Order on security issues at the strategic
    level and advice on technical support issues at the

    operational level. Issues include intelligence, planning, training and
    exercises, technology, command and control coordination, and Olympic venue
    security. Source: DOD.

    Notes: Although DOD*s terrorism consequence management response assets are
    geared primarily to respond to a domestic terrorist incident if requested
    by the Department of Justice through the FBI or by FEMA, these same assets
    could be deployed overseas to respond to an international terrorist
    incident if requested by the Department of State.

    For a detailed description of military service- specific categories of
    equipment, activities financed, program management, planned activities,
    funding, and personnel levels, see Office of the Secretary of Defense,
    Congressional Report: DOD Combating Terrorism Activities, January 14,
    2000, and Combating Terrorism Activities, Fiscal Year 2003 Budget
    Estimates, March 2002.

    a The response to a terrorist incident involves managing the immediate
    crisis as well as its consequences. *Crisis management* involves efforts
    to prevent and deter a terrorist attack, protect public health and safety,
    arrest terrorists, and gather evidence for criminal prosecution.
    *Consequences management* involves efforts to provide medical treatment
    and emergency services, evacuate people from dangerous areas, and restore
    government services.

    Matrix of Department of Homeland Security Programs and Activities to
    Combat Terrorism

    Appendi I I x Overseas The Department of Homeland Security is primarily
    focused on combating terrorism within the United States. However, for
    selected overseas activities, it supports the Department of State, which
    is the lead federal agency for coordinating U. S. government efforts to
    combat terrorism overseas. Within the department, multiple bureaus,
    offices, and agencies manage various programs and activities to combat
    terrorism abroad. Department of Homeland Security also works with other U.
    S. government agencies, foreign government organizations and agencies, and
    international organizations in carrying out these programs and activities.
    Some of these activities directed at combating terrorism overseas (e. g.,
    coordination) may actually occur in the United States.

    Appendix II identifies and describes the following:  the strategic
    framework of Homeland Security*s efforts to combat

    terrorism overseas;  Homeland Security*s programs and activities to
    detect and prevent

    terrorism overseas;  Homeland Security*s programs and activities to
    disrupt and destroy

    terrorist organizations overseas; and  Homeland Security*s programs and
    activities to respond to terrorist

    incidents overseas.

    Tabl e 11: Department of Homeland Security Programs and Activities to
    Combat Terrorism Overseas Department of Homeland Security office or bureau
    Program or activity Description of program or activity STRATEGIC FRAMEWORK
    Special agency official or office in charge of counterterrorism

    Secretary of Homeland Serves as head of the

    Responsible for preventing terrorist attacks within the United States and
    Security department reducing vulnerability to those attacks. The Secretary
    also is responsible for minimizing damage and assisting in the recovery
    from terrorist attacks

    that occur within the United States.

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    Department of Homeland Security office or bureau Program or activity
    Description of program or activity Agency plans or strategies to combat
    terrorism

    Department of Homeland

    National Strategy for

    The strategy addresses the threat of terrorism within the United States,
    but Security Homeland Security does mention various initiatives related to
    combating terrorism overseas.

    (September 2002) These initiatives include (1) negotiating new
    international standards for travel documents, (2) improving security for
    international shipping containers, (3) enhancing cooperation with foreign
    law enforcement agencies, (4) expanding specialized training and
    assistance to allies, and (5) increasing the security of transnational
    infrastructure. The strategy stresses the importance of expanding
    international cooperation in research

    and development and enhancing the coordination of incident response.
    Finally, the strategy recommends reviewing current international treaties
    and law to determine where improvements could be made.

    DETECT AND PREVENT TERRORISM ABROAD Critical infrastructure protection

    Information Analysis and Implementation of the Helps implement Department
    of Homeland Security critical infrastructure Infrastructure Protection
    Homeland Security Act of

    protection responsibilities in (1) developing a comprehensive national
    plan Directorate

    2002 for securing the key resources and critical infrastructure of the
    United States; (2) recommending measures to protect the key resources and

    critical infrastructure of the United States in coordination with other
    federal agencies and in cooperation with state and local government
    agencies and authorities, the private sector, and other entities; and (3)
    disseminating, as appropriate, information analyzed by the department both
    within the

    department and to other federal agencies, state and local government
    agencies, and private sector entities to assist in the deterrence,
    prevention, preemption of, or response to terrorist attacks.

    The Homeland Security Act of 2002 created the directorate within the new
    department and transferred to it the functions, personnel, assets, and
    liabilities of several existing organizations with critical infrastructure
    protection responsibilities, including the National Infrastructure
    Protection Center (other than the Computer Investigations and Operations
    Section)

    and the Critical Infrastructure Assurance Office.

    Law enforcement training (with foreign governments)

    Federal Law Enforcement Glynn County (* Glynco*),

    Serves as an interagency law enforcement training organization for federal
    Training Center Georgia, facility law enforcement agencies. The center
    provides facilities, equipment, and

    support services for conducting training of federal law enforcement
    personnel. It also has a reimbursable program to accommodate the training
    requirements of various federal agencies, state, local, and foreign law
    enforcement personnel on a space- available basis. As a result of
    increased domestic interest in training, it does not have the capacity to
    train foreign

    nationals at its Glynn County (* Glynco*), Georgia, facility.

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    Department of Homeland Security office or bureau Program or activity
    Description of program or activity

    Federal Law Enforcement International Programs

    Under agreement with the Department of State, the Federal Law Training
    Center Division Enforcement Training Center*s (FLETC) International
    Programs Division provides specialized training focused in three areas:
    (1) the U. S. government*s Law and Democracy Program, with a focus on
    white- collar crime, illegal narcotics, and building democratic
    institutions; (2) Antiterrorism Assistance program, with a focus on
    combating international terrorism; and (3) International Law Enforcement
    Academies (ILEA), with a focus on law enforcement skills.

    Recently, the division*s focus has been on ILEA training, including
    leading assessments to identify training needed by participating countries
    and teaching the rule of law. The division also has focused on bilateral
    programs with specific countries. FLETC instructors teach needed skills/
    techniques in, for example, money laundering and investigations.
    Presently, FLETC is finalizing a course on the Financing of Terrorism,
    which will soon be offered to foreign nationals. Since its inception in
    1994, FLETC has helped train 1, 900 law enforcement officials representing
    34 countries.

    Bureau of Customs and Nunn- Lugar Cooperative

    Provides basic and specialized border control training and equipment to
    Border Protection Threat Reduction Program customs and law enforcement
    agencies with a focus on Russia, Belarus, Kazakhstan, and the Ukraine.
    This program is funded through the Department of Defense.

    Bureau of Customs and Project Amber Provides basic border control training
    and advanced courses on Border Protection cross- country tracking,
    targeting of high- risk shipments, and proper

    utilization of Department of State- provided x- ray vans to detect nuclear
    materials.

    Bureau of Customs and Service Counter- proliferation

    Cooperative effort with the Department of Defense that provides border
    Border Protection Program control training and equipment, including large
    consignments of high- and

    low- tech interdiction and detection tools and advanced investigative
    techniques.

    Bureau of Customs and Export Control/ Border Provides on- site technical
    assistance by 13 customs advisors in 9 offices Border Protection Security
    Program who cover 25 countries. Focuses on delivery of training, technical

    assistance, and equipment; coordinates the delivery of assistance from
    other federal agencies; and fosters host country interagency cooperation
    and cross- border and regional cooperation.

    Border Security Bureau of Immigration and Customs Air and Marine
    Responsible for protecting the nation*s borders and the American people
    Customs Enforcement Interdiction from smuggling of narcotics and other
    contraband terrorist activity with an integrated air and marine
    interdiction force.

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    Department of Homeland Security office or bureau Program or activity
    Description of program or activity

    Bureau of Customs and Operation Shield America Cooperative initiative with
    American companies to help prevent Border Protection international
    terrorist groups from obtaining sensitive U. S. technology, weapons, and
    equipment. Operating internationally, customs attache

    offices have begun reaching out to foreign law enforcement counterparts to
    help raise awareness among businesses in their countries. Operation Shield
    America tracks inquiries and orders for technology to be shipped

    outside the United States; ensures export specialists know export controls
    and follow appropriate screening and licensing; ensures employees
    understand certain technologies are restricted from export; and
    investigates suspicious customers attempting to obtain sensitive
    technologies.

    Bureau of Customs and Advanced Passenger

    Provides mandatory information on arriving airline passengers that is
    Border Protection Information System submitted to the immigration
    inspectors for review. Failure to transmit

    arriving passenger data could result in penalties ranging from monetary
    fines for the pilot up to the revocation of landing rights for the
    airline. Bureau of Customs and

    Automated Manifest System Provides extensive data to customs inspectors on
    the shipping industry, its Border Protection patterns, and all who
    participate. Customs officials report that they receive information on 98
    percent of all containers entering the United States.

    Bureau of Customs and Trade Partnership Against

    Cooperative agreement to work with the trade community to improve border
    Border Protection Terrorism security. Based on a model designed to prevent
    smuggling of illegal drugs,

    the initiative was proposed to improve security along the entire supply
    chain, from the factory floor, to foreign vendors, to U. S. ports of
    entry.

    Bureau of Customs and Smart Border Declaration Cooperative agreement
    between the United States and Canada whereby Border Protection customs
    officials in both countries target and pre- screen cargo headed to

    each country. The agreement focuses on four areas: (1) secure flow of
    people, (2) goods, (3) investments in technology to expedite trade and
    minimize threats, and (4) coordination and information sharing to defend
    common borders. A similar agreement is being negotiated between the

    United States and Mexico. Bureau of Customs and

    NEXUS Program Allows low- risk Canadian and U. S. citizens to travel
    across the U. S. Canadian Border Protection border with minimal customs or
    immigration processing by either

    country. This is a pilot program. Bureau of Customs and

    Container Security Initiative Protects the use of ocean- going sea
    containers in international trade. Border Protection Initially the focus
    will be on the largest ports of entry and focus on prescreening of cargo
    prior to shipment to the United States. The initiative is expected to (1)
    establish criteria for identifying high- risk containers, (2) prescreen
    containers before they are shipped to the United States, (3) use
    technology to pre- screen high- risk containers, and (4) develop and use
    smart/ secure containers.

    U. S. Coast Guard Maritime border controls The U. S. Coast Guard
    participates in efforts to detect terrorists and their between ports of
    entry materials outside maritime ports of entry. The U. S. Coast Guard has
    a

    National Vessel Movement Center that identifies and tracks *high interest*
    vessels. Decisions on appropriate actions to be taken with respect to such
    vessels, such as whether to board, escort, or deny entry are based upon
    established criteria and procedures.

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    Department of Homeland Security office or bureau Program or activity
    Description of program or activity

    U. S. Border Patrol Land border controls The U. S. Border Patrol has the
    mission to detect and apprehend illegal between ports of entry aliens and
    smugglers between U. S. ports of entry. The Border Patrol is

    responsible for patrolling about 6,000 miles of Mexican and Canadian
    international land borders and 2, 000 miles of coastal waters surrounding
    the Florida Peninsula and the island of Puerto Rico. Agents patrol these
    borders utilizing various vehicles, including aircraft, marine vessels,
    allterrain vehicles, and horse units.

    DISRUPT AND DESTROY TERRORIST ORGANIZATIONS ABROAD Law enforcement
    Investigations

    Bureau of Immigration and Customs Attaches Work closely with host
    government customs services and other law Customs Enforcement enforcement
    agencies to coordinate law enforcement actions domestically

    and internationally against terrorists cells and networks. Bureau of
    Immigration and

    Operation Global Shield Immigration Control Officers deployed at transit
    points around the world to Customs Enforcement serve as the front line of
    defense against those individuals who might well cause harm to the
    security of the United States. The control officers work closely with host
    country government agencies to gather law enforcement

    intelligence and information on migrant smuggling and trafficking
    organizations. Bureau of Immigration and

    Operation Oasis Operation is directed at identifying, detecting, and
    halting the illegal Customs Enforcement exportation of unreported currency
    to terrorist activity.

    Bureau of Immigration and Customs investigations Responsible for
    investigating a range of issues including terrorist financing, Customs
    Enforcement export enforcement, money laundering, smuggling, fraud, and
    cyber crimes.

    U. S. Secret Service Investigates terrorists* Investigates terrorists*
    threats against officials under its protective mission threats overseas,
    including the President and Vice President.

    Identifying, freezing, and seizing terrorist organizations* assets

    Bureau of Immigration and Operation Green Quest Multi- agency financial
    enforcement initiative intended to augment existing Customs Enforcement
    counter- terrorist efforts by bringing the full scope of the government's

    financial expertise to bear against systems, individuals, and
    organizations that serve as sources of terrorist funding. Operation Green
    Quest is aimed at identifying, freezing, and seizing the accounts and
    assets of terrorist organizations that pose a threat to the United States
    and other nations.

    U. S. Secret Service Investigates Responsible for enforcing laws related
    to securities of the United States financial crimes and financial crimes.
    Its efforts to combat international terrorism rest

    primarily on the investigation of counterfeiting of currency and
    securities.

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    Department of Homeland Security office or bureau Program or activity
    Description of program or activity Military Operations

    U. S. Coast Guard Maritime interception Conducts maritime interception
    operations. In its role as a military service, operations the U. S. Coast
    Guard supports regional military commands, which have requested and
    received U. S. Coast Guard cutters to conduct such operations. To
    accomplish its missions to combat terrorism, both domestic and overseas,
    the U. S. Coast Guard is developing a U. S. Coast Guard Maritime Strategy
    for Homeland Security. This strategy puts a premium on identifying and
    intercepting threats well before they reach U. S. shores by conducting
    layered, multi- agency, maritime security operations that include

    surveillance and reconnaissance, tracking, and interception.

    Protection of Americans abroad

    U. S. Secret Service Protection of senior officials Responsible for the
    security of the President and Vice President, as well as overseas other
    designated individuals under its protective mission overseas.

    RESPOND TO TERRORIST INCIDENTS ABROAD Crisis and consequence management
    domestic and abroad a

    Department of Homeland Emergency Response Includes a number of response
    teams with unique capabilities that are Security Teams primarily used in a
    domestic capacity, but could respond overseas to a

    terrorist incident. Source: Department of Homeland Security.

    a The response to a terrorist incident involves managing the immediate
    crisis as well as its consequences. *Crisis management* involves efforts
    to prevent and deter a terrorist attack, protect public health and safety,
    arrest terrorists, and gather evidence for criminal prosecution.
    *Consequences management* involves efforts to provide medical treatment
    and emergency services, evacuate people from dangerous areas, and restore
    government services.

    Matrix of Department of Justice Programs and

    Appendi I I I x Activities to Combat Terrorism Overseas The Department of
    Justice supports the Department of State, which is the lead federal agency
    for coordinating U. S. government efforts to combat terrorism overseas.
    Within the department, multiple bureaus and offices manage various
    programs and activities to combat terrorism abroad. The Department of
    Justice also works with other U. S. government agencies, foreign
    government law enforcement organizations and agencies, and multinational
    organizations in carrying out these programs and activities.

    For many of these activities, there may be no clear boundary between
    combating terrorism domestically and overseas. Some of these activities
    directed at combating terrorism overseas (e. g., coordination) may
    actually

    occur in the United States. Appendix III identifies and describes the
    following:  the strategic framework of Justice*s efforts to combat
    terrorism

    overseas;  Justice*s programs and activities to detect and prevent
    terrorism

    overseas;  Justice*s programs and activities to disrupt and destroy
    terrorist

    organizations overseas; and  Justice*s programs and activities to respond
    to terrorist incidents

    overseas.

    Tabl e 12: Department of Justice Programs and Activities to Combat
    Terrorism Overseas Department of Justice office or bureau Program or
    activity Description of program or activity STRATEGIC FRAMEWORK Agency
    head*s role in counterterrorism

    Justice, Attorney General Head of the Department of Represents the United
    States in legal matters related to terrorism and Justice and chief law
    gives advice and opinions to the President and to the heads of the
    enforcement officer of the

    executive departments of the government. Also, the Attorney General,
    federal government

    through the Department of Justice, has the lead federal role for crisis
    management in a domestic terrorist incident and a support role to the
    Department of State during a terrorist incident overseas.

    Special agency official or office in charge of counterterrorism

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    Department of Justice office or bureau Program or activity Description of
    program or activity

    Justice, Deputy Assistant Criminal Division,

    This section is responsible for the design, implementation, and support
    Attorney General Counterterrorism Section of law enforcement efforts to
    combat international terrorism, including legislative initiatives and
    policies. This includes investigating and prosecuting suspected terrorists
    for acts of terrorism against U. S. interests worldwide. Justice, U. S.
    Attorney District Anti- Terrorism Task Forces Integrates and coordinates
    the anti- terrorism activities in each of the Offices judicial districts
    within the United States. The task forces are comprised

    of federal prosecutors from the U. S. Attorneys Office, members of federal
    law enforcement agencies, as well as the primary state and local
    enforcement officials in each district. They serve as part of a national
    network that coordinates closely with the Joint Terrorism Task Forces in
    the collection, analysis, and dissemination of information. The
    AntiTerrorism Task Forces also develop the U. S. investigative and
    prosecution strategy throughout the country.

    Justice, Deputy Attorney National Security Coordinates policy, resource
    allocation, operations, long- term planning, General Coordination Council
    and information sharing related to national security efforts to combat
    terrorism. Membership includes the Deputy Attorney General, who

    heads up the council, Director of the Federal Bureau of Investigation
    (FBI), and other department officials.

    Agency plans or strategies to combat terrorism

    Justice, U. S. Attorney General Five- Year Interagency

    Serves as a baseline strategy for coordination of national policy and
    Counterterrorism and

    operational capabilities to combat terrorism in the United States and

    Technology Crime Plan (Sept. against American interests overseas. 1999)

    Justice, U. S. Attorney General Strategic Plan for Fiscal Years

    Provides a multi- year plan for carrying out the department*s mission. The

    2001- 2006 (Sept. 2000) plan is oriented toward achieving the vision of
    securing equal justice for all, enhancing respect for the rule of law, and
    making America a safer and less violent nation. The plan includes goals,
    objectives, and strategies for the next 5 years. It also describes key
    interagency

    programs and summarizes the external factors that may affect goal
    achievement. Justice, U. S. Attorney General National Money Laundering

    The strategy includes, for the first time, a comprehensive national plan
    to

    Strategy, jointly issued by the attack the financing of terrorist groups.
    Goal 2 of the Strategy focuses Attorney General and the

    law enforcement and regulatory resources on identifying terrorist
    Secretary of the Treasury in

    financing networks by (1) implementing a multi- pronged operational July
    2002 strategy to combat terrorist financing, (2) identifying and targeting
    the methods used by terrorists financiers, and (3) improving international

    efforts to dismantle terrorist financial networks. The strategy is an
    interagency plan, which draws on the expertise and resources of the
    Departments of Justice and the Treasury, and other federal agencies as
    well as foreign partners and the private sector. FBI Strategic Plan 1998-
    2003 Concentrates on specific 5- year strategic goals and key functional

    (May 1998) strategies in areas related to operations, intelligence,
    information technology, applied science and engineering, management, and
    state and local services. The plan guides the direction, priorities, and
    resources of the FBI. The plan currently is under revision to reflect the

    FBI*s recent reorganization, done in large part to provide additional
    resources to combat terrorism.

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    Department of Justice office or bureau Program or activity Description of
    program or activity DETECT AND PREVENT TERRORISM ABROAD Law enforcement
    training (with foreign governments)

    FBI International Law Trains law enforcement officers from Central Europe
    and the newly Enforcement Academy

    independent states of the former Soviet Union. The academy provides (ILEA)

    specialized short- term courses and an 8- week professional development
    Budapest, Hungary

    program focusing on law enforcement issues, rule of law, investigation
    process, leadership, and ethics. It also serves as a cooperative effort
    between the Departments of State, Justice, and the Treasury. FBI, Training
    Division International Training and

    Conducts worldwide in- country training through the International Training
    Assistance Unit and Assistance Unit for foreign law enforcement entities.
    The unit responds to training requests from the legal attaches for foreign
    police agencies. The training emphasizes crisis management and major case
    management as well as the investigation of transnational organized

    crime groups. The training also enhances the FBI*s international
    investigative mission by creating *cop- to- cop* relationships with
    foreign law enforcement agencies. Justice, Criminal Division,

    International Criminal Provides training and development assistance to
    police organizations International Training and Investigative Training

    worldwide. The training also helps foreign governments develop the
    Development Programs Assistance Program

    capacity to provide modern professional law enforcement services based on
    democratic principles and respect for human rights. Activities include the
    development of police forces in the context of international peacekeeping
    operations and enhancing the capabilities of existing police organizations
    in emerging democracies.

    Justice, Criminal Division, Office of Overseas

    Provides justice- sector institution building assistance, including
    training International Training and Prosecutorial Development of foreign
    judges and prosecutors, in coordination with various Development Programs

    Assistance and Training government agencies and U. S. embassies. The
    training is intended to strengthen the legislative and regulatory criminal
    justice infrastructure within the host country, and enhance the capacity
    of the country to

    investigate and prosecute crime more effectively, consistent with the rule
    of law.

    Bureau of Alcohol, Tobacco, International Programs

    Trains foreign nationals in conjunction with the Department of State*s
    Firearms and Explosives Branch training Bureau of International Narcotics
    and Law Enforcement Affairs and/ or

    Bureau of Diplomatic Security*s Antiterrorism Assistance program. Programs
    include: International Post Blast Investigation, International Firearms
    and Explosives Identification, Tax and Revenue Training, and Explosives
    Detection Canine Training. The branch also serves as technical and legal
    experts with the Department of State on the negotiation of several
    international instruments.

    The ATF currently is establishing a Center for Explosive Research and
    Training in Virginia. The ATF anticipates that training supplied there for
    domestic and international law enforcement officials will become part of
    the international fight against terrorism and violent crime.

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    Department of Justice office or bureau Program or activity Description of
    program or activity Border security (including visa processing issues)

    Justice National Security Entry- Exit Tracks up to 200, 000 foreign
    visitors each year and stops suspected Registration System terrorists
    prior to entry into the United States. The system verifies

    visitor*s activities and whereabouts while in the country. Future plans
    will include efforts to track up to 35 million foreign visitors entering
    the United States annually. The system has three components that include

    (1) fingerprinting and photographing at the border, (2) periodic
    registration of aliens who stay in the United States 30 days or more, and
    (3) exit controls that will help the Immigration and Naturalization
    Service (INS) to remove those aliens who overstay their visas.

    Justice Foreign Terrorist Tracking Coordinates a multi- agency effort to
    identify, locate, and deny entry to, or Task Force remove terrorists and
    their supporters from, the United States. The task

    force includes a number of agencies, including the FBI, INS, and the U. S.
    Customs Service.

    DISRUPT AND DESTROY TERRORIST ORGANIZATIONS ABROAD Law enforcement
    cooperation

    FBI, Executive Assistant Office of Law Enforcement

    Establishes relationships and enhances information sharing with state
    Director for Law Enforcement

    Coordination and local police professionals. In addition, helps the FBI
    tap into the Services

    strengths and capabilities of its partners. FBI, Counterterrorism

    National Joint Terrorism Task Serves as the national coordinating
    mechanism for sharing information Division Force on suspected terrorists,
    including those of foreign origin. Also, it

    complements the local Joint Terrorism Task Forces to improve collaboration
    and information sharing with other federal, state, and local agencies. The
    task force operates out of the FBI*s Strategic Information Operation
    Center in Washington, D. C.

    FBI, Field Offices Joint Terrorism Task Forces Serves as a coordinating
    mechanism that combines the international and national investigative
    resources of the federal government with the street- level expertise of
    local law enforcement agencies. This *cop- tocop* relationship enables law
    enforcement agencies to share information on suspected terrorists,
    including those of foreign origin. One of the most robust Joint Terrorism
    Task Forces is in Washington, D. C., which has representatives from 15
    federal agencies. Throughout its field offices, the FBI has 56 task forces
    in place.

    Justice, Criminal Division Terrorist Financing Task Force Coordinates the
    terrorist financing enforcement efforts within Justice*s Criminal
    Division. The task force works with prosecutors around the country as well
    as with the FBI*s Foreign Terrorist Tracking Task Force and Terrorist
    Financing Operation Section to disrupt groups and individuals representing
    terrorist threats.

    FBI, Executive Assistant International Operations Promotes relations with
    both foreign and domestic law enforcement Director for Law Enforcement

    agencies and security services and facilitates investigative activities.
    Services

    Also provides managerial support of the Legal Attache Program.

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    Department of Justice office or bureau Program or activity Description of
    program or activity

    FBI, International Operations Legal Attache Program Provides Senior
    Special Agents stationed at U. S. missions overseas who work closely with
    law enforcement agencies of host countries on common crime problems. They
    also play a large role in facilitating the international battle against
    terrorism by enlisting the cooperation of foreign law enforcement,
    enabling the arrest of U. S. terrorist suspects, and solving crimes
    against U. S. citizens.

    Legal Attaches also assist in coordinating investigations with federal law
    enforcement overseas by disseminating information to officials of key U.
    S. federal agencies stationed abroad. They routinely share information on
    investigations with liaisons serving with Department of Defense (DOD)
    components overseas. The FBI currently operates 44 legal attache offices
    worldwide.

    Justice, Criminal Division, Negotiates bilateral and

    In conjunction with the Department of State, the Office of International
    Office of International Affairs multilateral agreements Affairs negotiates
    extradition and mutual legal assistance treaties with

    foreign governments. As of July 2002, the United States had bilateral
    Mutual Legal Assistance Treaties covering 46 jurisdictions and over a 120
    extradition treaties in force with foreign jurisdictions.

    Justice U. S. National Central Bureau Represents the United States as a
    member of INTERPOL. It facilitates of the International Criminal
    international law enforcement cooperation by transmitting law Police
    Organization

    enforcement- related information between the National Central Bureaus
    (INTERPOL)

    of INTERPOL, member countries, and U. S. law enforcement agencies. It also
    coordinates information relevant to international investigations and
    identifies patterns and trends in criminal activities.

    Bureau of Alcohol, Tobacco, Law enforcement cooperation Works directly and
    in cooperation with other agencies to enforce federal Firearms and
    Explosives laws and regulations related to firearms, explosives, and fire-
    related

    violent crimes.

    Law enforcement investigations

    FBI, Counterterrorism Lead agency in charge of

    As principal investigative agency of the federal government, it serves as
    Division investigating international

    lead agency for international counterterrorism investigations. The FBI
    terrorist incidents

    has extraterritorial jurisdiction to expand its investigative authority
    outside U. S. borders. Its investigations include incidents involving
    bombings, hostage taking, homicides of U. S. citizens overseas, sabotage,
    and extortion by threatening the use of weapons of mass destruction.

    Justice Attorney General Guidelines Establishes prediction levels and
    limits on international counterterrorism for FBI Foreign Intelligence

    investigations involving U. S. persons or foreign nationals overseas.
    Collection and Foreign Counter- intelligence Investigations

    FBI National Crime Information Provides the names and identifying
    information of terrorist suspects Center Database under domestic and
    international investigations. The data is accessible to state and local
    law enforcement officers.

    FBI Integrated Automated Provides the capability to search and match
    fingerprints of suspected Fingerprint

    terrorists against millions of fingerprints contained in the criminal
    Identification System fingerprint repository.

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    Department of Justice office or bureau Program or activity Description of
    program or activity

    FBI National Center for the Provides investigative and operational support
    functions to federal, state, Analysis of Violent Crime local, and foreign
    law enforcement agencies investigating unusual or repetitive violent
    crimes. The center also can provide support through expertise and
    consultation for non- violent matters related to national security.

    Justice, Criminal Division, Mutual legal assistance

    Provides for the exchange of evidence between parties to a treaty, often
    Office of International Affairs treaties in a form that is admissible at
    trial. The treaties enable the Department of

    Justice to obtain foreign financial records and testimonial statements of
    foreign witnesses. In addition, they allow for the search and seizure of
    foreign evidence, and, in some cases, the right to freeze and recover the
    forfeiture of proceeds.

    Justice, Criminal Division, Letters rogatory Letters rogatory are requests
    that come from judicial officials in one Office of International Affairs
    country to judicial officials in another country seeking assistance with
    an investigation. The letters usually include background on the nature and

    targets of the criminal investigation, relevant facts about the case or
    investigation, type of assistance needed, statutes alleged to have been
    violated, and a promise of reciprocity.

    Bureau of Alcohol, Tobacco, International Programs

    Combats the illegal movement of firearms, explosives, and ammunition
    Firearms and Explosives Branch to prevent such arms from being used to
    commit acts of terrorism,

    among other international crime. The responsibilities of the International
    Programs Branch include: (1) supervising and coordinating the utilization
    of ATF Country Attaches in support of International Trafficking in Arms
    Investigations, (2) developing international firearms programs and policy,
    (3) performing/ conducting international firearms trafficking assessments,
    and (4) and performing/ conducting firearms trafficking studies

    concerning foreign countries. According to the ATF, since September 11,
    2001, its International Programs Branch has been inundated with requests
    for assistance from numerous foreign law enforcement agencies. Most of
    these requests have been for assistance in the area of explosives
    investigations, explosives tracing, and post- blast evidence recovery.

    Law enforcement renditions and extraditions Justice, Criminal Division,
    Extradition treaties Enables parties to a treaty to obtain custody of
    accused terrorists. The Office of International Affairs agreement provides
    for the request of one party to the treaty to the other

    party for the arrest and surrender of an individual accused or convicted
    of a crime in a country making the request. Modern extradition treaties
    contain a *dual criminality* clause, which makes any offense considered

    a crime in both countries extraditable. FBI Renditions Escort agents
    apprehend and obtain custody of suspected terrorists

    without the formalities of an extradition treaty. This occurs when the
    asylum nation agrees to render the individual to the United States for
    trial or deports the individual out of the country. Justice, U. S.
    Marshals

    Extraditions- prisoner custody Escort agents apprehend and transport
    suspected terrorists to the Service and transportation United States for
    prosecution once the extradition proceedings in a

    foreign country are complete and the suspected terrorist is ready for
    surrender.

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    Department of Justice office or bureau Program or activity Description of
    program or activity Law enforcement arrests and prosecutions

    Justice, Criminal Division, Prosecutions Prosecutes suspected terrorists
    for acts of terrorism against U. S. citizens Counterterrorism Section or
    interests through the Department of Justice, Criminal Division*s

    Terrorism Section.

    Intelligence on terrorist groups and threat assessments

    FBI, Executive Assistant Counterterrorism Division Centralizes operational
    and analytical functions to combat terrorism on Director for
    Counterterrorism

    three fronts: (1) international terrorism operations both within the
    United and Counterintelligence

    States and in support of extraterritorial investigations, (2) domestic
    terrorism operations, and (3) countermeasures relating to both
    international and domestic terrorism. The division enhances the level of
    analytical support to the counterterrorism program, increases the
    capability to electronically share information and intelligence, and
    creates additional field office capacity to respond to terrorist issues.
    Includes the National Joint Terrorism Task Force and the *Flying Squads.*

    FBI, Counterterrorism *Flying Squads* Enables agents with specific
    counterterrorism knowledge to rapidly Division access knowledge and
    expertise in the field to ensure it is relayed to FBI

    headquarters for analysis. FBI, Counterterrorism

    Information Integration Improves interagency terrorism- related
    information sharing by facilitating Division Initiative the warehousing of
    law enforcement and public safety agencies data in a

    single secure database. Also facilitates terrorism information sharing
    between the FBI and the law enforcement and public safety communities.

    FBI, Counterterrorism Terrorist Financing

    The Terrorist Financing Operations Section works jointly with the law
    Division Operations Section enforcement and intelligence communities to
    identify, investigate, disrupt,

    dismantle, and prosecute as appropriate, terrorist- related financial and
    fund- raising activities. According to the FBI, the Terrorist Financing
    Operations Section brings the bureau*s financial expertise to bear in
    identifying terrorist financing methods and movement of money into and out
    of the United States in support of terrorist activity. FBI, Executive
    Assistant

    Counter- intelligence Division Coordinates investigative matters
    concerning foreign counterintelligence, Director for Counterterrorism
    including activities related to investigations into espionage, overseas
    and Counterintelligence

    homicide, protection of foreign officials and guests, and nuclear
    extortion. The division also works with other government agencies and the
    private sector to identify and protect U. S. secrets from being
    compromised by foreign agents and spies. FBI, Counterintelligence

    Counter- Espionage Section Manages espionage investigations and evaluates
    and prioritizes all Division existing espionage cases to ensure effective
    allocation of human resources and expertise. FBI, Executive Assistant

    Office of Intelligence Serves as a strategic and tactical intelligence and
    analytical mechanism Director for Counterterrorism

    for pulling information from various sources. Also supports and
    Counterintelligence

    counterterrorism and counterintelligence programs through strategic and
    tactical intelligence initiatives. In addition, the office ensures
    intelligence within the law enforcement and intelligence communities in
    cases when it is appropriate to do so.

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    Department of Justice office or bureau Program or activity Description of
    program or activity

    FBI, Counterterrorism Threat Assessment/

    Assesses the potential threats existing in short- and long- term Division
    Prevention Unit environments, both domestically and outside the United
    States. The unit

    also determines the feasibility and credibility of threat information by
    comparing intelligence collected by the intelligence community with
    investigative information. FBI, Counterterrorism

    National Threat Warning Provides threat warning information to the law
    enforcement and Division System intelligence communities. The system also
    enables the FBI to

    communicate threat information directly to U. S. citizens. FBI Terrorism
    Watch List Serves as a single integrated listing of suspected terrorists
    who are of

    interest to FBI investigations. The watch list is accessible to the law
    enforcement and intelligence communities. Information is derived from the
    Joint Terrorism Task Force investigations, the intelligence community,
    DOD, and foreign governments.

    FBI, Counterterrorism Publishes annual report on

    The annual report, Terrorism in the United States, is published to provide
    Division, Counterterrorism

    Terrorism in the United States a comprehensive picture of the security
    threats that American citizens Threat Assessment and and interests have
    encountered in the United States. Warning Unit

    FBI, Counterintelligence Awareness of national

    Serves as the public voice of the FBI for espionage, counterintelligence,
    Division security issues and response counterterrorism, economic
    espionage, cyber and physical infrastructure protection, and all national
    security issues. It also provides unclassified national security threat
    and warning information via e- mail to U. S. corporate physical and
    information security directors and executives, law

    enforcement, and other government agencies. FBI, Counterterrorism

    National Infrastructure Serves as the focal point for interagency efforts
    to warn of and respond Division Protection Center to cyber intrusions,
    both in the United States and overseas. The center also gathers
    information on threats to the infrastructure and provides the

    principal means of facilitating the coordination of the federal
    government*s response to the incident. The center*s programs have been
    established in each of the FBI*s field office divisions.

    FBI, Counterterrorism Information Sharing and Increases security for the
    nation*s critical infrastructures through a two Division Analysis Center
    way sharing of information with the private sector. The center was

    established through the National Infrastructure Protection Center to
    enhance private sector cooperation and trust and information sharing.

    Bureau of Alcohol, Tobacco, National Firearms Tracing

    Traces crime guns taken into police custody in the United States as well
    Firearms and Explosives Center as U. S.- source firearms recovered in
    foreign countries. The center is an effort to curb the flow of illegal
    firearms. Bureau of Alcohol, Tobacco,

    Transnational Intelligence In response to the terrorist attacks of
    September 11, 2001, the ATF Firearms and Explosives Branch created the
    Transnational Intelligence Branch to manage the classified intelligence it
    received. The Department of the Treasury determines the requirements and
    classifications.

    RESPOND TO TERRORIST INCIDENTS ABROAD Crisis and consequence management
    domestic and abroad a

    FBI, Counterterrorism WMD Operations Unit Coordinates the interagency
    threat assessment process and determines Division the (1) credibility of
    the threat received, (2) immediate concerns involving health and safety of
    the responding personnel, and (3) requisite level of

    response warranted by the federal government.

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    Department of Justice office or bureau Program or activity Description of
    program or activity

    FBI Strategic Information and Serves as a focal point for information
    management, coordination, and Operations Center operational support. The
    center provides the facilities, information

    systems, and communications equipment to support special events and crisis
    operations. Also, during major crises, investigations, or special events,
    the center is fully activated as a headquarters command center.

    FBI, Executive Assistant Laboratory Division Provides forensic and
    technical services to federal, state, and local law Director for Law
    Enforcement

    enforcement agencies. The division collects and conducts analysis of
    Services

    physical evidence ranging from biological materials to explosives. Through
    its trained teams of FBI Special Agents and support personnel, it can
    assist international law enforcement agencies with large- scale
    investigations and disasters.

    FBI, Executive Assistant Investigative Technologies Provides technical and
    tactical services in support of investigators and Director for Law
    Enforcement Division the intelligence community. Some of the services
    provided by the division include electronic surveillance, physical
    surveillance, cyber technology, and wireless radio communication. The
    division also is working on developing new investigative technologies and
    techniques as well as

    training the agents and personnel with the new technologies. FBI,
    Laboratory Division,

    Mobile Crime Laboratory Provides the capability to collect and analyze a
    range of evidence at the Enforcement Services crime scene. The laboratory
    also has analytical instrumentation for rapid

    screening and triage of explosives and other trace evidence recovered at
    the crime scene. FBI, Laboratory Division,

    Flyaway Laboratory Provides the capacity to rapidly respond to criminal
    acts involving the Enforcement Services use of chemical or biological
    agents with the mobile, self- contained lab. The laboratory allows for the
    safe collection of hazardous materials, sample preparation, storage, and
    analysis in a field setting.

    FBI, Laboratory Division Explosives Unit Examines evidence associated with
    bombings, including the identification and function of the components used
    in the construction of the explosive device. The unit also performs
    chemical analysis to help identify the type of explosive used in the
    device.

    FBI, Laboratory Division Firearms Unit Examines evidence related to
    firearm and ammunition components. The division also provides support with
    investigations involving the collection, preservation, and processing of
    evidence at crime scenes. If needed, the unit can serve as a liaison with
    international forensic laboratories.

    FBI, Laboratory Division, Evidence Response Team FBI Special Agents who
    specialize in conducting major evidence Enforcement Services recovery
    operations. The unit is the laboratory representative to the

    Critical Incident Response Group. The unit responds to crisis situations
    and coordinates the mobilization of the Emergency Response Team. FBI,
    Enforcement Services,

    Critical Incident Response This group facilities the rapid response to and
    the management Critical Incident Response

    Group of crisis incidents. The group deploys investigative specialists to
    Group

    respond to terrorist activities, hostage taking, child abductions, and
    other high- risk repetitive violent crimes.

    FBI, Enforcement Services, Crisis Negotiation Unit Maintains an immediate
    operational response capability to conduct and Critical Incident Response

    manage on- scene negotiations during any significant crisis event in Group
    which the FBI is involved. The unit deploys overseas to assist in the
    management of kidnapping situations involving U. S. citizens.

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    Department of Justice office or bureau Program or activity Description of
    program or activity

    FBI, Enforcement Services, Crisis Management Unit Operationally supports
    FBI field and headquarters entities during critical Critical Incident
    Response

    incident or major investigations. The unit conducts crisis management
    Group

    training and related activities for the FBI, and other international,
    federal, state, and local agencies or department. It also conducts several
    regional field- training exercises each year. FBI, Enforcement Services,

    Rapid Deployment Logistics Coordinates administrative and logistical
    matters for deploying the Rapid Critical Incident Response

    Unit Deployment Team. The unit also coordinates military and commercial
    Group airlift deployment requirements for the Crisis Incident Response
    Group and other FBI entities. In addition, it coordinates all Rapid Start
    Information Management System matters in support of major investigations
    and operations.

    FBI Rapid Deployment Team Provides the capability to deploy large numbers
    of personnel to crime scenes in nations that are receptive to ongoing
    joint investigations. The team enables the FBI to arrive on the scene with
    pre- constituted investigative, administrative, and logistical support
    elements needed to conduct a major investigation. The teams are designed
    to be fully deployed in response to bombings of U. S. interests and are
    augmented by a cadre of special agent bomb technicians. Evidence Response
    Teams and security specialists also join the team.

    FBI, Enforcement Services, Hostage Rescue Team Conducts rescues of U. S.
    persons and others held illegally by a hostile Critical Incident Response

    force, either terrorist or criminal in nature. The team is capable of
    Group

    performing other law enforcement activities related to dive searches,
    hurricane relief operations, dignitary protection missions, and tactical
    surveys. And, on occasion, the team pre- positions itself in support of
    special security events.

    FBI, Enforcement Services, Hazardous Materials

    Provides the capability to safely and effectively respond to incidents
    Laboratory Division Response Unit involving the use of hazardous
    materials. The unit also develops

    technical proficiency and readiness procedures for crime scene and
    evidence- related operations.

    Bureau of Alcohol, Tobacco, International Incident

    Responds with investigative assistance and laboratory support to assist
    Firearms and Explosives Response Team foreign law enforcement authorities
    and governments in responding to

    explosives and fire incidents. The response team was created in 1993 with
    the Department of State as a result of the 1993 bombing of the U. S.
    Embassy in Buenos Aires, Argentina. The response team is in a constant
    state of readiness. Since 1993, it has been deployed 22 times. Source:
    Departments of State, Defense, Justice, and the Treasury.

    a The response to a terrorist incident involves managing the immediate
    crisis as well as its consequences. *Crisis management* involves efforts
    to prevent and deter a terrorist attack, protect public health and safety,
    arrest terrorists, and gather evidence for criminal prosecution.
    *Consequences management* involves efforts to provide medical treatment
    and emergency services, evacuate people from dangerous areas, and restore
    government services.

    Matrix of Department of State Programs and

    Appendi V I x Activities to Combat Terrorism Overseas The Department of
    State is the lead federal agency for coordinating U. S. government efforts
    to combat terrorism overseas. Within the department, multiple bureaus and
    offices manage various programs and activities to combat terrorism abroad.
    State also works with other U. S. government agencies, foreign government
    agencies, and international organizations in carrying out these programs
    and activities. Some of these activities directed at combating terrorism
    overseas (e. g., coordination) may actually occur in the United States.

    Appendix IV identifies and describes the following:  the strategic
    framework of State*s efforts to combat terrorism overseas;  State*s
    programs and activities to detect and prevent terrorism overseas;
    State*s programs and activities to disrupt and destroy terrorist

    organizations overseas; and  State*s programs and activities to respond
    to terrorist incidents

    overseas.

    Table 13: Department of State Programs and Activities to Combat Terrorism
    Overseas Department of State 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 The Secretary of
    State is responsible for the coordination of all U. S. lead U. S. agency
    for civilian departments and agencies that provide counterterrorism
    counterterrorism activities

    assistance overseas. The Secretary also is responsible for the abroad

    management of all U. S. bilateral and multilateral relationships intended
    to promote activities to combat terrorism abroad.

    Since the September 11, 2001, terrorist attacks on the United States, the
    Office of the Secretary has made its counterterrorism activities a top
    priority. The Office helps manage the U. S. *war on terrorism* by (1)
    building the global coalition against terrorism; (2) building diplomatic

    support for military operations in Afghanistan and other countries; (3)
    helping coordinate intelligence to detect terrorist networks; (4) imposing
    economic sanctions to reduce terrorist financing; (5) supporting
    international law enforcement efforts to identify, arrest, and bring
    terrorists to justice; and (6) leading multinational efforts through the
    United Nations (UN) and other organizations to reduce the terrorist
    threat.

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    Department of State office or bureau Program or activity Description of
    program or activity

    Special agency official or office in charge of counterterrorism

    Office of the Coordinator for Coordinates all State

    Coordinates U. S. overseas counterterrorism policy and response to
    Counterterrorism Department counterterrorism

    international terrorist incidents that take place outside of U. S.
    territory. activities and leads U. S. government efforts to improve
    Engages in bilateral, multilateral, and public diplomacy to deter
    terrorism

    counterterrorism cooperation through a policy of making no concessions to
    terrorists, prosecuting or

    with foreign governments extraditing international terrorists, opposing
    state- sponsored terrorism,

    and curbing terrorist resources. Provides the lead in conducting
    interagency bilateral counterterrorism consultation with about 20 foreign
    governments and participates in multilateral negotiations and meetings.

    Identifies and develops justification for the U. S. government*s biennial
    designation of foreign terrorist organizations.

    Chairs the State Department's terrorism task forces to coordinate
    responses to major international terrorist incidents, including those that
    may occur domestically. Coordinates U. S. counterterrorism research and
    development, including consultations and cooperation with selected
    countries.

    Each U. S. ambassador Responsible for the full array See below for
    descriptions of counterterrorism activities at U. S. missions. of
    counterterrorism activities at each U. S. mission

    Agency plans or strategies to combat terrorism

    Office of the Secretary State Department*s Annual The State Department*s
    2002 Annual Performance Plan highlights its Performance Plan
    counterterrorism objective to *reduce international terrorist incidents,
    especially against the United States.* Key goals are to (1) reduce the
    number of attacks, (2) bring terrorists to justice, (3) reduce or
    eliminate

    state- sponsored terrorist acts, (4) delegitimize the use of terror as a
    political tool, (5) enhance the international response, and (6) strengthen
    international cooperation and operational capabilities to counter
    terrorism.

    U. S. embassies Mission Performance Plan Lists each embassy*s priorities
    and includes implementation and (ambassador) budgeting plans. If
    counterterrorism activities are an embassy priority,

    then the plan should include specific goals and actions to counter the
    threat.

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    Department of State office or bureau Program or activity Description of
    program or activity

    DETECT AND PREVENT TERRORISM ABROAD Military security assistance

    Bureau of Political- Military Regional security and arms Supports the war
    on terrorism and Operation Enduring Freedom with Affairs controls to
    enhance regional

    security assistance programs such as (1) foreign military financing,
    stability

    (2) foreign military sales, (3) International Military Education and
    Training, and (4) peacekeeping operations. For Operation Enduring Freedom,
    Political- Military Affairs stated that arms transfers and security
    assistance policies have enhanced

    cooperation with the states of the region and influenced operations in
    Afghanistan. For example, arms transfers helped enhance security
    cooperation with such key U. S. strategic partners as Egypt, Saudi Arabia,
    Bahrain, and the United Arab Emirates.

    Embassy security

    Bureau of Diplomatic Responsible for providing a

    Manages a broad range of programs to create and maintain the Security
    secure environment for the highest appropriate levels of security possible
    for more than 50, 000 conduct of American

    U. S. government personnel, staff, and dependents who work and live at
    diplomacy worldwide

    260 embassies, consulates, and other missions overseas. Diplomatic
    Security can dispatch its teams to threatened overseas missions.
    Diplomatic Security activities include protection of the Secretary of
    State and other high- level U. S. government officials on official
    government business abroad. At each U. S. mission, the regional security
    officer is responsible for implementing the Bureau*s security measures and
    coordinating protection with host government authorities.

    Diplomatic Security Review of standards and risk Develops, evaluates, and
    applies security standards for a broad range of management categories.
    These include (1) physical protection for office and residential

    buildings, (2) access to communication equipment, (3) intrusion detection
    devices, (4) secure conference rooms, and (5) armored vehicles. These
    standards are intended to allow Diplomatic Security to identify and
    address threats posed by terrorism, political violence, human
    intelligence, and technical intelligence penetration of facilities.
    Diplomatic Security uses these elements to target resource allocations to
    identified threats at each mission or location. Diplomatic Security is
    required to provide to the Congress each year a ranking of the U. S.
    missions abroad most vulnerable to terrorist attack. These standards also
    help target additional security funding to the highest threat missions, as
    in the case of Emergency Security Supplemental and Worldwide Security
    Upgrade

    funds to meet the most pressing security needs. Bureau of Overseas

    Embassy construction Replaces State Department*s less secure facilities on
    an accelerated Buildings Operations program basis with new, secure
    embassies and consulates. State has a 6- year Long- Range Overseas
    Buildings Plan, which includes both new construction and the major
    renovation and rehabilitation of existing facilities.

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    Department of State office or bureau Program or activity Description of
    program or activity

    Diplomatic Security Embassy construction Participates with Overseas
    Buildings Operations in developing embassy program 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. Diplomatic Security and

    Worldwide Security Upgrade Provides a physically secure environment for
    all U. S. government Overseas Buildings

    Program personnel under the jurisdiction of the Chief of Mission.
    Diplomatic Operations

    Security, through the physical security program, strengthens building
    exteriors, lobby entrances, and the walls and fences around embassies and
    consulates. Inside an embassy or consulate, closed- circuit television
    monitors, explosive- detection devices, walk- through metal detectors, and
    hard- line walls and security doors provide protection. Diplomatic
    Security and Overseas Buildings Operations have joint responsibility for
    this program.

    Diplomatic Security 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. Diplomatic Security Overseas
    Protection of Implements a comprehensive set of information protection
    programs.

    Information 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.

    Diplomatic Security Surveillance Detection Utilizes plainclothes security
    agents to provide surveillance detection Program 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.

    Diplomatic Security 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.

    Diplomatic Security 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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    Department of State office or bureau Program or activity Description of
    program or activity

    Diplomatic Security Security Liaison Officers Provides Security Officers
    to selected DOD Unified Commands (U. S. Central Command, MacDill Air Force
    Base, Florida; U. S. European Command, Stuttgart- Vaihingen, Germany; and
    U. S. Pacific Command, Camp H. M. Smith, Hawaii). These officers
    coordinate with the commands on theater threat assessments, contingency
    planning, and implementation of Department of State and Department of
    Defense

    (DOD) agreements on overseas security support.

    Warnings to and information- sharing with Americans abroad

    Bureau of Consular Affairs Travel warnings, public Ensures that important
    threat warnings and security information reach announcements, and

    U. S. citizens and assets abroad in a timely and effective manner.
    Consular Information Sheets

    In 2001, Consular Affairs issued 64 travel warnings, 134 public
    announcements, and 189 Consular Information Sheets. Consular Affairs*
    Internet Web site received 117.9 million inquiries, 30.7 million more than
    in fiscal year 2000. According to Consular Affairs data, 90 percent of the
    users found the information helpful. Consular Affairs also held 69
    briefings for stakeholder groups, including international student program
    participants, travel agents, and others.

    Consular Affairs Warden system for notifying Notifies Americans who have
    registered with the U. S. embassy or registered Americans of

    consulate of potential terrorist threats. Warden networks consist of
    threats

    telephone- calling trees, e- mails, fax systems, and other systems, as
    appropriate. The warden system covers both U. S. embassy and consulate
    personnel and other registered Americans. The system usually works by
    alerting major employers or compounds with high concentrations of
    Americans. It is used for a variety of communications purposes, from
    passing out voter information to notifying wardens and their wards of U.
    S. embassy evacuations.

    Diplomatic Security Overseas Security Advisory Provides security support
    to U. S. businesses and private- sector Council organizations worldwide
    through Overseas Security Advisory Councils.

    A joint effort between State and the private sector, Overseas Security
    Advisory Councils foster the exchange of security and threat information
    and implementation of security programs and provides a forum to address
    security concerns. Regional security officers coordinate with Overseas
    Security Advisory Council headquarters to set up, develop, and maintain
    councils in country. Overseas Security Advisory Councils

    coordinate with U. S. embassies and are active in 47 countries.

    Law enforcement training (with foreign governments)

    Diplomatic Security Antiterrorism Assistance Provides training to approved
    foreign national participants in five areas: law enforcement, protection
    of national leadership, control of borders, protection of critical
    infrastructure, and crisis management. Antiterrorism

    Assistance has trained 28, 000 foreign national participants from 124
    countries since its inception. Diplomatic Security Antiterrorism
    Assistance*s Antiterrorism Assistance proposes to build the Center for
    Antiterrorism proposed Center for

    and Security Training, a consolidated facility for training in various
    Antiterrorism and Security

    antiterrorism disciplines. Training

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    Department of State office or bureau Program or activity Description of
    program or activity

    Diplomatic Security Antiterrorism Assistance*s Provides quick in- country
    training to allied nations. Mobile Emergency Training Team

    Bureau for International International Law

    Provides law enforcement to foreign governments. International Narcotics
    Narcotics and Law

    Enforcement Academy and Law Enforcement Affairs manages the U. S.
    government*s Enforcement Affairs interagency regional International Law
    Enforcement Academies (Budapest, Hungary; Bangkok, Thailand; Gaborone,
    Botswana; and Roswell, New Mexico), in conjunction with the Departments of
    the Treasury and Justice, including the FBI. In fiscal year 2003,
    International Narcotics and Law Enforcement Affairs is scheduled to
    provide law enforcement training to 12,000 officials, doubling the number
    trained in fiscal year 2001.

    International Narcotics and Law enforcement and police Provides training
    and technical assistance to foreign law enforcement Law Enforcement
    Affairs science personnel to combat crime and advance U. S. interests in
    international

    counterterrorism cooperation. Law enforcement and police science training
    is managed and funded by International Narcotics and Law Enforcement
    Affairs and carried out by the Departments of Justice and the Treasury,
    among other federal agencies. The International Criminal Investigative
    Training Assistance Program (ICITAP) and the Office of Overseas
    Prosecutorial Development and Training are examples of these types of
    programs.

    Office of the Coordinator for Countering terrorist financing Provides,
    with the Departments of Justice and the Treasury, training and
    Counterterrorism and

    assistance to foreign governments to strengthen their financial and
    International Narcotics and

    regulatory regimes to reduce terrorist financing. Law Enforcement Affairs

    Border security (including visa processing issues)

    Consular Affairs Visas Processes applications for visas from foreign
    citizens who wish to visit the United States. Consular Affairs is to
    facilitate travel for those eligible to receive visas and to deny visas to
    those who are ineligible. A visa enables

    a person to apply at a port of entry to enter the United States, but it
    does not guarantee that a person will be able to enter the United States.

    Consular Affairs Consular Consolidated Supports the antiterrorist task
    forces since September 11, 2001. In fiscal Database (visa data, including
    year 2002, Consular Affairs performed numerous searches of visa
    photographs)

    records and photographs at the request of federal law enforcement task
    forces investigating the terrorist attacks. In addition, Passport Services
    provided law enforcement with 305 records. Consular Affairs used facial
    recognition software to compare the photographs on the visa applications
    of the September 11 hijackers in the database against other visa
    photographs. According to State, the review found no evidence that

    the hijackers had applied for visas using different names. Bureau of
    Intelligence and

    TIPOFF program Manages the TIPOFF program, a database of sensitive
    intelligence Research and law enforcement information contributed by the
    Central Intelligence

    Agency (CIA), National Security Agency, and the FBI. TIPOFF contains
    information on some 68, 000 suspected terrorists and international
    organized crime figures. TIPOFF alerts consular officers at U. S.
    embassies and INS officers at ports of entry when potential

    terrorists try to enter the United States.

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    Department of State office or bureau Program or activity Description of
    program or activity

    Consular Affairs/ Visa TIPOFF to impede terrorist Uses TIPOFF in the visa
    program to identify and stop potential terrorists Services entry into the
    United States trying to enter the United States. In fiscal year 2001,
    Consular Affairs

    indicated that there had been 178 TIPOFF matches for visa applicants; of
    those, 81 were denied, 14 abandoned their applications, and 4 withdrew
    their applications. TIPOFF, used by the INS, yielded 86 matches from the
    terrorism database at ports of entry in fiscal year 2001. Of these, 38 of

    the individuals were denied entry, and 1 was arrested. Diplomatic Security
    Investigation of visa and

    Impedes terrorist entry into the United States. Diplomatic Security
    passport fraud investigates more than 3,500 passport and visa fraud cases
    annually,

    resulting in more than 500 arrests each year. A number of suspects have
    been linked to terrorism. Diplomatic Security has 450 special agents in
    over 160 countries and approximately 700 special agents assigned
    throughout the United States. Office of the Coordinator for

    Terrorist Interdiction Program Enhances border security by providing
    participating foreign governments Counterterrorism with a computerized
    database that allows border control officials to identify and detain or
    track individuals of interest. The Terrorist

    Interdiction Program currently is installed in 2 foreign countries, with
    another 60 countries under consideration. The Program is scheduled to be
    installed in up to five new countries per year.

    Office of the Inspector Investigation of visa and

    Conducts visa and passport investigations. The Office of the Inspector
    General passport fraud General conducted several joint investigations with
    the INS in fiscal year

    2001. In one case, the Office found that defendants took in $21 million by
    defrauding the visa program.

    Public Diplomacy

    Office of International Build international support for

    Influence international opinion in support of U. S. foreign policy
    objectives. Information Programs U. S. foreign policy Since the September
    11, 2001, terrorist attacks, the Office of

    International Information Programs has encouraged international support
    for the war on terrorism. For example, its initiatives have generated over
    240 newspaper, 100 radio, and 150 television interviews, and over 300
    opinion- editorial articles in newspapers either signed or prepared for
    ambassadors. Almost 60 U. S. speakers have traveled abroad on Office of
    International Information Programs- funded programs addressing September
    11- related issues. U. S. embassies have sponsored over

    100 panel discussions and over 220 speeches on the issue. In addition,
    Network of Terrorism, an Office of International Information Programs-
    produced print and electronic pamphlet, is available in 36 languages, and
    1.3 million print copies are in circulation.

    DISRUPT AND DESTROY TERRORIST ORGANIZATIONS ABROAD Military operations

    Political- Military Affairs State*s primary liaison with the Facilitates
    Defense- State actions concerning military operations. Department of
    Defense

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    Department of State office or bureau Program or activity Description of
    program or activity

    Political- Military Affairs Supporting U. S. military war Assists in
    developing and maintaining the global military coalition against on
    terrorism 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, PoliticalMilitary
    Affairs processed 120 deployment orders and 72 requests for coalition
    forces in support of Operation Enduring Freedom in Afghanistan.

    Political- Military Affairs Political Advisor to U. S. Political- Military
    Affairs provides personnel to DOD and the principal regional military
    commands military commands to improve cooperation between State and the U.
    S. military. For example, the Political Advisor at the U. S. Central
    Command

    provides liaison services between State, the command, and the
    representatives of the 31 nations located at U. S. Central Command
    headquarters that provide assets for Operation Enduring Freedom.

    International relations

    Office of the Secretary Worldwide diplomatic support Received offers of
    military assistance for the war on terrorism from for war on terrorism and

    136 countries. Operation Enduring Freedom

    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. U.
    S. embassies Bilateral diplomatic support for

    Implements the above activities of the Office of the Secretary, in support
    (ambassador) war on terrorism and of the war on terrorism and Operation
    Enduring Freedom.

    Operation Enduring Freedom

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    Department of State office or bureau Program or activity Description of
    program or activity

    Bureau of International Works with international Develops and implements
    U. S. counterterrorism policy in the UN and Organization Affairs
    organizations on other international organizations, serving as State*s
    primary liaison. counterterrorism issues

    Helped craft and aided in the adoption of United Nations Security Council
    Resolution (UNSCR) 1373, obligating all member nations to fight terrorism
    and report to the Security Council on their counterterrorism efforts.

    Assisted in the creation of a UN Counterterrorism Committee to oversee the
    implementation of UNSCR 1373. Through bilateral and multilateral efforts,
    International Organization Affairs encourages all nations to comply with
    UNSCR 1373 and has offered the services of the U. S. government to other
    nations to aid in their compliance.

    Assisted with resolutions extending UN sanctions on (1) al Qaeda and the
    Taliban, (2) Iraq (including gaining passage of new *smart sanctions*),
    (3) Libya, and (4) certain African regimes, including those whose
    activities benefit terrorists.

    Assisted in the lifting of UN sanctions on Sudan, which has cooperated
    with the international community and the United States in its war on
    terrorism.

    Aided in the UN International Atomic Energy Association*s reevaluation of
    its response to the threat of nuclear terrorism. Assisted in the UN
    International Civil Aviation Organization*s passing an antiterrorism
    resolution. Office of the Coordinator for

    Reduce the flow of money and Blocks terrorism- related financing. The
    Office of the Coordinator for Counterterrorism,

    other material support to Counterterrorism, with the concurrence of the
    Departments of Justice International Narcotics and

    terrorists. and the Treasury, designates foreign terrorist organizations,
    individuals, Law Enforcement Affairs, and and groups for a variety of
    purposes, including to block terrorism- related the Economic Bureau, in
    financing. The Economic Bureau is responsible for leading the effort to
    coordination with the build international coalition support to also block
    these assets. According Department of the Treasury

    to State, since September 11, 2001, the United States has blocked and
    other agencies $34.3 million in terrorist- related assets.

    Office of the Legal Adviser Negotiates international Pursues extradition
    and mutual legal assistance treaties with foreign agreements governments
    and works with the UN and with other nations in drafting multilateral
    agreements, treaties, and conventions on counterterrorism. Office of the
    Legal Adviser Works with Department of

    Works closely with the Department of Justice*s Office of International
    Justice on international law

    Affairs on specific cases and on building consensus on broad enforcement
    issues international counterterrorism and crime issues.

    Office of the Legal Adviser Drafts U. S. counterterrorism The Office of
    the Legal Adviser works with the Office of the Coordinator related
    legislation for Counterterrorism, the Economic Bureau, and the Department
    of Justice when U. S. legislation is needed to combat terrorism abroad.

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    Department of State office or bureau Program or activity Description of
    program or activity

    Law enforcement

    Diplomatic Security and Law enforcement cooperation Cooperates with local
    intelligence, security, and law enforcement entities Regional Security
    Officer to track and capture terrorists in country and to block attempted
    terrorist

    attacks on U. S. citizens and U. S. assets abroad. Diplomatic Security
    Investigations of terrorist

    Conducts investigations of terrorist incidents involving U. S. diplomatic
    incidents personnel and other persons under its protection. These
    investigations are conducted for the purpose of preventing or deterring
    future incidents. Diplomatic Security supports the FBI in its extra-
    territorial investigations into the criminal prosecution of the
    perpetrators.

    Office of the Coordinator for Coordinates State*s role in Captures
    suspected terrorists overseas. In cases where the United Counterterrorism
    negotiating and conducting

    States lacks an extradition treaty, the U. S. government can capture
    renditions

    suspected terrorists through an overseas arrest called a rendition. The
    Office of the Coordinator for Counterterrorism, in conjunction with the
    Office of the Legal Adviser, the Department of Justice, and other
    agencies, would coordinate State*s role in negotiating and conducting
    these arrests. Since 1987, there have been 11 reported renditions.

    Diplomatic Security 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. In the past 7
    years, the United States has paid over $9. 5 million to 23 individuals who
    provided credible information leading to the arrest of international
    terrorists.

    Intelligence on terrorist groups and threat assessments

    Intelligence and Research Intelligence support for Prepares intelligence
    reports for the Secretary of State, department Secretary of State and for
    U. S. officials, and ambassadors at U. S. missions. Monitors
    governmentwide missions

    intelligence activities to ensure their compatibility with U. S.
    counterterrorism foreign policy objectives. Seeks to expand interagency
    data sharing on known terrorist suspects. Intelligence and Research
    Intelligence assessments and Conducted the first public opinion survey
    inside Taliban- controlled policy guidance Afghanistan to determine public
    reaction to the Taliban government.

    Results were used in U. S. counterterrorism briefings to State, the NSC,
    the CIA, DOD, and U. S. Central Command officials. Conducted *flash
    surveys* immediately after September 11, 2001, in Syria, Jordan, Lebanon,
    the United Arab Emirates, Saudi Arabia, Kuwait, and the Palestinian
    Authority to gauge Arab public reaction to the attacks on the United
    States and public perceptions of Osama bin Laden for use in policy
    formulation.

    Intelligence and Research Electronic Read- and- Burn Provides intelligence
    products, especially threat information, to chiefs of Pilot Project
    mission who could not previously receive this type of highly classified

    material.

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    Department of State office or bureau Program or activity Description of
    program or activity

    Office of the Coordinator for Studies terrorist groups

    Publishes an unclassified report called Patterns of Global Terrorism, as

    Counterterrorism worldwide called for under 22, U. S. C. S: 2656f (a).

    Diplomatic Security Publishes annual security The annual reports,
    Significant Incidents of Political Violence against

    reports 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.

    Diplomatic Security and Threat and intelligence

    Interacts with police and intelligence contacts in other countries. A
    Regional Security Officer assessments mission*s regional security officer
    often is the first to recognize, through

    investigative work, possible terrorist activities. Diplomatic Security
    agents frequently are requested to follow up on leads for other law
    enforcement agencies not represented at the mission. Intelligence
    information sharing (with foreign governments) Diplomatic Security and

    Information sharing and Cooperates with foreign governments and their law
    enforcement and Regional Security Officer cooperation with host country

    security forces in sharing threat and security information. governments

    Conducts extensive liaison with foreign police and security and
    intelligence services, which allows regional security officers to assist
    other U. S. government law enforcement agencies. Such activities include
    criminal record checks, tracing fugitives, interviewing informants and
    suspects, and processing extradition requests.

    RESPOND TO TERRORIST INCIDENTS ABROAD Crisis and consequence management
    domestic and abroad a

    Office of the Coordinator for Headquarters leadership of Serves as the
    lead for crisis and consequence management in directing Counterterrorism
    the U. S. government response

    the U. S. government response to a terrorist incident overseas. The Office
    to a terrorist incident overseas

    of the Coordinator for Counterterrorism would lead a task force and work
    through the State Department Operations Center (discussed below). State
    Department

    Headquarters task force for State*s Operations Center maintains a 24- hour
    global watch and crisis Operations Center coordinating the U. S.
    management support staff. The watch is the initial point of contact for
    government response to a

    posts experiencing emergency crises, including terrorist attacks. In a
    terrorist incident overseas

    crisis, the Operations Center would establish a 24- hour task force to
    coordinate the flow of communications and instructions between the
    Department of State, other involved agencies, overseas posts, and foreign
    governments. This task force would be led by the Office of the Coordinator
    for Counterterrorism and, in addition to relevant State

    Department bureaus, may include other U. S. government agencies with
    action responsibilities.

    U. S. embassies Serves as the U. S. In a given country, the ambassador
    would act as the on- scene (ambassador) government on- scene coordinator
    in a terrorist incident. The ambassador would lead the coordinator for
    terrorist

    Emergency Action Committee to manage the response. The ambassador
    incidents overseas

    could request a Foreign Emergency Support Team (discussed below) for
    assistance and to help coordinate the U. S. government*s interagency
    response.

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    Department of State office or bureau Program or activity Description of
    program or activity

    Office of the Coordinator for Foreign Emergency Support

    In coordination with the NSC, the Office of the Coordinator for
    Counterterrorism Team to provide on- scene

    Counterterrorism would lead an interagency Foreign Emergency Support
    support Team to assist the ambassador and host government to manage a
    terrorist incident. The team is advisory and will not enter the host
    country unless requested by the ambassador, with the host government*s
    permission. The team provides the ambassador a single point of contact

    to coordinate all U. S. government on- scene support during a terrorist
    incident. Each team is tailored to the specific incident and can provide
    guidance on terrorist policy and incident management, dedicated secure
    communications, and special expertise.

    Diplomatic Security Special Diplomatic Security Deploys its Mobile Support
    Teams and Security Support Teams to teams to assist and

    respond to increased threats or critical security needs at U. S. missions
    in investigate crisis situations crisis, including providing special
    training or draw down/ evacuation assistance. These teams provide
    supplemental support to regional security officers and stand ready for
    immediate deployment to any U. S. mission where conditions require the
    reestablishment of a secure environment.

    Political- Military Affairs Consequence Serves as the lead for consequence
    management in directing the U. S. management; Consequence government
    response to a terrorist incident outside of U. S. territory. The
    Management Support Team

    U. S. government provides assistance overseas when a U. S. ambassador has
    determined that the host government is unable to cope with a problem, when
    the host government seeks U. S. assistance, and when it is in the U. S.
    interest to provide such assistance.

    Provides a standing Consequence Management Support Team designed to help
    manage the consequence of a WMD emergency overseas. The multi- agency team
    is tailored to manage the specific emergency situation or conditions of
    the host nation. The team coordinates and facilitates the flow of critical
    requirements and information necessary to respond, advise, and assist
    foreign government and U. S. decision makers. The team would deploy as an
    integral part of FEST operations and would take the lead for the
    consequence management response.

    Overseas Buildings Emergency Response Team Helps secure embassy grounds
    and restore communications following a Operations crisis. Consular Affairs
    Medical needs Assists American victims with medical needs. Also, assists
    in the process

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

    Consular Affairs Liaison with U. S. citizens Provides assistance for
    Americans stranded overseas by the closure of under duress U. S. air
    space. Consular Affairs Liaison with foreign nationals

    Provided assistance to New York City officials handling the deaths of in
    the United States 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.

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    Department of State office or bureau Program or activity Description of
    program or activity

    Planning and exercises at headquarters and abroad

    Office of the Coordinator for Counterterrorism Security Manages the
    interagency exercise program for combating terrorism Counterterrorism
    Group, Exercise and

    overseas and coordinates these exercises with other departments. The
    Readiness Subgroup

    exercise program is designed to strengthen the U. S. government*s ability
    to deal with terrorist attacks.

    Office of the Coordinator for International Senior Officials

    Conducts Senior Policy Workshops with friendly foreign governments.
    Counterterrorism Workshops These workshops are generally tabletop
    simulations with no actual physical deployment of troops. Coordinates
    training programs to help other countries develop and coordinate responses
    to a WMD event.

    Political- Military Affairs 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.

    Political- Military Affairs Consequence management Sponsors consequence
    management exercises, in conjunction with other exercises 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.

    Diplomatic Security Emergency Planning Serves as a consolidated source of
    guidance for overseas missions on Handbook 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 Every foreign service mission is required to have an
    Emergency Action

    Committee. In organizing for emergency action, the Chief of Mission
    establishes a committee and designates personnel responsible for specific
    crisis- related functions. The Emergency Action Committee is responsible
    for developing and testing the mission*s Emergency Action Plan.

    U. S. embassies Emergency Action Plan Every foreign service mission
    requires an Emergency Action Plan, which is written by members of the
    Emergency Action Committee and provides mission- specific procedures for
    responding to terrorist and other crises. The plan translates worldwide
    guidance for dealing with emergencies into a mission- specific action
    plan.

    Foreign Service Institute Emergency Action Committee Trains Emergency
    Action Committee members in their emergency action exercises plan using
    various scenarios. Exercises are designed to expose mission officials to
    issues of decision- making, contingency planning, implementation of plans,
    and interpretation and coordination of policy.

    Deputy Chief of Mission and Emergency Action Committee/

    Tests its Emergency Action Plan to prepare for management of crises,
    Regional Security Officer Emergency Action Plan including terrorist
    attacks. The Emergency Action Committee at each

    exercises mission is responsible for periodic drills, including their
    preparation, execution, and evaluation.

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    Department of State office or bureau Program or activity Description of
    program or activity

    U. S. embassies Plans and coordinates The Secretary of State is
    responsible for the protection and evacuation of (ambassador) evacuations
    and military

    U. S. citizens. In a crisis such as a terrorist incident, an ambassador
    can noncombatant evacuation order the evacuation of U. S. government
    personnel and dependents. The operations

    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.

    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.

    Overseas Buildings Alternate operations centers Maintains an alternate
    operations center for its headquarters operations 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 Point of contact during any

    Serves as the point of contact for any post- incident law enforcement
    (ambassador) investigation investigation. The ambassador would serve as
    the official liaison between

    the host country government and the U. S. government investigation.
    Source: Departments of State, Defense, Justice, and the Treasury.

    a The response to a terrorist incident involves managing the immediate
    crisis as well as its consequences. *Crisis management* involves efforts
    to prevent and deter a terrorist attack, protect public health and safety,
    arrest terrorists, and gather evidence for criminal prosecution.
    *Consequences management* involves efforts to provide medical treatment
    and emergency services, evacuate people from dangerous areas, and restore
    government services.

    Matrix of Department of the Treasury Programs and Activities to Combat
    Terrorism

    Appendi V x Overseas The Department of the Treasury supports the
    Department of State, which is the lead federal agency for coordinating U.
    S. government efforts to combat terrorism overseas. Within the department,
    multiple bureaus, offices, and agencies manage various programs and
    activities to combat terrorism abroad. The Treasury also works with other
    U. S. government agencies,

    foreign government organizations and agencies, and international
    organizations in carrying out these programs and activities. While these
    activities are generally directed at combating terrorism overseas, some of
    the activities (e. g., coordination) may actually occur in the United
    States.

    Appendix V identifies and describes:  the strategic framework of the
    Treasury*s efforts to combat terrorism

    overseas;  Treasury*s programs and activities to detect and prevent
    terrorism overseas;

     Treasury*s programs and activities to disrupt and destroy terrorist
    organizations overseas; and

     Treasury*s programs and activities to respond to terrorist incidents
    overseas.

    Tabl e 14: Department of the Treasury Programs and Activities to Combat
    Terrorism Overseas Department of the Treasury office or bureau Program or
    activity Description of program or activity

    STRATEGIC FRAMEWORK Agency head*s role in counterterrorism

    Office of the Secretary of the The Secretary of the The Secretary of the
    Treasury plays a critical role in policy- making by Tr ea s ur y Treasury
    is the principal bringing an economic and government financial policy
    perspective to economic advisor to the

    issues facing the government. Among other duties, the Secretary is
    President

    responsible for overseeing the department*s activities in carrying out its
    major law enforcement responsibilities, including (1) preventing money
    laundering, (2) disrupting and dismantling terrorist organizations*
    financial support, and (3) investigating and freezing terrorists*
    financial assets.

    The Secretary also has a support role to the Department of State during a
    terrorist incident overseas.

    (Continued From Previous Page)

    Department of the Treasury office or bureau Program or activity
    Description of program or activity

    Special agency official or office in charge of counterterrorism Agency
    plans or strategies to combat terrorism

    Department of the Treasury National Money Laundering

    The strategy includes, for the first time, a comprehensive national plan
    to

    Strategy, jointly issued by the attack the financing of terrorist groups.
    Goal 2 of the National Money

    Secretary of the Treasury Laundering Strategy focuses law enforcement and
    regulatory resources on and the Attorney General in identifying terrorist
    financing networks by (1) implementing a multi- pronged July 2002

    operational strategy to combat terrorist financing, (2) identifying and
    targeting the methods used by terrorists financiers, and (3) improving
    international efforts to dismantle terrorist financial networks. The
    strategy is

    an interagency plan that draws on the expertise and resources of the
    Departments of the Treasury and Justice, and other federal agencies as
    well as foreign partners and the private sector.

    DETECT AND PREVENT TERRORISM ABROAD Diplomacy

    Treasury, Office of Maintain international The Office of International
    Affairs works bilaterally and multilaterally to build International
    Affairs coalition against terrorist

    and maintain the international coalition against terrorist finances along
    with finances

    other federal agencies, including the Departments of State and Justice,
    the Federal Bureau of Investigation (FBI), and the intelligence community.

    Treasury, Office of Financial Action Task Force Consists of an
    international group of 31 member- states, which focuses on International
    Affairs on Money Laundering terrorist financing. The task force provides
    its members with an action plan that includes eight special
    recommendations, which are viewed as a standard to address terrorist
    financing. Treasury, Office of Task Force on Terrorist

    Works with countries and monitors their efforts to track and block
    terrorists' International Affairs Financing financial assets. This task
    force, established by the Department of the

    Treasury in the wake of the terrorist attacks on September 11, 2001, is
    composed of international economists and financial analysts from the
    International Affairs and Enforcement's Office of Foreign Asset Control.
    The department enlisted support from ministries of finance and central
    banks worldwide to assist efforts to immobilize and/ or confiscate the

    financial assets of terrorist organizations and deny such organizations
    use of the international banking system.

    Treasury, Office of Financial Attaches Develop extensive contacts with
    foreign finance ministries, foreign International Affairs regulatory
    authorities, central banks and financial market participants. Financial
    Attaches explain new U. S. policies to their foreign counterparts. They
    also collect, report, interpret, and forecast macroeconomic and financial
    developments and policies in their assigned countries.

    (Continued From Previous Page)

    Department of the Treasury office or bureau Program or activity
    Description of program or activity

    Prevent undermining of economic reforms

    Treasury, Office of Office of Technical Provides specialist teams to
    countries through an advisor- based program International Affairs
    Assistance/ Enforcement

    to help prevent corruption, organized criminal enterprises, and other
    Policy and Administration

    criminal activities that were undermining Treasury*s economic reforms.
    Program

    Law enforcement training (with foreign governments) DISRUPT AND DESTROY
    TERRORIST ORGANIZATIONS ABROAD Identifying, freezing, and seizing
    terrorist organizations* assets

    Tr easury Executive Office for Terrorist This office was created in March
    2003 and assumed the main Financing and Financial

    functions of the former Office of Enforcement. The office is Crimes

    charged with coordinating Treasury Department*s efforts to combat
    terrorist financing both in the United States and abroad. The office is
    responsible for the following specific duties: (1) developing and
    implementing U. S. government strategies to combat terrorist financing
    domestically and internationally, (2) developing and implementing the
    National Money Laundering Strategy, (3) participating in the department*s
    development and implementation of U. S. government policies and
    regulations in support of the USA PATRIOT Act, (4) joining in
    representation of the United States in international bodies dedicated to
    fighting terrorist financing, and (5) developing U. S. government policies

    related to financial crimes. Tr easury Financial Crimes Supports law
    enforcement investigations to prevent and detect money

    Enforcement Network laundering and other financial crimes. FinCEN*s
    network links law enforcement, financial, and regulatory communities into
    a single information- sharing network. Using Bank Secrecy Act information
    reported by banks and other financial institutions, FinCEN serves as the
    national*s central clearinghouse for broad- based financial intelligence
    and information

    sharing on money laundering. This information helps illuminate the
    financial trail for investigators to follow as they track criminals and
    their assets.

    Through investigative analysis efforts, FinCEN provides support for the
    investigation and prosecution of law enforcement cases at the federal,
    state, local, and international levels, using financial data collected
    under the Bank Secrecy Act, as well as other commercial and law
    enforcement information. FinCEN serves as a catalyst for research,
    analysis, and dissemination of information on money laundering methods and
    trends through joint case analysis with law enforcement, integration of
    all source information, and the application of state- of- art data
    processing techniques. Internationally, FinCEN maintains in- depth,
    country- specific expertise concerning money laundering and other
    financial crimes around the world to assist decision makers in developing
    and promoting U. S. government anti- money laundering policies. FinCEN
    uses this expertise to promote the development of Financial Intelligence
    Units in other countries, which facilitate investigative exchanges.

    (Continued From Previous Page)

    Department of the Treasury office or bureau Program or activity
    Description of program or activity

    Treasury, Office of Foreign Administers Economic

    This office administers economic sanctions and embargo programs against
    Assets Control Sanctions specific foreign countries or groups (including
    designated terrorists, terrorist organizations, state sponsors and
    individuals supporting those

    organizations) to further U. S. foreign policy and national security
    objectives. The office imposes control on financial transactions and
    freezes foreign assets, denying the targeted country, individual, or
    organization.

    RESPOND TO TERRORIST INCIDENTS ABROAD Crisis and consequence management
    domestic and abroad a

    Tr ea s ur y Counter- terrorism Fund In its fiscal year 2003 budget, the
    Department of the Treasury proposed that $40 million remain available
    until expended to reimburse any federal agency for costs of responding to
    the U. S. Secret Service*s request to provide security at designated
    National Special Security Events and only be provided after notice to
    appropriate congressional committees. The proposed $40 million would (1)
    provide support to counter, investigate, or prosecute domestic or
    international terrorism, including payment of rewards in connection with
    these activities and (2) re- establish the operational capability of an
    office, facility or other property damaged or destroyed as a result of any
    domestic or international terrorist incident. Treasury bureaus have
    important counterterrorism responsibilities, including (1) protecting the
    President; (2) designing and implementing security at National Special
    Security Events; (3) investigating arson,

    explosives, and firearms incidents; (4) conducting financial
    investigations relating to terrorism; (5) preventing weapons of mass
    destruction from entering the United States; and (6) implementing
    sanctions against terrorist

    organizations. Source: Department of the Treasury.

    a The response to a terrorist incident involves managing the immediate
    crisis as well as its consequences. *Crisis management* involves efforts
    to prevent and deter a terrorist attack, protect public health and safety,
    arrest terrorists, and gather evidence for criminal prosecution.
    *Consequences management* involves efforts to provide medical treatment
    and emergency services, evacuate people from dangerous areas, and restore
    government services.

    United Nations Protocols, Conventions, and

    Appendi VI x Resolutions Related to Terrorism This appendix is a
    representative list of United Nations (UN) documents related to combating
    terrorism overseas. The Department of State works with international
    organizations, such as the United Nations, to enhance multilateral support
    to disrupt and destroy terrorists and their organizations. The United
    Nations and its member states established a broad array of resolutions and
    conventions to create a multilateral framework for combating international
    terrorism. This UN- based multilateral framework falls into three broad
    categories of documents or agreements: (1) UN conventions or protocols
    related to terrorism, (2) UN Security Council Resolutions, and (3) UN
    General Assembly Resolutions. The following conventions, protocols and
    resolutions were identified by the United Nations as related to terrorism.
    According to the Department of State, the United States is a party to all
    12 international conventions and protocols relating to terrorism.

    Table 15: UN Conventions and Protocols Related to Terrorism UN convention
    or protocol Purpose

    International Convention for the Suppression of the Financing of Commits
    member states to prevention and counteraction of the Terrorism, New York

    financing of terrorists; holds those who finance terrorists liable; and
    Dec. 9, 1999

    provides for the identification, freezing and seizure of funds for
    terrorist activities.

    International Convention for the Suppression of Terrorist Creates a regime
    of universal jurisdiction over the use of explosives Bombings, New York
    and other lethal devices. Dec. 15, 1997

    Convention on the Marking of Plastic Explosives for the Purpose Combats
    aircraft sabotage. Designed to control and limit the use of of Detection,
    Montreal

    undetectable plastic explosives. Mar. 1, 1991

    Protocol for the Suppression of Unlawful Acts Against the Safety Obligates
    member states to establish jurisdiction over unlawful acts of Fixed
    Platforms located on the Continental Shelf, Rome

    and punish offences with appropriate penalties. Mar. 10, 1988

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

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

    Convention on the Physical Protection of Nuclear Material, Criminalizes
    the unlawful possession, use, transfer, of nuclear Vienna

    material, the theft of nuclear material, and threats to use nuclear Mar.
    3, 1980

    material to cause death or serious injury.

    (Continued From Previous Page)

    UN convention or protocol Purpose

    International Convention Against the Taking of Hostages, New Defines the
    taking of hostages and requires state parties to make this York

    offense punishable by appropriate penalties. Dec. 17, 1979

    Convention on the Prevention and Punishment of Crimes Against Defines
    internationally protected persons; requires appropriate Internationally
    Protected Persons, including Diplomatic Agents,

    penalties for those who commit attacks against internationally New York

    protected persons and for those who support them. Dec. 14, 1973

    Convention for the Suppression of Unlawful Acts Against the Outlaws acts
    of violence on aircraft, placement of explosives on Safety of Civil
    Aviation, Montreal

    aircraft, and supporting those who attempt such acts. Sept. 23, 1971

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

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

    Table 16: UN Security Council Resolutions Related to Terrorism UN Security
    Council Resolution Key provisions

    1465 Condemns the bomb attack in Bogota, Colombia, on February 7, 2003.
    Also, urges all states, in accordance Feb. 13, 2003 with resolution 1373,
    to cooperate with and provide support and assistance to the Colombian
    authorities in their efforts to bring to justice the perpetrators,
    organizers, and sponsors of this terrorist attack.

    1456 Calls on states to prevent and suppress all active and passive
    support to terrorism and comply with UN Jan. 20, 2003 Security Council
    resolutions 1373, 1390, and 1455. Also, calls on states to become a party
    to all relevant international conventions and protocols relating to
    terrorism, in particular the 1999 international convention for

    the suppression of the financing of terrorism. 1455

    Calls on all states to enforce and strengthen measures, where appropriate,
    against their nationals or other Jan. 17, 2003 individuals or entities
    operating in their territory, to prevent and punish violations. Also calls
    upon states to

    submit an updated report to the Committee no later than 90 days from
    adoption of this resolution on steps being taken to implement the
    measures.

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

    extraordinary expenses. 1450

    Condemns the terrorist bomb attack at the Paradise Hotel in Kikambala,
    Kenya, and the attempted missile Dec. 13, 2002 attack on Arkia Israeli
    Airlines flight 582, departing from Mombasa, Kenya, on November 28, 2002.
    Also, urges all states in accordance with resolution 1373 to bring to
    justice the perpetrators, organizers, and sponsors of these terrorist
    attacks.

    1440 Condemns the act of taking hostages in Moscow, Russia, on October 23,
    2002. Also, urges all states, in Oct. 24, 2002 accordance with resolution
    1373, to cooperate with the Russian authorities in their efforts to find
    and bring to justice the perpetrators, organizers, and sponsors of this
    terrorist attack.

    (Continued From Previous Page)

    UN Security Council Resolution Key provisions

    1438 Condemns the bomb attacks in Bali, Indonesia, on October 12, 2002.
    Also, urges all states, in accordance with Oct. 14, 2002 resolution 1373
    to cooperate with and provide support and assistance to the Indonesian
    authorities in their

    efforts to find and bring to justice the perpetrators, organizers, and
    sponsors of these terrorist attacks. 1390

    Calls on member states to continue sanctions against the Taliban, Osama
    bin Laden, and al Qaeda. Requires Jan. 16, 2002 states to take a number of
    steps against the two regimes, including freezing economic resources,
    preventing the supply or sale of weapons, and preventing members from
    entering or traveling through their territories. Also, directs states to
    report to the Sanctions Committee on actions taken to implement the
    sanctions.

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

    Calls on member states to work together to prevent and suppress terrorist
    acts, through cooperation and Sept. 28, 2001 implementation of the
    international conventions relating to terrorism. Also, obligates states to
    prevent and

    suppress the financing of terrorist acts and to freeze funds and other
    financial assets or economic resources of persons who commit or attempt to
    commit terrorist acts.

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

    1368 Calls on member states to bring to justice the perpetrators and
    sponsors of the terrorist attacks on Sept. 12, 2001 September 11, 2001.
    Also, calls on the international community to increase cooperation and
    implementation of anti- terrorist conventions and UN Security Council
    Resolutions. 1363

    Establishes a mechanism to monitor the implementation of the measures
    imposed by UN Security Council July 30, 2001 Resolutions 1267 and 1333.

    1333 Calls on member states to freeze funds and other financial assets of
    Osama bin Laden and individuals and Dec. 19, 2000 entities associated with
    him, including those in the al Qaeda organization. Also, demands that the
    Taliban comply with UN Security Council Resolution 1267 and turn over
    Osama bin Laden to authorities in a country where he has been indicted.

    1269 Calls on member states to implement the international anti- terrorist
    conventions to which they are a party and Oct. 19, 1999 encourages the
    speedy adoption of the pending conventions.

    1267 Calls on member states to freeze funds and other financial resources
    owned or controlled directly or indirectly Oct. 15, 1999 by the Taliban.

    1214 Demands that the Taliban stop providing sanctuary and training for
    international terrorists and their operations, Dec. 8, 1998 and that all
    Afghan factions cooperate with efforts to bring indicted terrorists to
    justice.

    1189 Calls on member states and international institutions to cooperate
    with and provide support to the Aug. 13, 1998 investigations in Kenya,
    Tanzania, and the United States, to apprehend the perpetrators of the
    criminal acts

    and bring them to justice. 1070

    Demands the Government of Sudan comply with UN Security Council
    Resolutions 1044 and 1054 and also Aug. 16, 1996 decides that member
    states shall deny Sudanese aircraft permission to take off, land, or over
    fly their territories. 1054 Demands the Government of Sudan extradite
    three suspects to Ethiopia who are wanted for the assassination Apr. 26,
    1996 attempt on the President of the Arab Republic of Egypt. Also demands
    the Government of Sudan desist from

    providing shelter and sanctuary to terrorist elements. 1044

    Calls upon the Government of Sudan to extradite three suspects wanted in
    the connection with assassination Jan. 31, 1996 attempt on the President
    of the Arab Republic of Egypt.

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

    undertakings.

    (Continued From Previous Page)

    UN Security Council Resolution Key provisions

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

    731 Condemns the destruction of Pan American flight 103 and urges the
    Libyan government to provide a full and Jan. 21, 1992 effective response
    to UN member states* requests to eliminate international terrorism.

    687 Recalls the International Convention Against the Taking of Hostages,
    which categorizes all hostage- taking acts Apr. 3, 1991 as manifestations
    of international terrorism.

    635 Condemns all acts of unlawful interference against the security of
    civil aviation. Calls upon all member states June, 14, 1989 to implement
    measures to prevent acts of terrorism, including those involving
    explosives. Urges the

    International Civil Aviation Organization to intensify its work on
    devising an international regime for the marking of plastic explosives for
    the purpose of detection.

    337 Condemns the Government of Israel for the forcible diversion and
    seizure of a Lebanese airline from Aug. 15, 1973 Lebanon*s air space.

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

    Source: United Nations.

    Tabl e 17: UN General Assembly Resolutions Related to Terrorism UN General
    Assembly Resolution Key provisions

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

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

    54/ 164 Recalls General Assembly Resolution 52/ 133. Commends those
    governments that supplied the Secretary Feb. 24, 2000 General with their
    views on the implications of terrorism. Welcomes the Secretary General*s
    report and requests that he continue to seek views of member states.

    54/ 110 Recalls General Assembly Resolution 53/ 108. Notes the
    establishment of the Terrorism Prevention Branch of Feb. 2, 2000 the
    Centre for International Crime Prevention in Vienna, Austria. Invites
    states to submit information on their

    national laws, regulations, or initiatives regarding terrorism to the
    Secretary General. Invites regional intergovernmental organizations to do
    likewise. Continues the previous work of the Ad Hoc Committee. 54/ 109

    Adopts the International Convention for the Suppression of the Financing
    of Terrorism and urges all states to Feb. 25, 2000 sign and ratify,
    accept, approve, or accede to the Convention. 53/ 108

    Recalls General Assembly Resolution 52/ 165. Reaffirms that actions by
    states to combat terrorism should be Jan. 26, 1999 conducted in conformity
    with the Charter of the United Nations, international law, and relevant
    conventions. Decides to address the question of convening a UN conference
    to formulate a joint response to terrorism by the international community.
    Decides the Ad Hoc Committee shall continue to elaborate on a draft
    convention for the suppression of terrorist financing and will continue
    developing a draft convention for the suppression of acts of nuclear
    terrorism.

    (Continued From Previous Page)

    UN General Assembly Resolution Key provisions

    52/ 165 Reiterates General Assembly Resolution 51/ 210. Reaffirms the
    Declaration on Measures to Eliminate

    Dec. 15, 1997 International Terrorism. Requests the Ad Hoc Committee
    established by UN General Assembly Resolution 51/ 210 continue its work.
    Requests the Secretary General to invite the International Atomic Energy
    Agency to assist the Ad Hoc Committee.

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

    forms and manifestations. 51/ 210

    Calls upon states to adopt further measures to prevent and combat
    terrorism. Some of these include: Dec. 17, 1996 accelerating research and
    development of explosive detection and marking technology; investigating
    the

    abuse of charitable, social, and cultural organizations by terrorist
    organizations; and developing mutual legal assistance procedures to
    facilitate cross- border investigations. Further calls upon states to
    become parties to relevant international anti- terrorism conventions and
    protocols. Also establishes an Ad Hoc Committee to elaborate an
    international convention for the suppression of terrorist bombings and
    acts of nuclear terrorism.

    Approves a supplement to the 1994 declaration on measures to Eliminate
    International Terrorism, which, among other things, reaffirms that asylum
    seekers may not avoid prosecution for terrorist acts and encourages states
    to facilitate terrorist extraditions even in the absence of a treaty. 50/
    186

    Recalls General Assembly Resolution 49/ 185. Requests the Secretary-
    General continue to seek the views of Dec. 22, 1995 member states on the
    possible establishment of a UN voluntary fund to aid victims of terrorism,
    as well as

    ways and means to rehabilitate and reintegrate such victims back into
    society. Requests the Secretary General submit a report to the General
    Assembly containing the views of member states on these topics.

    50/ 53 Reaffirms the Declaration on Measures to Eliminate International
    Terrorism. Urges all states to cooperate in Dec. 11, 1995 eliminating
    terrorist safe- havens and in further developing international law
    regarding terrorism. Recalls the role of the Security Council in combating
    terrorism. Requests the Secretary- General submit an annual report on the
    implementation of paragraph 10 of the declaration. 49/ 185

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

    terrorism. 49/ 60

    Approves the Declaration on Measures to Eliminate International Terrorism,
    which, among other things, Dec. 9, 1994 unequivocally condemns all acts of
    terrorism, demands that states take effective and resolute measures to
    eliminate terrorism, and charges the Secretary General with various
    implementation tasks. Some of these

    tasks include collecting data on the status of existing international
    agreements relating to terrorism and developing an international legal
    framework of conventions on terrorism.

    48/ 122 Condemns terrorism as an activity aimed at the destruction of
    human rights, fundamental freedoms, and Dec. 20, 1993 democracy. Also
    condemns terrorism for threatening state security, destabilizing
    legitimate governments, undermining civil society, and obstructing
    economic development. Calls upon states to take effective measures

    to combat terrorism in accordance with international standards of human
    rights. Urges the international community to enhance cooperation against
    terrorism at many levels.

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

    44/ 29 Recalls General Assembly Resolution 42/ 159. Expresses concern at
    the growing link between terrorist groups, Dec. 4, 1989 drug traffickers,
    and paramilitary gangs. Calls upon member states to use their political
    influence to secure the

    safe release of all hostages. Also urges the International Civil Aviation
    Organization to intensify its work on devising an international regime for
    the marking of plastic explosives for purposes of detection. Welcomes the
    recent adoption of aviation and maritime security conventions and
    protocols.

    (Continued From Previous Page)

    UN General Assembly Resolution Key provisions

    42/ 159 Reaffirms General Assembly Resolution 40/ 61. Urges all states to
    (a) prevent the preparation and organization Dec. 7, 1987 of terrorist
    acts from their territories; (b) ensure the apprehension, prosecution, or
    extradition terrorist perpetrators; (c) conclude bilateral and
    multilateral agreements to that effect; (d) cooperate with other states in
    exchanging terrorist information; and (e) harmonize their domestic
    legislation with existing international conventions to prevent terrorism.
    Also welcomes the air and maritime- security conventions being drafted by
    the International Civil Aviation Organization and the International
    Maritime Organization. 40/ 61 Recalls General Assembly Resolution 38/ 130.
    Unequivocally condemns all acts of terrorism. Urges all states Dec. 9,
    1985 not to obstruct the application of appropriate law enforcement
    measures against terrorist suspects provided for

    in the conventions to which these states are a party. Urges states to
    eliminate underlying causes of terrorism, including colonialism, racism,
    and situations involving massive human rights violations. Also, calls upon
    all states to follow the recommendations of the International Civil
    Aviation Organization to prevent terrorist attacks

    against civil aviation transport. Requests the International Maritime
    Organization study the problem of terrorism against ships. 39/ 159
    Condemns policies and practices of terrorism between states as a method of
    dealing with other states and Dec. 17, 1984 peoples. Demands that states
    refrain from taking action aimed at undermining other states. Urges all
    states to

    respect and observe the sovereignty and political independence of states.
    38/ 130

    Recalls General Assembly Resolution 34/ 145. Deeply deplores the loss of
    innocent human lives and the Dec. 19, 1983 pernicious impact of
    international terrorist acts on friendly relations among states as well as
    on international cooperation. Re- endorses the recommendations of the Ad
    Hoc Committee on International Terrorism.

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

    34/ 145 Unequivocally condemns all acts of international terrorism. Adopts
    the recommendations of the Ad Hoc Dec. 17, 1979 Committee relating to
    cooperation for the elimination of international terrorism. Calls upon
    states to refrain from organizing, instigating, assisting or participating
    in acts of civil strife or terrorism in another state. Appeals

    to states to become parties to existing international conventions relating
    to terrorism. Invites states to harmonize their domestic laws with
    international conventions on terrorism and cooperate with each other more
    closely in the areas of information sharing, terrorist extradition, and
    terrorist prosecution. 31/ 102

    Urges states to continue to seek just and peaceful solutions to the
    problem of international terrorism. Reaffirms Dec. 15, 1976 the
    inalienable right to self- determination of all people, and condemns the
    continuation of repressive and

    terrorist acts by colonial, racist, and alien regimes. Continues the work
    of the Ad Hoc Committee on Terrorism in studying the underlying causes of
    terrorism and requests that it submit practical measures to combat
    terrorism to the Secretary General.

    30/ 34 Urges states to devote their immediate attention to the growing
    problem of international terrorism. Reaffirms Dec. 18, 1972 the
    inalienable right to self- determination of all people under colonial
    regimes and upholds the legitimacy of

    national liberation movements. Also, establishes an Ad Hoc Committee on
    terrorism to study the root causes and devise solutions to terrorism.
    Source: United Nations.

    Appendi VI x I

    Organizations Visited or Contacted During the course of our review, we
    visited and/ or contacted officials from the following organizations.
    Cabinet Departments and Related Agencies

    Department of Defense  Office of the Assistant Secretary of Defense for
    Special Operations and Low- Intensity Conflict, Washington, D. C.

     Office of the Joint Chiefs of Staff, Washington, D. C.  Unified
    Combatant Commands

     U. S. Central Command, MacDill Air Force Base, Florida  U. S. European
    Command, Patch Barracks, Stuttgart- Vaihingen, Germany

     U. S. Southern Command, Miami, Florida  U. S. Special Operations
    Command, MacDill Air Force Base, Florida  Defense Intelligence Agency,
    Washington, D. C.

     Defense Attaches at selected U. S. embassies (see Department of State)

    Department of Homeland  Bureau of Immigration and Customs Enforcement,
    Washington, D. C.

    Security  Bureau of Customs and Border Protection, Washington, D. C.

     U. S. Secret Service, Washington, D. C.  Headquarters, Federal Law
    Enforcement Training Center, Glynco,

    Georgia

    Department of Justice  Criminal Division, Washington, D. C.  Terrorism
    Section, Washington, D. C.  Federal Bureau of Investigation, Washington,
    D. C.

     Counterterrorism Division, Washington, D. C.  Investigative Services
    Division, Washington, D. C.  International Operations Branch, Washington,
    D. C.  Legal Attache Program, Washington, D. C.  Bureau of Alcohol,
    Tobacco, Firearms and Explosives, Washington, D. C.  International Law
    Enforcement Academy, Budapest, Hungary  Legal Attache at a selected U. S.
    embassy (see Department of State)

    Department of State  Bureau of Administration, Washington, D. C.  Bureau
    of Consular Affairs, Washington, D. C.  Bureau of Diplomatic Security,
    Washington, D. C.  Bureau of Economic and Business Affairs, Washington,
    D. C.  Bureau of Intelligence and Research, Washington, D. C.  Bureau
    for International Narcotics and Law Enforcement Affairs,

    Washington, D. C.  Bureau of International Organization Affairs,
    Washington, D. C.  Bureau of Overseas Buildings Operations, Washington,
    D. C.  Bureau of Political- Military Affairs, Washington, D. C.
    Geographic Bureaus, Washington, D. C.

     African Affairs, Washington, D. C.  East Asian and Pacific Affairs,
    Washington, D. C.  European and Eurasian Affairs, Washington, D. C.
    Near Eastern Affairs, Washington, D. C.  South Asian Affairs, Washington,
    D. C.  Western Hemisphere Affairs, Washington, D. C.  Office of the
    Coordinator for Counterterrorism, Washington, D. C.  Office of
    International Information Programs, Washington, D. C.  Office of the
    Legal Adviser, Washington, D. C.  Overseas Security Advisory Council,
    Washington, D. C.  U. S. Agency for International Development,
    Washington, D. C.

     Office of Foreign Disaster Assistance, Washington, D. C.  U. S.
    Embassy, Athens, Greece

    Department of the Treasury  Office of Foreign Assets Control, Washington,
    D. C.  Financial Crimes Enforcement Network, Washington, D. C.  Treasury
    personnel at a selected U. S. embassy (see Department of

    State)

    Other Agencies Central Intelligence Agency  Counterterrorist Center,
    Langley, Virginia Executive Office of the

     National Security Council, Washington, D. C. President

     Office of Homeland Security, Washington, D. C.  Office of Management
    and Budget, Washington, D. C.

    Appendi VI x I I Comments from the Department of Defense

    Comments from the U. S. Agency for

    Appendi X I x International Development

    Appendi X x GAO Contacts and Staff Acknowledgments GAO Contacts Raymond J.
    Decker (202) 512- 6020 Stephen L. Caldwell (202) 512- 9610 Acknowledgments
    In addition to those named above, Mark A. Pross; James C. Lawson; Lori L.
    Kmetz; David W. Hancock; Cheryl L. Goodman; Edward J. George, Jr.;

    J. Addison Ricks; Susan K. Woodward; Rebecca Shea; Harry L. (Lee) Purdy;
    Michael S. (Shawn) Arbogast; John W. Van Schaik; Michael C. Zola; and
    Douglas E. Cole made key contributions to this report.

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

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

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

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

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

    Combating Terrorism: Status of DOD Efforts to Protect Its Force Overseas.
    GAO/ NSIAD- 97- 207. Washington, D. C.: July 21, 1997.

    State Department: Efforts to Reduce Visa Fraud. GAO/ T- NSIAD- 97- 167.
    Washington, D. C.: May 20, 1997.

    Aviation Security: FAA's Procurement of Explosives Detection Devices. GAO/
    RCED- 97- 111R. Washington, D. C.: May 1, 1997.

    Department of Energy: Information on the Distribution of Funds for
    Counterintelligence Programs and the Resulting Expansion of These
    Programs. GAO/ RCED- 97- 128R. Washington, D. C.: April 25, 1997.

    Aviation Security: Commercially Available Advanced Explosives Detection
    Devices. GAO/ RCED- 97- 119R. Washington, D. C.: April 24, 1997.

    Terrorism and Drug Trafficking: Responsibilities for Developing Explosives
    and Narcotics Detection Technologies. GAO/ NSIAD- 97- 95. Washington, D.
    C.: April 15, 1997.

    Terrorism and Drug Trafficking: Technologies for Detecting Explosives and
    Narcotics. GAO/ NSIAD/ RCED- 96- 252. Washington, D. C.: September 4,
    1996.

    Aviation Security: Immediate Action Needed to Improve Security. GAO/ T-
    RCED/ NSIAD- 96- 237. Washington, D. C.: August 1, 1996.

    Passports and Visas: Status of Efforts to Reduce Fraud. GAO/ NSIAD- 96-
    99. Washington, D. C.: May 9, 1996.

    Terrorism and Drug Trafficking: Threats and Roles of Explosives and
    Narcotics Detection Technology. GAO/ NSIAD/ RCED- 96- 76BR. Washington, D.
    C.: March 27, 1996.

    Nuclear Nonproliferation: Status of U. S. Efforts to Improve Nuclear
    Material Controls in Newly Independent States. GAO/ NSIAD/ RCED- 96- 89.
    Washington, D. C.: March 8, 1996.

    Nonimmigrant Visa Processing. GAO/ NSIAD- 95- 122R. Washington, D. C.:
    April 17, 1995.

    Aviation Security: Additional Actions Needed to Meet Domestic and
    International Challenges. GAO/ RCED- 94- 38. Washington, D. C.: January
    27, 1994.

    Foreign Assistance: Meeting the Training Needs of Police in New
    Democracies. GAO/ NSIAD- 93- 109. Washington, D. C.: January 21, 1993.

    Foreign Assistance: Promising Approach to Judicial Reform in Colombia.
    GAO/ NSIAD- 92- 269. Washington, D. C.: September 24, 1992.

    Russian Nuclear Weapons: U. S. Implementation of the Soviet Nuclear Threat
    Reduction Act of 1991. GAO/ T- NSIAD- 92- 47. Washington, D. C.: July 27,
    1992.

    Foreign Aid: Police Training and Assistance. GAO/ NSIAD- 92- 118.
    Washington, D. C.: March 5, 1992.

    Economic Sanctions: Effectiveness as Tools of Foreign Policy. GAO/ NSIAD-
    92- 106. Washington, D. C.: February 19, 1992.

    State Department: Management Weaknesses in the Security Construction
    Program. GAO/ NSIAD- 92- 2. Washington, D. C.: November 29, 1991.

    Preliminary Inquiry into Alleged 1980 Negotiations to Delay Release of
    Iranian Hostages until after November Election. GAO/ T- OSI- 92- 4.
    Washington, D. C.: November 21, 1991.

    Preliminary Inquiry into Alleged 1980 Negotiations to Delay Release of
    Iranian Hostages until after November Election. GAO/ T- OSI- 92- 1.
    Washington, D. C.: November 7, 1991.

    State Department: Status of the Diplomatic Security Construction Program.
    GAO/ NSIAD- 91- 143BR. Washington, D. C.: February 20, 1991.

    International Terrorism: FBI Investigates Domestic Activities to Identify
    Terrorists. GAO/ GGD- 90- 112. Washington, D. C.: September 7, 1990.

    Aviation Security: Training Standards Needed for Extra Security Measures
    at Foreign Airports. GAO/ RCED- 90- 66. Washington, D. C.: December 15,
    1989.

    International Terrorism: Status of GAO's Review of the FBI's International
    Terrorism Program. GAO/ T- GGD- 89- 31. Washington, D. C.: June 22, 1989.

    Embassy Security: Background Investigations of Foreign Employees. GAO/
    NSIAD- 89- 76. Washington, D. C.: January 5, 1989.

    Security Assistance: Update of Programs and Related Activities. GAO/
    NSIAD- 89- 78FS. Washington, D. C.: December 28, 1988.

    Aviation Security: FAA's Assessments of Foreign Airports. GAO/ RCED- 89-
    45. Washington, D. C.: December 7, 1988.

    Passports: Implications of Deleting the Birthplace in U. S. Passports.
    GAO/ NSIAD- 87- 201. Washington, D. C.: August 27, 1987.

    Terrorism: Laws Cited Imposing Sanctions on Nations Supporting Terrorism.
    GAO/ NSIAD- 87- 133FS. Washington, D. C.: April 17, 1987.

    Obstacles to U. S. Ability to Control and Track Weapons- Grade Uranium
    Supplied Abroad. GAO/ ID- 82- 21. Washington, D. C.: August 2, 1982.

    (350092)

    a

    GAO United States General Accounting Office

    Page i GAO- 03- 165 Combating Terrorism

    Contents

    Contents

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    Contents

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    Contents

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    Contents

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    Contents Page vi GAO- 03- 165 Combating Terrorism

    Page 1 GAO- 03- 165 Combating Terrorism United States General Accounting
    Office Washington, D. C. 20548

    Page 1 GAO- 03- 165 Combating Terrorism

    A

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    Page 4 GAO- 03- 165 Combating Terrorism

    Executive Summary Page 5 GAO- 03- 165 Combating Terrorism

    Executive Summary Page 6 GAO- 03- 165 Combating Terrorism

    Executive Summary Page 7 GAO- 03- 165 Combating Terrorism

    Executive Summary Page 8 GAO- 03- 165 Combating Terrorism

    Executive Summary Page 9 GAO- 03- 165 Combating Terrorism

    Executive Summary Page 10 GAO- 03- 165 Combating Terrorism

    Executive Summary Page 11 GAO- 03- 165 Combating Terrorism

    Page 12 GAO- 03- 165 Combating Terrorism

    Chapter 1

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

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

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

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

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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 1 Introduction: Terrorism Overseas and the Federal Government*s
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    Chapter 2

    Chapter 2 The Interagency Framework for Combating Terrorism Overseas

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    Chapter 2 The Interagency Framework for Combating Terrorism Overseas

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    Chapter 3

    Chapter 3 Federal Efforts to Detect and Prevent Terrori sm

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    Chapter 4

    Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations

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    Chapter 4 Federal Efforts to Disrupt and Destroy Terrorist Organizations

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    Chapter 5

    Chapter 5 Federal Efforts to Respond to Terrorist Incidents Overseas

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    Appendix I

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

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

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

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

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

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

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

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

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    Appendix II

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

    Page 210 GAO- 03- 165 Combating Terrorism

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

    Page 211 GAO- 03- 165 Combating Terrorism

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

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

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

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    Appendix III

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

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

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

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

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

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

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

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

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

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    Appendix IV

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

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

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

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

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

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

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

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

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

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

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

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

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

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    Appendix V

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

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

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

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    Appendix VI

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

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

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

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

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

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    Appendix VII

    Appendix VII Organizations Visited or Contacted

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    Appendix VII Organizations Visited or Contacted

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    Appendix VII Organizations Visited or Contacted

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    Appendix VIII

    Page 254 GAO- 03- 165 Combating Terrorism

    Appendix IX

    Page 255 GAO- 03- 165 Combating Terrorism

    Appendix X

    Page 256 GAO- 03- 165 Combating Terrorism

    Related GAO Products Page 257 GAO- 03- 165 Combating Terrorism

    Related GAO Products Page 258 GAO- 03- 165 Combating Terrorism

    Related GAO Products Page 259 GAO- 03- 165 Combating Terrorism

    Related GAO Products Page 260 GAO- 03- 165 Combating Terrorism

    Related GAO Products Page 261 GAO- 03- 165 Combating Terrorism

    Related GAO Products Page 262 GAO- 03- 165 Combating Terrorism

    Related GAO Products Page 263 GAO- 03- 165 Combating Terrorism

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