[Public Papers of the Presidents of the United States: George W. Bush (2001, Book II)]
[September 23, 2001]
[Pages 1146-1149]
[From the U.S. Government Publishing Office www.gpo.gov]



Message to the Congress on United States Financial Sanctions Against 
Terrorists and Their Supporters
September 23, 2001

To the Congress of the United States:
    Pursuant to section 204(b) of the International Emergency Economic 
Powers Act, 50 U.S.C. 1703(b) (IEEPA), and section 301 of the National 
Emergencies Act, 50 U.S.C. 1631, I hereby report that I have exercised 
my statutory authority to declare a national emergency in response to 
the unusual and extraordinary threat posed to the national security, 
foreign policy, and economy of the United States by grave acts of 
terrorism and threats of terrorism committed by foreign terrorists, 
including the September 11, 2001, terrorist attacks at the World Trade 
Center, New York, at the Pentagon, and in Pennsylvania. I have also 
issued an Executive Order to help deal with this threat by giving the 
United States more powerful tools to reach the means by which terrorists 
and terrorist networks finance themselves and to encourage greater 
cooperation by foreign financial institutions and other entities that 
may have access to foreign property belonging to terrorists or terrorist 
organizations.
    The attacks of September 11, 2001, highlighted in the most tragic 
way the threat posed to the security and national interests of the 
United States by terrorists who have abandoned any regard for humanity, 
decency, morality, or honor. Terrorists and terrorist networks operate 
across international borders and derive their financing from sources in 
many nations. Often, terrorist property and financial assets lie outside 
the jurisdiction of the United States. Our effort to combat and destroy 
the financial underpinnings of global terrorism must therefore be broad, 
and not only provide powerful sanctions against the U.S. property of 
terrorists and their supporters, but also encourage multilateral 
cooperation in identifying and freezing property and assets located 
elsewhere.
    This Executive Order is part of our national commitment to lead the 
international effort to bring a halt to the evil of terrorist

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activity. In general terms, it provides additional means by which to 
disrupt the financial support network for terrorist organizations by 
blocking the U.S. assets not only of foreign persons or entities who 
commit or pose a significant risk of committing acts of terrorism, but 
also by blocking the assets of their subsidiaries, front organizations, 
agents, and associates, and any other entities that provide services or 
assistance to them. Although the blocking powers enumerated in the order 
are broad, my Administration is committed to exercising them 
responsibly, with due regard for the culpability of the persons and 
entities potentially covered by the order, and in consultation with 
other countries.
    The specific terms of the Executive Order provide for the blocking 
of the property and interests in property, including bank deposits, of 
foreign persons designated in the order or pursuant thereto, when such 
property is within the United States or in the possession or control of 
United States persons. In addition, the Executive Order prohibits any 
transaction or dealing by United States persons in such property or 
interests in property, including the making or receiving of any 
contribution of funds, goods, or services to or for the benefit of such 
designated persons.
    I have identified in an Annex to this order eleven terrorist 
organizations, twelve individual terrorist leaders, three charitable or 
humanitarian organizations that operate as fronts for terrorist 
financing and support, and one business entity that operates as a front 
for terrorist financing and support. I have determined that each of 
these organizations and individuals have committed, supported, or 
threatened acts of terrorism that imperil the security of U.S. nationals 
or the national security, foreign policy, or economy of the United 
States. I have also authorized the Secretary of State to determine and 
designate additional foreign persons who have committed or pose a 
significant risk of committing acts of terrorism that threaten the 
security of U.S. nationals or the national security, foreign policy, or 
economy of the United States. Such designations are to be made in 
consultation with the Secretary of the Treasury and the Attorney 
General.
    The Executive Order further authorizes the Secretary of the Treasury 
to identify, in consultation with the Secretary of State and the 
Attorney General, additional persons or entities that:

     Are owned or controlled by, or that act for or on behalf 
            of, those persons designated in or pursuant to the order;
     Assist in, sponsor, or provide financial, material, or 
            technological support for, or financial or other services to 
            or in support of acts of terrorism or those persons 
            designated in or pursuant to the order; or
     Are otherwise associated with those persons designated in 
            or pursuant to the order.

    Prior to designating persons that fall within the latter two 
categories, the Secretary of the Treasury is authorized to consult with 
any foreign authorities the Secretary of State deems appropriate, in 
consultation with the Secretary of the Treasury and the Attorney 
General. Such consultation is intended to avoid the need for additional 
designations by securing bilateral or multilateral cooperation from 
foreign governments and foreign financial and other institutions. Such 
consultation may include requests to foreign governments to seek, in 
accordance with international law and their domestic laws, information 
from financial institutions regarding terrorist property and to take 
action to deny terrorists the use of such property. The order also 
provides broad authority, with respect to the latter two categories, for 
the Secretary of the Treasury, in his discretion, and in consultation 
with the Secretary of State and the Attorney General, to take lesser 
action than the complete blocking of property or interests in property 
if such lesser action

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is deemed consistent with the national interests of the United States. 
Some of the factors that may be considered in deciding whether a lesser 
action against a foreign person is consistent with the national 
interests of the United States include:

     The impact of blocking on the U.S. or international 
            financial system;
     The extent to which the foreign person has cooperated with 
            U.S. authorities;
     The degree of knowledge the foreign person had of the 
            terrorist-related activities of the designated person;
     The extent of the relationship between the foreign person 
            and the designated person; and
     The impact of blocking or other measures on the foreign 
            person.

    The Executive Order also directs the Secretary of State, the 
Secretary of the Treasury, and other agencies to make all relevant 
efforts to cooperate and coordinate with other countries, including 
through existing and future multilateral and bilateral agreements and 
arrangements, to achieve the objectives of this order, including the 
prevention and suppression of acts of terrorism, the denial of the 
financing of and financial services to terrorists and terrorist 
organizations, and the sharing of intelligence about funding activities 
in support of terrorism.
    In the Executive Order, I also have made determinations to suspend 
otherwise applicable exemptions for certain humanitarian, medical, or 
agricultural transfers or donations. Regrettably, international 
terrorist networks make frequent use of charitable or humanitarian 
organizations to obtain clandestine financial and other support for 
their activities. If these exemptions were not suspended, the provision 
of humanitarian materials could be used as a loophole through which 
support could be provided to individuals or groups involved with 
terrorism and whose activities endanger the safety of United States 
nationals, both here and abroad.
    The Secretary of the Treasury, in consultation with the Secretary of 
State and the Attorney General, is authorized to issue regulations in 
exercise of my authorities under IEEPA to implement the prohibitions set 
forth in the Executive Order. All Federal agencies are also directed to 
take actions within their authority to carry out the provisions of the 
order, and, where applicable, to advise the Secretary of the Treasury in 
a timely manner of the measures taken.
    The measures taken here will immediately demonstrate our resolve to 
bring new strength to bear in our multifaceted struggle to eradicate 
international terrorism. It is my hope that they will point the way for 
other civilized nations to adopt similar measures to attack the 
financial roots of global terrorist networks.
    In that regard, this Executive Order is an integral part of our 
larger effort to form a coalition in the global war against terrorism. 
We have already worked with nations around the globe and groups such as 
the G-8, the European Union, and the Rio Group, all of which have issued 
strong statements of their intention to take measures to limit the 
ability of terrorist groups to operate. In the next several weeks the 
33rd Session of the International Civil Aviation Organization (ICAO) 
General Assembly and other fora will focus on terrorism worldwide. It is 
our intention to work within the G-7/G-8, the ICAO, and other fora to 
reach agreement on strong concrete steps that will limit the ability of 
terrorists to operate. In the G-7/G-8, the United States will work with 
its partners, drawing on the G-8 Lyon Group on Transnational Crime, the 
G-8 Group on Counter-terrorism, the G-7 Financial Action Task Force, and 
the existing G-8 commitments to build momentum and practical cooperation 
in the fight to stop the flow of resources to support terrorism. In 
addition, both the Convention for the Suppression of the Financing of 
Terrorism and the Convention for the Suppression of Terrorist

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Bombings have been forwarded to the Senate, and I will be forwarding 
shortly to the Congress implementing legislation for both Conventions.
    I am enclosing a copy of the Executive Order I have issued. This 
order is effective at 12:01 a.m. eastern daylight time on September 24, 
2001.

                                                          George W. Bush

 The White House,

 September 23, 2001.

Note: This message was released by the Office of the Press Secretary on 
September 24. The Executive order of September 23 blocking property and 
prohibiting transactions with persons who commit, threaten to commit, or 
support terrorism is listed in Appendix D at the end of this volume.