Testimony of J. T. Caruso, Deputy Executive Assistant Director,
Counterterrorism/Counterintelligence Division, FBI
Before
the House Subcommittee on National Security, Veterans Affairs,
and International Relations
March 21, 2002
"Combating Terrorism: Protecting the United States"
Good
afternoon Mr. Chairman and Members of the Subcommittee. Thank
you for inviting me to testify at this hearing on "Combating
Terrorism: Protecting the United States". For the record,
I am the Deputy Executive Assistant Director for Counterterrorism/Counterintelligence
for the Federal Bureau of Investigation.
The terrorist
attack of September 11, 2001, marked a dramatic escalation
in a trend toward more destructive terrorist attacks which
began in the 1980s. The September 11 attack also reflected
a trend toward more indiscriminate targeting among international
terrorists. The vast majority of the more than 3,000 victims
of the attack were civilians. In addition, the attack represented
the first known case of suicide attacks carried out by international
terrorists in the United States. The September 11 attack also
marked the first successful act of international terrorism
in the United States since the vehicle bombing of the World
Trade Center in February 1993.
Despite
its unprecedented scope and destruction, the September 11
attack underscored many of the trends in international terrorism
identified in recent years by the U.S. intelligence community.
Among these has been an apparent shift in operational intensity
from traditional sources of terrorism--state sponsors and
traditional terrorist organizations--to extremist groups,
organized under the Al Qaeda umbrella. This trend has been
paralleled by a general shift in tactics and methodologies
among international terrorists that focus on producing mass
casualties. These trends underscore the serious threat that
international terrorists continue to pose to nations around
the world, particularly the United States.
At the
same time, the United States also faces challenges from domestic
terrorists. Threats emanating from domestic and international
terrorists will continue to represent a significant challenge
to the United States for the foreseeable future. Further,
as terrorists continue to refine and expand their methodologies,
the threats they pose will become even greater.
BACKGROUND
In general
terms, the international terrorist threat to US interests
can be divided into three categories: the radical international
jihad movement, traditional, clearly defined terrorist organizations,
and state sponsors of international terrorism. Each of these
categories represents a threat to US interests.
The most
serious international terrorist threat to US interests today
stems from Sunni Islamic extremists, such as Usama bin laden
and individuals affiliated with his Al-Qaeda organization.
Al-Qaeda leaders, including Usama bin laden, had been harbored
in Afghanistan since 1996 by the extremist Islamic regime
of the Taliban. Despite recent military setbacks suffered
by the Taliban and the apparent death of Al-Qaeda operational
commander Mohamed Atef resulting from a US bombing raid, Al-Qaeda
must continue to be viewed as a potent and highly capable
terrorist network. The network's willingness and capability
to inflict large-scale violence and destruction against US
persons and interests--as it demonstrated with the September
11 attack, the bombing of the USS Cole in October 2000, and
the bombings of two US Embassies in east Africa in August
1998, among other plots--makes it a clear and imminent threat
to the United States.
However,
the threat from Al-Qaeda is only a part of the overall threat
from the radical international jihad movement, which is composed
of individuals of varying nationalities, ethnicities, tribes,
races, and terrorist group memberships who work together in
support of extremist Sunni goals. One of the primary goals
of Sunni extremists is the removal of US military forces from
the Persian gulf area, most notably Saudi Arabia. The single
common element among these diverse individuals is their commitment
to the radical international jihad movement, which includes
a radicalized ideology and agenda promoting the use of violence
against the "enemies of Islam" in order to overthrow
all governments which are not ruled by Sharia (conservative
Islamic) law. A primary tactical objective of this movement
has been the planning and implementation of large-scale, high-profile,
high-casualty terrorist attacks against US interests and citizens,
and those of its allies, worldwide.
The second
category of international terrorist threat is made up of the
traditional and more clearly defined terrorist organizations.
These autonomous, generally transnational, groups have their
own personnel, infrastructures, financial arrangements, and
training facilities. They are able to plan and mount terrorist
campaigns on an international basis, and several actively
support terrorist-related activities in the United States.
Extremist groups such as Palestinian Hamas, the Irish republican
army, the Egyptian al-Gama al-Islamiyya (IG), and Lebanese
Hizballah have supporters in the United States, though the
activities of these U.S.-based cells revolve primarily around
fundraising, recruiting, and low-level intelligence gathering.
Hizballah
is a formal organization that has carried out numerous anti-U.S.
attacks overseas, including the October 1983 vehicle bombing
of the US marine barracks in Lebanon. With the exception of
the Al-Qaeda network, Hizballah is responsible for the deaths
of more Americans than any other terrorist group in the world.
On June 21, 2001, the United States indicted 14 subjects--13
Saudis and 1 Lebanese national--for their suspected involvement
in the June 1996 bombing of Khobar towers in Saudi Arabia.
Nineteen US airmen died in the blast; Saudi Hizballah is suspected
of carrying out the attack. To date, Hizballah has never carried
out a terrorist attack in the United States.
State sponsors of terrorism make up the third category of
international terrorist threat. The primary state sponsors
are Iran, Iraq, Sudan, and Libya. These countries view terrorism
as a tool of foreign policy. Syria, which is also on the US
Department of State's list of state sponsors of terrorism,
has not been directly involved in conducting terrorist activity
for a number of years but still provides a safe haven to international
terrorist groups and loosely affiliated extremists. North
Korea and Cuba--also on the Department of State's list of
state sponsors--have significantly reduced their direct involvement
with terrorism due, in part, to the rapidly diminishing capacity
of their economies to support such activity.
The trend
toward high-profile, high-impact attacks comes at a time when
interest is growing among domestic and international extremists
in weapons of mass destruction (WMD). A series of anthrax-related
cases and threats occurring since September 2001 provide a
glimpse into emerging terrorist scenarios of the 21st century.
A series
of bioterrorism incidents using b. anthracis spores sent through
the mail have resulted in 22 anthrax cases and five deaths
since October 3, 2001. The initial anthrax cases occurred
among persons with known or suspected contact with opened
letters contaminated with b. anthracis spores. Later, investigations
identified four confirmed cases and one suspected case among
postal workers who had no known contact with contaminated
opened letters. This suggests that sealed envelopes contaminated
with anthrax passing through the postal system may be the
source of these exposures. The number of contaminated envelopes
passing through the postal system is under investigation.
Leads
continue to be investigated; however, no determination has
been made as to whether this is the result of domestic or
international terrorism and no suspect has been identified.
On November 9, 2001, the FBI issued a behavioral/linguistic
assessment of the offender based on the known anthrax parcels.
As stated in this assessment, the offender is believed to
be an adult male who has access to a source of anthrax and
possesses the knowledge and expertise to refine it. The FBI
heads a multi-agency effort to identify the perpetrator of
these deadly attacks.
During
the past several years the FBI had identified a wide array
of cyber threats, ranging from defacement of web sites by
juveniles to sophisticated intrusions sponsored by foreign
powers. Some of these incidents pose more significant threats
than others. The theft of national security information from
a government agency or the interruption of electrical power
to a major metropolitan area obviously would have greater
consequences for national security, public safety, and the
economy than the defacement of a web-site. Beyond criminal
threats, cyber space also faces a variety of significant national
security threats, including increasing threats from terrorists.
Terrorist
groups are increasingly using new information technology and
the Internet to formulate plans, raise funds, spread propaganda,
and engage in secure communications. Cyberterrorism-meaning
the use of cyber tools to shut down critical national infrastructures
(such as energy, transportation, or government operations)
for the purpose of coercing or intimidating a government or
civilian population-is clearly an emerging threat.
OFFICE
OF HOMELAND SECURITY
The FBI's
new, more focused mission is the prevention of future terrorist
attacks. It must be understood, however, that protecting the
United States and its citizens and overseas interests from
terrorism is a national effort, involving federal, state and
local government entities and the private sector. With so
many different agencies involved in combating terrorism, the
effort to lead and manage these efforts becomes inherently
difficult. Subsequent to the attacks of September 11, 2001,
the President issued Executive Order13228, which established
the Office of Homeland Security. The mission of the OHS is
to develop and coordinate the implementation of a comprehensive
strategy to secure the US from terrorist threats or attacks.
The OHS is charged with coordinating the executive branch's
efforts to detect, prevent, protect against, respond to and
recover from terrorist attacks. Governor Ridge has announced
that the number one priority for the Office of Homeland Security
is to create a national planned strategy to effectively coordinate
the homeland security efforts of all 50 states, US territories,
the District of Columbia, thousands of municipalities and
countless private entities.
The Federal
Bureau of Investigation has coordinated with and provided
input into the Office of Homeland Security through various
working groups and Policy Coordination Committees (PCCs) headed
by the Office of Homeland Security to promote various homeland
security initiatives and programs. These PCCs formulate plans
for initiatives and policy matters involving National Guard
support to Airport Security, Border Security Organization,
Airspace Security, Horizontal Information Sharing, Vertical
Information Sharing, and others. In addition, the FBI has
detailed a senior Supervisory Special Agent to the Office
of Homeland Security to fill the position of Directorate of
Intelligence Fusion.
The FBI
has been committed to working with the OHS, and it will continue
to support the OHS directly. The FBI will provide the OHS
with key technical assistance, from a crisis management standpoint,
with the creation of a national strategy - as well as many
other terrorism prevention efforts.
THREAT
AND RISK ASSESSMENTS
A major
threat to our nation's security is the use of weapons of mass
destruction within our borders by terrorist groups, both domestic
and international, hostile nations or individual extremists.
In the Spring of 2001, the FBI entered into a partnership
with the National Institute of Justice (NIJ) and the Technical
Support Working Group (TSWG) in the development of an assessment
of those chemical and biological agents that may be more likely
to be used in the United States by a non-State sponsored terrorist.
The FBI completed the technical review of the results by September
2001, however, additional revisions to the report are being
made by TSWG prior to sending the assessment out for interagency
review and concurrence. The FBI understands that the TSWG
plans to provide a revised report for review in the near future.
The FBI does not anticipate there will be any significant
changes in the report's findings based upon the events of
the past several months. For example, while prior to September
2001, the FBI had not investigated any cases where anthrax
use was confirmed, the topic was still included in the report
due to its scientific and technical properties, including
those factors which may make it a likely bio-terrorism weapon.
The FBI will continue to examine law enforcement and intelligence
information to ensure that the findings in the NIJ/TSWG report
are accurate and helpful to State and local law enforcement.
In FY99,
through the "Defense Against Weapons of Mass Destruction
Act of 1998", Congress mandated that, "[T]he Attorney
General, through the FBI, and representatives of appropriate
federal, state, and local agencies shall develop and test
methodologies for assessing the threat and risk of terrorist
employment of weapons of mass destruction against cities and
other local areas."
Congress also mandated that the Office of Justice Programs
(OJP), Department of Justice, utilize a capabilities and needs
assessment process in implementation of the Federal government's
"FY99 State Domestic Preparedness Equipment Program."
This program is designed to provide funding assistance to
the nation's fifty-six states, territories, and the District
of Columbia. Under this program, States and territories are
required to award sub-grants to local jurisdictions based
on results of jurisdictional needs assessments. The collection
of the assessment data will be used to develop a statewide
strategy for domestic preparedness equipment, training, exercise
and technical support programs. These programs will assist
the state in targeting available resources or activities having
the greatest positive impact on levels of weapons of mass
destruction (WMD) terrorism response preparedness.
Recognizing
that a comprehensive needs assessment would require a threat,
vulnerability, and risk component, and the FBI's current mandate
requiring the development of the same, the FBI and OJP engaged
in a cooperative effort to develop a single comprehensive
assessment tool. In furtherance of this objective, the FBI
developed a threat assessment process that is being utilized
by state and local jurisdictions to help determine funding
priorities for WMD domestic preparedness equipment and training.
This process was integrated into a larger Needs Assessment
process that has been distributed to all fifty-six states,
territories, and the District of Columbia as part of the OJP
FY99 State Domestic Preparedness Equipment Support Program.
After
the terrorist attacks on September 11, 2001, the Attorney
General directed all states and territories to complete their
needs assessments and state-wide strategic plans as soon as
possible. To date, 47 states and territories have submitted
their completed package to OJP for review. The results of
the individual state assessments are entered into a central
database at OJP. The FBI is not currently in possession of
those results.
The important
work of OJP in the area of threat and risk assessment will
be utilized and built upon as part of expanded First Responder
Initiative proposed in the President's FY 2003 Budget.
COMPILATION,
ANALYSIS AND SHARING OF INTELLIGENCE INFORMATION
It is
apparent to everyone that the sharing of both criminal and
intelligence information has become the most important tool
in combating terrorism. The FBI must do a better job of sharing
the information it receives, both through its criminal investigations
of terrorist groups within the United States and the intelligence
information that it receives from its own collection efforts
and those of the Intelligence Community and other foreign
services. The FBI has several on-going initiatives to enhance
the cooperation between the FBI and other law enforcement
and intelligence agencies.
In 1996,
the FBI centralized many specialized terrorism operational
and analytical functions in what was then called the "FBI
Counterterrorism Center". The FBI counterterrorism center
was established to combat terrorism on three fronts: international
terrorism operations both within the United States and in
support of extraterritorial investigations, domestic terrorism
operations, and countermeasures relating to both international
and domestic terrorism. This center was eventually overtaken
when the FBI formally created the Counterterrorism Division.
Eighteen federal agencies maintain a regular presence in the
Counterterrorism Division and participate in its daily operations.
These agencies include the Central Intelligence Agency, the
Secret Service, and the Department of State, among others.
This multi-agency arrangement provides an unprecedented opportunity
for information sharing, warning, and real-time intelligence
analysis.
This
cooperation led to other important changes. During the past
several years, the FBI and CIA have developed a closer working
relationship that strengthened the ability of each agency
to respond to terrorist threats and improved the ability of
the US government to respond to terrorist attacks that do
occur. An element of this cooperation is an ongoing exchange
of personnel between the two agencies. Included among the
CIA employees detailed to the FBI's counterterrorism division
is a veteran CIA officer who serves as the deputy section
chief for international terrorism. Likewise, FBI agents are
detailed to the CIA, and a veteran special agent serves in
a comparable position in the CIA's counterterrorist center.
In addition
to the CIA, since the mid-1990s, FBI's Counterterrorism Division
in FBI Headquarters has been composed of FBI personnel and
personnel representing the US Intelligence and Law Enforcement
community, including the NSA, DIA, INS, Customs, Naval Criminal
Investigative Service, and Department of State. In return,
FBI regularly assigns personnel to US Intelligence Community
Headquarters agencies all in an effort to expedite information
sharing and processing.
FBI's
Counterterrorism Division regularly collects raw and finished
intelligence from Intelligence Community systems (Intelink)
currently installed at FBIHQ and in about half of the field
offices. These systems provide raw and finished intelligence
reporting prepared by CIA, DIA, NSA and State Department on
State-Sponsors of Terrorism and transnational terrorist networks/groups.
The FBI regularly participates in Interagency Intelligence
Community Working Groups CIA's Interagency Intelligence
Committee on Terrorism: Monthly General Meetings and Warning
and Forecast Meetings-- designed to share sensitive intelligence.
Many of these working groups work jointly in combating various
forms of transnational terrorism. These groups make every
effort to track fugitive terrorists worldwide and render them
back to the United States to face trial.
The FBI
maintains a robust working relationship with multiple foreign
intelligence services. Furthermore, FBI's Legal Attache Program,
composed of 44 LEGAT's stationed overseas, works jointly with
host foreign intelligence and law enforcement agencies in
pursuing international criminals and terrorists wanted for
outstanding violations.
In the
aftermath of the terrorist attacks of September 11, 2001,
the FBI established a threat assessment/prevention unit tasked
with assisting current FBIHQ domestic terrorism and international
terrorism personnel with assessing the potential threats existing
in short and long term environments. Raw intelligence collected
by the intelligence community is compared with investigative
data accumulated by the FBI to determine the feasibility and
credibility of threat information received in various venues.
The FBI
has found that success against terrorism is best achieved
through cooperation between the various federal, state and
local law enforcement and public safety agencies. However,
in order to more effectively combat terrorism, cooperation
must extend beyond the mere exchange of information. Thus,
the FBI formed Joint Terrorism Task Forces (JTTFs) to maximize
interagency cooperation and coordination to create cohesive
units capable of addressing the terrorism problems worldwide.
The first Joint Terrorism Task Force (JTTF) was established
in 1980. In 1996 Congress appropriated funds to establish
additional task forces throughout the nation. We presently
have 44 task forces, which include nine new task forces added
since September 11, 2001. The FBI anticipates having a task
force in each of its 56 FBI field offices by the end of this
fiscal year. This would result in an increase of 21 new task
forces this fiscal year.
To improve
interagency terrorism related information sharing, the FBI
Counterterrorism Division is piloting an "information
integration initiative". This pilot program will facilitate
having law enforcement and public safety agencies warehouse
their agency data in a single secure database. The operational
objective of this database is to facilitate terrorism information
sharing between the FBI and the law enforcement and public
safety community continuously. The goal is to have a field
office operational this fiscal year with others to follow.
The FBI
created a sub-file within the National Crime Information Center
(NCIC) data base called the Violent Gang and Terrorist Organizations
File (VGTOF). The subjects of counterterrorism investigations
are being added to the file daily and are accessed by other
Federal, State and local law enforcement agencies whenever
these agencies access the system for the purpose of running
criminal history checks on individuals of interest to their
own investigations (i.e., during routine traffic stops). When
accessed by an officer, the system is capable of automatically
notifying the officer that the name is of interest to the
FBI and should be treated with caution. The system can provide
further instructions such as, requesting the officer to notify
the FBI of the reason for the inquiry and the results of that
inquiry. The purpose of the data base is to share pertinent
biographical information with other Federal, State and local
law enforcement agencies for officer safety and mutual investigative
interest.
Because
warning is critical to the prevention of terrorist acts, the
FBI also has expanded the terrorist threat warning system
(NTWS) first implemented in 1989. The system now reaches all
aspects of the law enforcement and intelligence communities.
Currently, sixty federal agencies and their subcomponents
receive information via secure teletype through this system.
The messages also are transmitted to all 56 FBI field offices
and 44 Legats.
If threat information requires nationwide unclassified dissemination
to all federal, state, and local law enforcement agencies,
the FBI transmits messages via the national law enforcement
telecommunications system (NLETS). In addition, the FBI disseminates
threat information to security managers of thousands of US
commercial interests around the country through the awareness
of national security issues and response (ANSIR) program.
If threat information needs to be directly provided to the
American people, the FBI coordinates with the Office of Homeland
Security to issue a threat warning under the Homeland Security
Advisory System.
The FBI's
Counterterrorism Division, after consultation with state and
local law enforcement officials, has initiated the publication
of a weekly FBI Intelligence Bulletin. This bulletin is intended
for patrol officers and others who come in contact with the
public on a routine basis. The publication is disseminated
by several methods including Law Enforcement On-line (LEO),
NLETS, and the Regional Intelligence Sharing System (RISS),
administered by the Office of Justice Program, DOJ.
The above
are just some examples of the FBI's ongoing initiatives to
share both criminal and intelligence information with other
law enforcement agencies and the Intelligence Community as
a whole. The FBI is also exploring additional avenues to share
information with the public sector and companies responsible
for the protection of the nation's infrastructure.
ESTABLISHMENT
OF PRIORITIES FOR ADDITIONAL CT FUNDS RECEIVED
To effectively
neutralize threats emanating from terrorist activities, the
FBI must concentrate on both prevention and response. To this
end, the FBI's Counterterrorism Division has developed a five-level
strategy which focuses on building maximum feasible operational
capability in order to identify, prevent and deter terrorist
activities.
ÀÀ
Level one of this strategy focuses on maximizing the FBI's
capacity to respond to terrorist issues as they present themselves
in FBI field offices.
ÀÀ
Level two seeks to maximize the capacity of FBI Headquarters
to receive, react to and disseminate information pertaining
to terrorism-related issues.
ÀÀ
Level three is aimed at maximizing proactive capabilities
to utilize resources Bureau-wide in support of the CT Program.
(ie: the leveraging of key services such as analysis, language/translation
and technology)
ÀÀ
Level four uses the establishment and maintenance of sound
and productive relationships with external counterparts in
the intelligence and law enforcement communities, defense
establishments, foreign governments and state and local governments
to obtain maximum support.
ÀÀ
Level Five seeks to build capacity by using all the necessary
assets and capabilities of the FBI and external components
of the US Government to support and initiate complex domestic
and extraterritorial investigations and operations designed
to get ahead of the threat by penetrating and neutralizing
terrorist organizations.
In connection
with these efforts, the CTD has established mechanisms for
use in measuring the CT Program's progress toward applicable
five year program goals and has focused its allocation of
resources against noted performance gaps. The performance
indicators used by the FBI's CTD serve to measure the CT Program's
activities against the applicable program goals.
Under
the FBI's mission of prevention, the top priorities of the
Counterterrorism Division continue to be 1) enhancing the
level of analytical support to the counterterrorism program;
2) enhancing the FBI's capability to electronically share
information/intelligence and 3) enhancing the FBI's field
offices capacity to respond to terrorist issues. The FBI measures
achievements in these areas by focusing on the following indicators:
1) number of investigative matters pending, closed, and open
during a specified period; 2) arrests; 3) locates; 4) informations;
5) indictments; 6) convictions/pre-trial diversions; 7) recoveries/restitutions;
and 8) fines.
REORGANIZATION
OF THE FBI
In December,
with the approval of the Attorney General, we began a major
reorganization of the FBI. The first phase of the comprehensive
plan created a Headquarters structure that will help the executive
team lead and manage the Bureau more effectively. As you know,
it establishes four new Executive Assistant Directors who
report directly to the Director of the FBI and oversee key
areas: Counterterrorism and Counterintelligence; Criminal
Investigations; Law Enforcement Services; and Administration.
This structure reduces the span of control of the former Deputy
Director position, a management concern raised here on Capitol
Hill and in internal and external reviews of the Bureau. These
changes also increase accountability and strengthen executive-level
management oversight of day-to-day operations, and permit
a greater focus on strategic management issues.
The reorganization
addresses some of the other significant management issues
and concerns raised by members of Congress and others in recent
months as well. It is consistent with substantive comments
culled from Congressional reports as well as various Administration
and Congressionally-directed reports published since 1996.
The reorganization creates a stand-alone Security Division,
headed by an experienced professional from the CIA, to raise
the security practices and standards to the level needed,
to fix what the Hanssen investigation made painfully obvious.
It also includes an Office of Records Management, led by an
experienced records expert, to help modernize the record-keeping
systems, policies, and processes to prevent another OKBOMB
document situation. The reorganization elevated the position
of Chief Technology Officer (CTO) so that the position reports
directly to the Director. It establishes an Office of Law
Enforcement Coordination that will not only improve relationships
and information sharing with state and local police professionals
and others, but will also help the FBI tap into the strengths
and capabilities of its partners. The Bureau is working now
to identify an experienced, qualified executive from state
or local law enforcement to head this new office, someone
who will help the Bureau understand how best to integrate
state and local counterparts in the war against terrorism
and into major investigations.
At the
same time, the ongoing reorganization responds directly to
the events of September 11th and the new environment by consolidating
FBI oversight over the Counterterrorism and Counterintelligence
programs. The new structure creates the Office of Intelligence,
which will focus on building a strategic analysis capability
and improving the capacity to gather, analyze, and share critical
national security information. It also creates a new Cyber-Crime
Division dedicated to preventing and responding to high tech
and computer crimes, which terrorists around the world are
increasingly exploiting to attack America and its allies.
The old structure was fractured and not well coordinated.
This change will bring together various cyber initiatives
and programs under one umbrella, so the FBI is better focused,
organized, and coordinated in working with our public and
private sector partners to protect our nation's growing digital
marketplace and electronic infrastructure. The FBI is now
beginning the second phase of the reorganization. As part
of this phase, we are developing a comprehensive strategy
to permanently shift resources to the fight against terrorism
and in support of a massive prevention effort. The Director
will present this strategy to the Department, Administration,
and the Congress soon. The FBI is working to identify areas
where we can redirect resources without compromising our investigative
priorities or our partnerships with law enforcement and other
government agencies. Given the gravity of the current terrorist
threat to the United States, the FBI must make hard decisions
to focus its available energies and resources on preventing
additional terrorist acts and protecting our nation's security.
At the same time, we will continue to pursue and combat international
and national organized crime groups and enterprises, civil
rights violations, major white-collar crime, and serious violent
crime consistent with available resources and the capabilities
of our federal, state, and local partners. We want our mission
driven by the simple principle that whatever we do, we will
devote the resources and expertise to be the best in the world.
ADDITIONAL
STEPS WHICH NEED IMMEDIATE ATTENTION
The FBI's
top priority is the prevention of any further terrorist acts
in the United States or against US citizens and interests
abroad. The FBI was provided with an increase in investigative
personnel for its counterterrorism program in FY 2002. We
are now in the process of hiring and deploying these positions.
However, an effective investigative capacity not only involves
putting Agents on the streets, it also requires strong programs
and resources to support these Agents. These resources include
surveillance operations; technically proficient, well-equipped,
and well-trained personnel; effective response capabilities;
and the ability to combat terrorism in the cyber arena These
resources have been requested. The resources are need to,
among others, expand the FBI's LEGAT program; fund and train
the additional personnel required in the field offices (both
Agent and Analysts); and train federal, state and local law
enforcement agencies in the complexities of terrorism investigations.
CONCLUSION
Despite
the current focus on international terrorism, it is important
to remain cognizant of the full range of threats that confront
the United States. These threats continue to include domestic
and international terrorists. The 169 lives claimed in the
Oklahoma City bombing and the potential very heavy loss of
lives that could have resulted from various thwarted plots,
demonstrate the interest among some domestic extremists in
inflicting mass casualties.
On September 11, 2001, the scope and sophistication of the
international radical jihad movement was demonstrated with
horrendous clarity when 19 hijackers commandeered four commercial
airliners, crashing two of them into the World Trade Center,
one into the Pentagon, and the other into a remote field in
Pennsylvania. This attack resulted in more casualties than
any other terrorist act ever recorded.
Even
as the Al-Qaeda command structure in Afghanistan is destroyed,
Al-Qaeda cells in countries around the world will continue
to pose a threat to US and other western interests. The plotters
who carried out the September 11, 2001 attack maintained a
low profile and appeared to actively avoid coming to the attention
of law enforcement agencies. Such operational discipline underscores
the challenge to US law enforcement agencies in uncovering
and disrupting Al-Qaeda cells in the United States. Although
the public mind often groups international terrorists into
a standard stereotype, such a view fails to accommodate subtle
but important differences in goals and tactics among different
extremist movements. Despite the military setbacks suffered
by Al-Qaeda, extremists adhering to the international jihad
movement will continue to focus on attacks that yield significant
destruction and high casualties, thus maximizing worldwide
media attention and public anxiety. It also appears likely
that as governments "harden" official targets, such
as Embassies and international schools, these terrorists will
increasingly seek out more vulnerable "softer" targets,
such as high-profile offices of multinational firms and Americans
traveling and working abroad.
Terrorism
represents a continuing threat to the United States and a
formidable challenge to the FBI. In response to this threat,
the FBI has developed a broad-based counterterrorism program,
based on robust investigations to disrupt terrorist activities,
interagency cooperation, and effective warning. While this
approach has yielded many successes, the dynamic nature of
the terrorist threat demands that our capabilities continually
be refined and adapted to continue to provide the most effective
response.
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