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___ ------.......;t' Law Enforcement Sensitive

MEMORANDUM FOR THE RECORD Event: Cofer Black, DOS S/CT programs Type of event: Briefing Date: Aug. 14, 2003 Special Access Issues: None Prepared by: Susan Ginsburg Team Number: 5 Location: State Department Participants - Non-Commission: Ambassador Cofer Black, Coordinator for Counterterrorism (S/CT), Dept. of State; Karen Aguilar, Regional Multilateral Designations, S/CT

Participants - Commission: Chris Kojm

Depty. Exec. Dir.

202-331-4063

M. Elizabeth Swope

Leader, Team 5

202-401-1726

Susan Ginsburg

Counsel, Team 5

202-401-1747

Janice Kephart-Roberts

Counsel, Team 5

202-401-1705

Scott Allan

Team 3

202-331-4079

Documents/handouts received by the Commission: S/CT Organization Plan Designating Foreign Terrorist Organizations Under U.S. Law

S/CT Mission State Department Basic Authorities Act of 1956

TEXT: The State Department is the most important government agency in the "war on terrorism," because it is American diplomacy that enables other agencies - security, military-to go forward effectively. The two most important functions of S/CT are leadership and representation, especially regional geographic representation, development of contacts. There are those who help us and those who don't. S/CT's mission is to build the will and capacity to counter terrorism. Aspiration is for S/CT officers to be knowledgeable in CT policies, integrate world counterrorism structure that makes sense, need to re-prioritize

use of time and resources.

•

Post 9/11 meeting in the sit room on borders. Observation made that we have "no defended border" between US and Canada, escalated relations with the Canadians on border topics.

9/11 Agency

Internal

so

Matters

• Document fraud. Not involved in technical aspects - CA and DS. Visa policy. Weigh in with CA, not a primary issue.

•

Watchlist. Live discussions meeting attended by CA AlS (?) in Senior Steering Group watchlist at TIIC. Congress access is key. DHS is really assessing US vulnerabilities,

on future of the watchlist process. Today's NSC deputies Maura Harty backed up by S/CT person. S/CT participates at TIlC, with INR, DS, CA. Foresees integration of said there is not enough commonality, and broadest possible only a customer, so should not run the system. DHS focus is Hoover Dam. Master database does not present a problem

for TIPOFF . Ambassador Black reports to Dep Sec. Armitage.

•

Basic communications

Counterterrorism

mechanism for real time breaking events is 8 AM

Security Group video conference under Fran Townsend at NSC.

Helpful that Fran used to be a DOS, he used to be at CIA.

Designations of foreign terrorists by State and Treasury post 9/11 carried out pursuant to Exec Order 13224. 250 individuals and groups. Prior to 9/11, pursuant to Foreign Terrorist Organization process, 36 foreign terrorist organizations. Emphasized importance of balancing designation with other interests, such as intelligence activity. Object is not to designate, but to use as one tool to "get terrorists. "

Anti-Terrorist

Assistance program. Training. CT provides policy overlay, rank. orders

countries on basis of need. DS implements.

Patterns of Global Terrorism.

The definitive anti-terrorism Provides a vehicle to advance US perspectives.

account in the world.

Border screening. "Unwise to initiate policies that are fishing expeditions, to see what

•

we come up with." Policy is open doors, secure borders. Idea is to protect but not hassle. "Criteria of who to stop still emerging." Must identify measurables of who we want to stop. By country? Geneder? 3rd country passports because that's what US interested in .

Various regional and multilateral counterterrorism

efforts:

CICTE for OAS, chairmanship EI Salvador, new and has potential, focus on communication and training assistance. G-8. more bureaucratic and problematic. OSCE. Passports and biometrics. 55 countries.

Country policy coordination and guidelines is from NSC, with broad brush stroke. Policy Coordinating

Committee and CSG.

Terrorist flr:::Je .. Biggest growth area for S/CT. Training to financial units and lawmakers.

Important thing is "taking money away from the right people." ,

S'CF hasgrown

.

from about 20 to nearly 100 people.

9/11 Agency

•

Internal

Matters

70

,

Appropriations

for Fiscal Year 1999 (Public

.

t;~t ..~r·st;~ ..Ad";;;i~~t;~ti~~·~r·F~;~~ ..M:

91 91

91 d·~~~~~·~~g;.~~··~~~~:~~:::~:~:::::~:~~::~~~~~~~~~~~~~~::~: 91 (Publie Law 96-449)

..

93

1. State Department

Basic Authorities

Act of 1956

Public Law 84-885 [So 2569], 70 Stat. 890, approved August amended AN ACT To provide certain basic authority

1, 1956, as

for the Department

of State.

Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, That this Act may

be cited as the "State Department TITLE I-BASIC

Basic Authorities

AUTHORITIES

GENERALLY

ORGANIZATION OF THE DEPARTMENT SECTION

1. (a)

*

*

SECRETARY

(£)1 COORDINATOR

*

Act of 1956".

OF STATE

OF STATE.-

*

*

FOR COUNTERTERRORISM.-

*

*

(1) IN GENERAL.-There is within the office of the Secretary of State a Coordinator. for Counterterrorism (in this paragraph referred to as the 'Coordinator') who. shall be appointed by the President, by and with the advice and consent of the Senate .

. . (2) DUTIES.-

(A) IN GENERAL-The Coordinator shall perform. such duties and exercise such powers as the Secretary of State shall prescribe. (B) DurIES DESCRIBED.-The principal duty of the Coordinator shall be the overall supervision (including policy oversight of resources) of international counterterrorism activities. The Coordinator shall be the principal adviser to the Secretary of State on international countertelTOrism. matters. The Coordinator shall be the principal counterterrorism official within the senior management of the Department of State and shall report directly to the Secretary of State. (3) RANK AND STATUS .OF AMBASSAOOR.-The Coordinator shall have the rank and status of Ambassador at Large." ..

*

*

*

*

*

*

SEC. 36.· DEPARTMENI' OF STA1E REWARDS PROGRAM. (a) ESTABLISHMENT.-

*

(1) IN GENERAL-There is established a program for the payment of rewards to carry out the purposes of this section.

~ .. :

I See. <0 was added by See. 2801(a) of Public Law 105-277 (112 Stat. 2681-824) 222 U.s.C. 2708. Sec 36 WIL8 added by sec. 102 of Public Law 9S-533 (98 Stat. 27OB). It was eubsequently ameDded by Public Law 100-690 (102 Stat. (287); by Public Law 103-236 (lOB Stat. 619); by Public Law 104-134 (110 Stat. 1321-45); In 1998, sec. 36 was ameDded both by lee. 2202 of Public Law 105-277 (112 Stat. 2681-805) and subsequently by sec. 101 of Public Law 105-323 (112 Stat. 3029).

(71)

.oJ ned person " means a person that makes in section 1604(a). nited States assistance" means;~stance under the Foreign Assistance Act of 2151 et. seq.), other than urgent humanior medicine; to stance under the Arms Export Control A

Ig'

f

b~ the Commodity

Credit Corporation

agncultural commodities; and

g under the Export-Import

for

5. International Partial

text

Security

or Public

Bank Act.

and Development of 1985

Cooperation

Law 99-83 [So 960], 99 Stat. 190, approved 1985 as amended

Act

August 8,

AN ACT To authorize internationel development and security assistance programs and Peace Corps programs for fiscal years 1986 and 1987, and for other purposes.

Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, SECTION

1. SHORT TITLE AND TABLE OF CONTENTS.

(a) SHORT TITLE.-This Security and Development

*

*

Act may be cited as the "International Cooperation Act of 1985".

*

*

*

*

TITLE V-INTERNATIONAL TERRORISM AND FOREIGN AIRPORT SECURITY 1 PART A-INTERNATIONAL

TERRORISM GENERALLY

SEC. 501.· • • SEC. 502. COORDINATION OF ALL UNITED STATES TERRORISM-RELATED ASSISTANCE TO FOREIGN COUN'1RIES.

(a) COORDINATION.~The Secretary 'of State shall be responsible for coordinating all assistance related to international terrorism which is provided by the United States Government (b) REpORTS.-Not later than February 1 each year, the Secretary of State, in -consultation with appropriate United States Government agencies, shall report to the appropriate committees of the Congress on the assistance related to international terrorism which was provided by .the United States Government during the preceding fiscal year. Such reports may be provided on a classified basis to the extent necessary, and shall specify the amount and nature of the assistance provided. (c) RULE OF CONSTRUCTlON.-Nothing contained in this section shall be construed to limit or impair the authority or responsibility of any other Federal agency with respect to law enforcement, domestic security operations, or intelligence activities as defined in Executive Order 12333.2

:-106 (110 Stat. 494) amended and restated

subpara. (A),

eign AsaistaDCe Act ot 1961, other thanJt&Dce or meclicine; and r 11 of part I (as enacted by the Freedom tor Russia and J and Open Markets Support Act ot 1992);".

lSee Section F for the text ot legislation on foreign airport security. 2For text, see U.s. Congreas. House. Committee OD Intemational Relations. Fo~i81l Relationa Th.,!,Ugh 1996, (Washington, G.P.O., 1997). vol. II, sec. D. (35)

LegisUJtioll

Oil

, ~uthorization Act, Fiscal Years 1992 and 1993 ~ .. cLaw 102-188 [H.R. 14 October 28 , 1991 ,amen d··

5 y

tat.

647, approved

appropriations for fucal years 1992 and 1993 f th :ment of State, and for other purposes. or e

!

~ Se!Wcteand House of Representatives of the rica tri ongress assembled ,

!LE.

~~a:9~;.

"Foreign Relations Authorization

*

*

*

*

*

*

*

*

therJft.er~ Gene':Je:::dtary

di:

·puryoses of this sectioncoruns tries", refers to countries destate under section 4O(d) of the

~r:!~ :i~ ~ ~tional

terrorism" has the m . . of the Foreign Relatio:A~~ryen 1988 and 1989. nza-

~14O(d)

&:

RelaUons Autborizat· A F' ;}, &truck out "TreasuJn.ndc~e= ~ Ithe994 and 1995 ey General and ap . te· '. reof "Treas4 (109 Stat. prop.na investigatIve llgeDciea,". lep . 186) pro\'lded that retereDOes to the Committee · H re&eDtofatiRepvea shaD be treated as reterriDg to the Co ·t ouse reaentativea IIUD.I Relations Autbo· t· A· · added this JOD ct, Fiscal Y.... 1994 and 1995

aente='

(86)

Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, SECl'ION 1.1 SHORT TITLE AND TABLE OF CONTENTS. (a) SHORT TITLE.-This Act may be cited as the

"Foreign Relations Authorization Act, Fiscal Years 1988 and 1989".

*

*

*

*

GRESS -~ 90 da . md e~e1Y 365 days the date of sulta~on with the Attorney ~eDC1es,2 shall submit to the Committee ap~e Co~ttee on Finance of the Senate ~ ~ Affairs 3 and the Committee on Wa ~ or Repre~ntatives a report describing ~~ts.held In the United States by terro~ tiC?nengaged In mternational te . · 1. ie a detailed list and descri~~~f

I

ment of State, the United States Information Agency, the Voice of America, the Board for International Broadcasting, and for other purposes.

*

*

*

*

*

DEPARTMENT OF STATE

PART B-DEPARTMENT

mRORIST ASSETS IN THE UNl'IED STA1ES

'S

AN ACf To authorize ap'pro'priations for fiscal years 1988 and 1989 for the Depart-

TITLE I-THE

>REIGN POLICY PROVISIONS

Act, Fiscal Years 1988

partial text of Public Law 100-204 [H.R. 1777], 101 Stat. 1331, approved December 22, 1987, as amended

*

SCELLANEOUS FOREIGN POLICY PROVISIONS

*

6. Foreign Relations Authorization and 1989

OF STATE AUTHORITIES

*

*

*

AND ACTIVITIES

*

SEC. 140.1 ANNUAL COUNTRY REPORTS ON TERRORISM. (a) REQUIREMENT OF .ANNuAL COUNTRY REPORTS

* ON TERROR-

ISM.-The Secretary of State shall transmit to the Speaker of the House of Representatives and the Committee on Foreign Relations of the Senate, by April 303 of each year, a full and complete report providing. (1) detailed assessments with respect to each foreign country-

(A) in which acts of international terrorism occurred which were, in the opinion of the Secretary, of major significance;

(B) about which the Congress was notified during the preceding five years pursuant to section 6(j) of the Export Administration Act of 1979; and (C) which the Secretary determines should be the subject of such report; 4 (2) all relevant information about the activities during the preceding year of.anyterrorist group, and any umbrella group under which such terrorist group falls, known to be responsible for the kidnapping or death of an American citizen during the 122 us,o. 2651 note. 222 u.s.c. 2656f. 8Sec. 122 of the Foreign Relations Authorization Act, Fiscal Years 1990 and 1991 (Public Law 101-246; 104 Stat. 27), struck out "March 81" and inserted in lieu thereof -April 30". 4 Sec. 578(1) of the Foreign Operations, Export Financing, and Related Programs Appropriations Act. 1997 (sec. 101(c) of titie I of the Omnibus Consolidated Appropriations Act. 1997; Public Law 104-208; 110 Stat. 3009), struck out "'and" at the end of para. (1), struck out a period at the end of para. (2) ~d inserted instead a semicolon, and added new paras. (8) and (4). (87)

88 preceding five years, any terrorist group known to be fins by countries about which Congress was notified during the ceding year pursuant to section 6(j) of the Export Admini tion Act of 1979, and any other known international ten group which the Secretary determines should be the subjE such report; 4 (3) 4 with respect to each foreign country from whicl: United States Government has sought cooperation durire previous five years in the investigation or prosecution of a of international terrorism against United States citizens ( terests, information on(A) the extent to which the government of the fo country is cooperating with the United States Govern in apprehending, convicting, and punishing the indiv or individuals responsible for the act; and (B) the extent to which the government of the fo country is cooperating in preventing further acts of tE ism against United States citizens in the foreign cou and . (4)4 with respect to each foreign country from whicl United States Government has sought cooperation durin; previous five years in the prevention of an act of interna1 terrorism against such citizens or interests, the informatic scribed in paragraph (3XB). (b) PROVISIONS To BE INCLUDED IN REPORT.-The repor QUired under subsection (a) should to the extent feasible in (but not be limited to). (1) with respect to subsection (aXl}(A) a review of major counterterrorism efforts u taken by countries whiCh are the subject of such repoi eluding, as appropriate, steps taken in International (B) the response of the judicial system of each 00 which is the subject of such report with respect to mr relating to terrorism affecting American citizens or ~ ties, or which have, in the opinion of the Secretary, : nificant impact on United States counterterrorism ei including responses to extradition requests; and (C) ~cant sup~rt, if any, for international t ism by each country which is the subject of such repoi eluding (but not limited to}(i) p
use

grou(.IV)psthand ;e POSItiOns .. (i1ncluding ...; reco rd s ) on U voung ters relating to terrorism in the General Asseml the United Nations and other international bodie fora of each country which is the subject of sue port; and (2) with respect to subsection (aX2), any(A) sigriificant financial support provided by foreigr ernments to those groups directly, or provided in su of their activities; ntY'

S/CT Mission The primary mission of the Office of Counterterrorism (S/CT) is to ensure that the policies, plans and activities of foreign governments support the United States' objectives in the Global War on Terrorism (GWOT). S/CT will accomplish this mission through intense diplomatic engagement with foreign governments and comprehensive command and coordination of all USG international counterterrorism (CT) policy and programs. S/CT's efforts both contribute to the safety of Americans abroad, and bolster the security of our homeland. Roles

of S/CT in Counterterrorism

The Department is the first among equals in USG agencies that deal with international CT. The political will garnered through diplomatic engagement is essential to the success of military, law enforcement, intelligence and financial activities in the GWOT. Given its importance, S/CT will focus on its primary mission. My top priority is to induce foreign governments to cooperate as effectively as possible in the GWOT both 'bilaterally with the u.s. and multilaterally with international and regional organizations. Our goal is to create coalitions that identify, deter, apprehend and prosecute terrorists. S/CT programs

include:

• Anti Terrorism Assistance (ATA) • Terrorist Interdiction Program (TIP) • CT Public Diplomacy • Foreign Emergency Support Team (FEST) • Technical support Working Group (TSWG) • counterter~orism Financing (CTF) Training •

Assistance Designations

of Terrorist

Organizations

and Technical

and Supporters

of

Terrorism S/CT is pressing various policy i~itiatives with other governments to combat terrorism: stopping terrorist fundraising; improving border controls and travel documents; encouraging adherence to international treaties and conventions on terrorism and new conventions against terrorist bombings and fund raising; higher security standards for air and ground transportation systems; and countering weapons of mass destruction. S/CT Leg~slative Issues include:

2 •

Treaties: Obtain Senate ratification of convention against -terrorist bombings, and convention to suppress terrorism fund raising. Both "have been submitted to Congress, Justice is finalizing the implementing legislation.

•

Sanctions potential considered fix Trade loopholes

legislation: Protect CT interests and close loopholes in Export Administration Act being by Senate Banking Committee. Support efforts to Sanction and Effective Penalty Reform Act of 2000 including ones allowing exports to FTOs.

o Obtain full appropriation requested for ATA program and TIP and support full funding of CJS appropriation.Bill request which funds the CT R&D program. •

FTO Process: Obtain legislative improvements in Foreign Terrorist Organization (FTO) provisions in the Antiterrorism and Effective Death Penalty Act of 1996, to make the implementation more workable. o Make permanent the S Visa provisions, which resettlement in US if necessary to protect rewards recipient and immediate families. authority expires in November.

facilitate terrorism Current

SICT Organization Plan

•

Coordinator for Counterterrorism Amb. Cofer Black

Personal Assistant Libby Braun

Principal Deputy Coordinator William Pope

Personal Assistant Sandy Phelps

Staff Assistant

Special Assistant

Kathleen

James Neel

H.-Floyd

Homeland Security Unit

•

• Mitch Optican • Rob Dolce

1 R.Gain

K. Wycoff

Designations K. Aguilar

See Page 2

II

9/11 Agency

I

See Page 3

I

,

Budget Planner

Budget Implementer

•

Operations (Amb. J. Dinger)

.Administration

Program~ Legislation, PD

Regional Multilateral

Liaison Officers

I-

Internal

Matters

See Page 4

Assistant S.Bell

Conferences

1 08/11/2003

SICT Organi1Ation Plan Deputy Coordinator Regional and Multilateral .Affairs and Designations Karen Aguilar OMS Pat Chambers

OMS M. Jablonsky Office Director Brent Hartley

Multilateral I G-8 • Chris Ensley • Sally Schlegel

,------------i-------------

~------------------ -------------------~ II Regionals

EAP •Erik Rye -Paul Fujimura -Karen Chandler

EUR - (Marc Norman) - (John Sullivan)

AF -Lee MacTaggart -FS to be Advertised -Katy Gore

I I I I

I

WHA -Tom Cooney -Everett Kaplan •Adam Frankel

SA - Mark Wildermuth • Ruth Parent • Stephanie Molnar

NEA • Mark Shaheen - Miller GS Position

----------------------------------------

Designations

I I

I

I I I I

• S. Fox

• T. Navratil

~ ~

I I

I

I I I I I I I

I I I I I I I

Exec Order - Ms. Sarraf

I--

-

FTO • M.Jacks I

I

I

I

I I

I I I I I I I I I I

I I

,I

. I I

I

I I I

I

I I I I I

-GS to be advertised

I--

~

FTO - T. BaconGonzalez

I I I I

I I

L

I

I

~

FTO • Rob Goodson

--------~

2

08/11/2003

I I I

I

I I

I

I I I I I I I

SICT Organization Plan Associate Coordinator Programs, Legislation and Public Diplomacy Karl Wycoff

OMS

OMS

Receptionist Vacant

J. Redfern

Office Director (and R&DrrSWG)

Mike Jakub

Legislative - Mike Kraft

r---------- ----------Capacity

Building

Wisniewski

Senior Policy WorkShops -G. Stinson -H. Medeiros

----------------------

3 08/11/2003

S/CT Operations

Navy

•

Hill Annex

Associate Coordinator Operations (Amb. John Dinger)

OMS Deborah Watson Office Director Tom Hastings

TOPOFF Vacant

'--------11

1

R. ~:~~....

__________________ ~ ~__-~--~---~---~---~-,~~~~~--~---~---~--~---~---~-_J, Director of Plans/Policy

I

•

-Mark Thompson -James Webster

,: :

Director Crisis Res onse

I

I

-Tim Walsh

,, I

,

I

9/11 Agency Internal Matters

9/11 Agency Internal Matters

Reserve Augmentation Part-Time and Full-Time DODReservists Commo Support FEST -Mike Cifarelli -Tom McCue •Doug Rhodes (IRM)

i

Sensitive Support

i

9/11 Agency Internal Matters

I

I

r

, I

~-------------------------------------I

'

-------------------------------------

• 08/11/2003

4

9/11 Agency

•

Internal

Matters

DESIGNATING

FOREIGN TERRORIST ORGANIZATIONS U.S. LAW

UNDER

•

The process of designating a Foreign Terrorist Organization under the authorities of the Antiterrorism and Effective Death Penalty Act of 1996, Public Law 104132, Section 301) is a detailed and extensive effort. The State Department, working closely with the intelligence community, and Departments of Justice and Treasury, must first compile an Administrative Record an exhaustive dossier of evidence -- that documents the group's involvement in terrorist activities. Both classified and unclassified sources are used in preparing the administrative record.

•

This administrative record then undergoes an extensive interagency review as the Secretary of State's designations must be made in consultation with Attorney General and the Secretary of Treasury.

•

Congress also included in the 1996 law a provision that makes a designation subject to judicial review in the U.S. Court of Appeals for the District of Colombia. Thus, the Administrative Record, which is usually classified because it contains intelligence material, must withstand court scrutiny. (Several groups have challenged the designations. Thus far, the Court has upheld the designations.)

•

Seven days before publishing an FTO designation in the Federal Register, the Department of State provides classified notification to Congress. The designation takes effect upon publication.

•

FTO designations expire in two years unless renewed. The law allows groups to be designated at any time following a decision by the Secretary, in consultation with the Attorney General and the Secretary of the Treasury. The Secretary may also revoke designations after determining that the statutory requirements have been met.

*

Sec. 219 of the Immigration and Nationality Act, which was amended by the Antiterrorism and Effective Death Penalty Act of 1996, defines terrorist activity to mean: any activjty which is unlawful under the laws of the place where it is committed (or which, if committed in the United States, would be unlawful under the laws of the United States or any State) and which involves any of the following: (I) The highjacking

or sabotage of any conveyance (including an aircraft, vessel, or vehicle).

(II) The seizing or detaining, and threatening to kill, injure, or continue to detain, another individual in order to compel a third person (including a governmental organization) to do or abstain from doing any act as an explicit or implicit condition for the release of the individual seized or detained. (III) A violent attack upon an internationally

.

protected person (as defined in section 1116(b)(4)

of title 18, United

States Code) or upon the liberty of such a person. (IV) An assassination. (V) The use of any(a) biological agent,· chemical agent, or nuclear weapon or device, or (b) explosive or firearm (other than for mere personal monetary gain), with intent to endanger,

directly or indirectly,

the safety of one or more individuals or to cause substantial damage to property. (VI) A threat, attempt,

or conspiracy to do any of the foregoing.

(iii) The term "engage in terrorist activity" means to commit, in an individual capacity or as a member of an organization, an act of terrorist activity or an act which the actor knows, or reasonably should know, affords material support to any individual, organization, or government in conducting a terrorist activity at any time, including any of the following acts: (I) The preparation

or planning of a terrorist activity.

(II) The gathering of information

on potential targets for terrorist activity.

(III) The providing of any type of material support, including a safe house, transportation, communications, funds, false documentation or identification, weapons, explosives, or training, to any individual the actor knows or has reason to believe has committed

or plans to commit a terrorist activity.

(IV) The soliciting of funds or other things of value for terrorist activity or for any terrorist (V) The solicitation a terrorist activity.

of any individual for membership

in a terrorist organization, .

terrorist

organization. government,

or to engage in

TO: Office ATTN:

Erin

of Del. Hutchins

Joanne Accolla Crom:

nt: . a: Subject:

Betty Swope [[email protected]] Thursday, September 11,20037:06 AM [email protected] FW: Terrorist Interdiction Program documents

May 03 TIP FY 05 Budget program 100302 TIP OMB 02 1902 PISCES mmitee Program Re Justification.doc ... scription. doc (36 KE CPD FY04.doc ... Intro Paper.do...

-----Original Message----From: Wisniewski, Mark E [mailto:[email protected]] Sent: Wednesday, September 10, 2003 3:34 PM To: '[email protected]' Subject: Terrorist Interdiction Program documents Ms Swope: I was asked to forward to you copies of electronic documents we have that best describe the background, purpose and operation of S/CT's Terrorist Interdiction Program. I understand that you requested this information in the course of your recent meeting with Ambassador Black. Attached are five products that meet those criteria. I have a couple more that, although unclassified, have been stored on classified media and hence I must go through the process with our IT folks to have them properly transferred to unclass media before I can forward them. I anticipate no more than a one day delay. Three of the four documents attached represent material the department put together for the annual budget requests in the 2002 and 2003 timeframes. rk Wisniewski CT TIP Program Coordinator 7-6475 «May 03 TIP Commitee Program Review.ppt» «FY 05 Budget Justification.doc» description. doc» «10 03 02 TIP OMB CPD FY04.doc» «02 19 02 PISCES Intro

1

«program Paper.doc»

Terrorist Interdiction Program Description The effort to deter terrorism, and particularly prevent terrorist attacks on American soil, requires working with our global friends and allies to establish means to prevent the unrestricted movement of persons involved in terrorist activities. The Terrorist Interdiction Program (TIP) significantly contributes to this cause by serving to bolster the border security of countries at a high-risk of terrorist transit. Terrorists take advantage of nations with little or no effective capability to identify or track their passage, or otherwise restrict their freedom of movement. TIP is designed to counter this threat by serving as a foundation for increased counterterrorism cooperation and providing the means for participating nations to disrupt terrorist activities. TIP provides selected countries with a computerized system that allows border control officials to quickly identify suspect persons attempting to enter or leave the country through air, land and sea ports of entry. TIP also provides selected countries with the means to collect, compare and analyze traveler information and contribute to the global effort to understand terrorist methods and track their movements. By assisting countries to better control their borders TIP enhances the security of Americans both at home and abroad. TIP is a joint program that installs and maintains the Personal Identification Secure Comparison and Evaluation System (PISCES) at selected points of entry in a participating country. PISCES provides a high-speed secure connection from the participating country's central data base of suspect persons to air, land and sea points of entry where the system is installed. PISCES enables border officials to quickly input traveler infonnation contained in passports or other official documents to the database and obtain nearly instantaneous feedback on the traveler's status with respect to the government's listing of terror suspects. In addition to installing PISCES equipment at points of entry, and government headquarters facilities of the nation's choosing, TIP provides comprehensive training in PISCES operation and maintenance, as well as assistance with optimizing its employment in the country's border control and immigration program. There are presently 60 countries identified through a USG interagency process as potential recipients of TIP. These countries were selected based on known terrorist activity or terrorist transit, a need for the capability that PISCES provides, and the political will to participate with the United States in this program. While the initial installation of PISCES may only be at the participating nation's international airport(s), it is a goal of TIP to install the system at all significant air, land and sea points of entry. In FY 2005, the Department plans to conduct approximately 15 phased installations of PISCES in countries on the interagency tier list for TIP. Some of these installations may represent the initial increment of TIP in a particular country, while others would involve expansion of the number of sites where PISCES is operating in a country. The size, complexity and scope of these installations will vary according to the unique requirements and desires of the participating nation, as well existing priorities in response to the changing nature of the terrorist threat. The goal remains to install TIP as quickly and comprehensively as resources and circumstances permit.

Policy: Within S/CT, DOS and CTC Within the Interagency With Missions Among Host Nation Agencies

·····1d~ntifiea':E)cfi't~~ti(,n R ()ot~~"'D'o'rih Collected Country Watchlist Data Collected Country Traveler Data

Improve Immigration Controls Building Effective Watch listing Tighter immigration screening in more locations

Deployrri~~~tst~p~kistan,Afgh~hi~t~~,Yemen and Nepal Surveys in 17 countries Acceptance by 18 countries Revised PISCES "baseline" software

Use of local IT Vendors Improved Program Communications New Host Nation Demonstration New Information Materials New Video

Web Site

,,_,_'

.Regio nal'C~l1te""'('<""":""'"

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officials at a new level, with new officials Intelligence collection - from the moment of engagement through installation and support phases Provides continuing, increased access to Host Nation officials

Terrorist Interdiction Program Description The effort to deter terrorism, and particularly prevent terrorist attacks on American soil, requires : working with our global friends and allies to establish means to prevent the unrestricted movement of persons involved in terrorist activities. The Terrorist Interdiction Program (TIP) significantly contributes to this cause by serving to bolster the border security of countries at a high-risk of terrorist transit. Terrorists take advantage of nations with little or no effective capability to identify or track their passage, or otherwise restrict their freedom of movement. TIP is designed to counter this threat by serving as a foundation for increased counterterrorism cooperation and providing the means for participating nations to disrupt terrorist activities. TIP provides selected countries with a computerized system that allows border control officials to quickly identify suspect persons attempting to enter or leave the country through air, land and sea ports of entry. TIP also provides selected countries with the means to collect, compare and analyze traveler information and contribute to the global effort to understand terrorist methods and track their movements. By assisting countries to better control their borders TIP enhances the security of Americans both at home and abroad. TIP is a joint program that installs and maintains the Personal Identification Secure Comparison and Evaluation System (PISCES) at selected points of entry in a participating country. PISCES provides a high-speed secure connection from the participating country's central data base of suspect persons to air, land and sea points of entry where the system is installed. PISCES enables border officials to quickly input traveler information contained in passports or other official documents to the database and obtain nearly instantaneous feedback on the traveler's status with respect to the government's listing of terror suspects. In addition to installing PISCES equipment at points of entry, and government headquarters facilities of the nation's choosing, TIP provides comprehensive training in PISCES operation and maintenance, as well as assistance with optimizing its employment in the country's border control and immigration program. There are presently 60 countries identified through a USG interagency process as potential recipients of TIP. These countries were selected based on known terrorist activity or terrorist transit, a need for the capability that PISCES provides, and the political will to participate with the United States in this program. While the initial installation of PISCES may only be at the participating nation's international airport(s), it is a goal of TIP to install the system at all significant air, land and sea points of entry. In FY 2005, the Department plans to conduct approximately 15 phased installations of PISCES in countries on the interagency tier list for TIP. Some of these installations may represent the initial increment of TIP in a particular country, while others would involve expansion of the number of sites where PISCES is operating in a country. The size, complexity and scope of these installations will vary according to the unique requirements and desires of the participating nation, as well existing priorities in response to the changing nature of the terrorist threat. The goal remains to install TIP as quickly and comprehensively as resources and circumstances permit.

THE TERRORIST INTERDICTION PROGRAM NADR Account

Background The Terrorist Interdiction Program (TIP) is the Coordinator for Counterterrorism's (S/CT) response to the increasing ability of terrorists to cross international boundaries to stage terrorist attacks and escape undetected. TIP limits terrorists' capabilities to move freely amongst countries by assisting host countries in securing their borders. The program has three parts:

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Installing the Personal Identification Secure Comparison and Evaluation System (PISCES); Training immigration and customs officials to use PISCES; and Development, sustainment and management of the system.

PISCES is a database that provides border control officials with information that allows them to identify and detain or track individuals of interest. The system provides a high-speed, secure connection from a country's centralized data bank of suspects, located in the country's intelligence bureau, to points of entry where PISCES is installed. This allows border control officials to check passports quickly and accurately for the purpose of identifying terrorist suspects. Officials can also use PISCES to quickly retrieve information on persons who may be trying to hastily depart the country after a terrorist incident. Furthermore, TIP will train these border control officials to use PISCES to collect, compare and analyze data that can be utilized to arrest and investigate suspects. S/CT selects countries to participate based on the countries' volume of travel and use as a transit point, available intelligence information, and political will to cooperate. S/CT plans to add five countries per year over the next six years. This will require a significant increase in funding given the need to increase the number of installations per country (approximately $800k per "node"). Addressing multiple transit points within a country is essential to ensure TIP's maximum effectiveness, especially in countries at higher risk for transit of suspected individuals. Additionally, the program's success requires appropriate funding for the sustainment, system development and regional program management for the long-term. . Since September 11 and the addition of the Frontline States, we now have identified 57 countries as potential recipients of TIP. Our initial baseline goal was to install TIP in one to two airports in up to five countries annually -- a schedule that would take at least 12 years to complete at the current annual funding level. Supplemental is thus needed to ramp up installation of PISCES in multiple points of entry in a range of new countries as well as augment the number of nodes for some countries already in the TIP program.

Use of Funding

FY 2000 The Secretary allocated $1.25 million in FY 2000 for the TIP. S/CT, in conjunction with the interagency counterterrorism community, selected Pakistan for the TIP pilot project. Approximately $1 million was used to develop the PISCES software for Pakistan. The remaining $250,000 was provided to INTERPOL to upgrade the INTERPOL NCB in Islamabad, Pakistan.

FY 2001 The Secretary allocated $4 million in FY 2001 for the TIP. The Department will use approximately $1.5 million to install PISCES in the Karachi, Pakistan International Airport with associated links to key government ministries and agencies. More specifically, the funding will be used to install the infrastructure necessary to support PISCES and establish connectivity between arrival and departure lounges in the Karachi International Airport, the Federal Investigative Agency (FIA) in Karachi and Islamabad, the Intelligence Bureau (IB) in Karachi and Islamabad, the National Database and Registration Authority (NADRA) in Islamabad, and the Islamabad International Airport. This funding will also purchase the hardware and software necessary for installation and train border control officials to use PISCES. The Department will use the remaining $2.5 million for programs in the United Arab Emirates (UAB), Yemen, Kenya, and South Africa. Approximately $2,355,000 will be used for site assessments, contractor support, the purchase of hardware and software, training for border control officials, and the installation of PISCES in the U AE, Yemen, and Kenya (approximately $785,000 for each country). The Department also plans to use up to $145,000 for site assessments and contractor support in South Africa. In addition, TIP supported the upgrade of INTERPOL's communications system to transmit fingerprints, photos, and other graphics on a near-real time basis to and from a participating country's INTERPOL National Central Bureau (NCB) to other points on the INTERPOL network. Information from the NCB can then be entered into PISCES databases. This support will continue as required by the region.

FY 2002 The President's budget requested $4 million in FY 2002 for the TIP. Of this, approximately $640,000 will be used to complete installation of PISCES in South Africa and train border control officials to use PISCES. The remaining funding will be used to conduct site assessments, install the TIP, and train host country border control officials in the next priority countries. Prior to the terrorist attacks on 11 September 2001, we

planned to install TIP in Nigeria, the Philippines, Thailand, Bosnia, and Turkey. As a result of those attacks, the order of priority countries is shifting. FY 2002 program funds will be targeted towards countries identified as priorities based on more recent assessments of intelligence, strategic importance to the global counterterrorism campaign, and political will.

FY 2002 ERF Supplemental Beyond the planned FY 2002 program, $4 million in supplemental funds will be used to accelerate and broaden implementation of TlP assets in priority countries. The benefits of TlP _ giving states improved capability to interdict and prevent the transit of terrorist suspects - is a critical component of the global effort to fight terrorism. Supplemental funds will enable the Department to provide TlP to countries that have moved up on the priority list. Greece, for example, is a higher priority country due to the 2004 Olympics and its requirement for a strong border security system. Funds will also be needed to meet unforeseen requirements, such as a program in Indonesia, which the President offered to President Megawati Sukarnoputri in September 2001.

FY 2002 Supplementa@f?_~!:!'~~1..l~~~~_5!f~~~-T!-e.Y'!-~~-~!ti~~-!~f?~!!~~~_f~!_~~ TIP program and the increase in per-country requirements (more nodes per country plus sustainment) leaves a sizeable funding shortfall to meet the President's war on terrorism. Supplemental funding of $18 million is requested to meet near-term program requirements. The current funding plan (illustrated below) applies the FY 2002 annual and ERF supplemental funding to help fulfill these requirements, and reflects the need for FY 2002 emergency supplemental funding: Afghanistan Pakistan India Yemen Mexico Greece Kenya Indonesia philippines S. Africa Tanzania Jordan

UAB Malaysia Singa~ore Total

$2.5M $3.25M $3.25M $1.5M $2.5M $1.5M $1.5M $1.5M $1.5M $1.5M $1.5M $1.5M $.5M $1.5M ~l.5M $27M

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We believe investment in TIP provides a significant diplomatic engagement tool as well as a tactical intelligence measure that will help tighten the noose at key terrorist transit points world-wide. By assisting countries in securing their borders, TIP enhances the security of Americans who live and travel abroad. The program acts as both an entre' for USG diplomatic engagement with an host nation and acts as a clear indicator of its willingness to support the global campaign against terrorism.

PISCES Personal Identification Secure Comparison and Evaluation System

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The Personal Identification Secure Comparison and Evaluation System (PISCES) assists host countries in the global effort to combat terrorism and crime. It collects, compares and analyzes data gathered from travelers, allowing border control officials to quickly and easily identify suspect . individuals.

•

Introduction As the tragic events of September 11 remind us, terrorism is a global threat with global reach: although the attack occurred on American soil, citizens of more than 80 countries were killed in the strike. The proper use of intelligence is the only way to stay one step ahead of terrorist networks, disrupt their operations and protect innocent people around the world from their malicious intentions. But information, although abundant, is useless until it can be interpreted, managed and shared. The Personal Identification Secure Comparison and Evaluation System (PISCES) is a sophisticated border management tool and powerful high-tech weapon designed to help fight the global war against terrorism. PISCES provides host countries with the means to detect, prevent and deter global terrorist activities by collecting, comparing and analyzing traveler information at strategic transit points around the world. It is efficient and reliable, with low deployment and maintenance costs.

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• System Hardware and Software

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PISCES is a client-server system. This allows PISCES to operate in a stand-alone, LAN or WAN configuration. Included with the PISCES system are the necessary anti-viral and backup software and Microsoft Office suite, inc1uding the Word,.PowerPoint, Excel and Access programs .

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PISCES uses the Dell 6400 or 4400 servers and Dell 4100 clients. The operating system is Windows 2000 and the database management system is Oracle. A web browser interface allows quick access to foreign languages without changing the application code. It features the JAVA control programming language and compliance with the Open Database Connectivity Query Standard. The browser controls and supports rapid response for database functions, peripheral devices, and system administration. The system also features numerous peripherals to boost its effectives (see box below). All of these peripherals are modular and insulated from the application software by easily altered interface routines. That means if a new peripheral is needed, a different brand is purchased Of a new and improved version is released, the impact of such a change or upgrade is virtually unnoticed by the user.

Planning for and Installing PISCES

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Step 1: The Site Survey 9/11 Agency

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Network, software and facilities engineers perform a detailed site survey to determine the specific installation needs at each location where PISCES will be installed. Following the completion of a detailed questionnaire that examines the status andlor availability of electrical power, networking requirements, the system environment and other similar issues, the team creates a floor plan and power schematics to accommodate PISCES. The survey team typically includes a staff member who is prepared to discuss the PISCES project in detail. A 12-minute video, available in English and Arabic, further demonstrates the capabilities of the PISCES system. Before they depart the

team will prepare a list of any additional actions that are necessary to complete the installation of the system. This is called the After Action Report.

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Step 2: Planning, Ordering and Delivery Based on the After Action Report the PISCES team will prepare a project plan, system design, equipment inventories and installation and training plans. They will order all of the necessary equipment and will configure it for installation, loading the COTS and PISCES software. The team tests each PISCES system before it is installed to ensure that it is operating as required. Following the successful completion of this simulation, the computers will be packed for shipping.

Step 3: PISCES Installation When the final installation site is ready, a PISCES team will arrive to install the system and conduct a training. User's manuals and training materials will be provided-in the local language if necessary- to all personnel who will be using the system, such as customs and immigration officials, border guards, analysts and system administrators.

Future enhancements 9/11 Agency Internal Matters

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As technology becomes more sophisticated, so too do the practices of criminals and terrorist networks in their quest to evade detection. PISCES strives to stay one step ahead and has planned several critical upgrades for future versions of the system. Biometrics, for example, is a rapidly advancing and exciting new technology that will further enhance the effectiveness of the PISCES system. Below is a list of some of what's to come:

9/11 Agency Internal Matters

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Global Programs

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~ADR' TIP Program Background: As Sept. 11 made painfully clear, the United States has a major interest in preventing terrorists from crossing international borders to attack innocent civilian populations or to disrupt the internal stability of friendly countries. The Terrorist Interdiction Program (TIP) is designed to help prevent or disrupt travel of terrorists across international borders into high-risk countries that have little or no means of quickly identifying such persons. TIP complements existing anti-terrorism training programs by providing border control systems, incorporating computerized database programs and rapidly transmitting information to interdict potential terrorists and their weapons trying to cross international borders. In doing so, TIP bolsters the security of Americans at home and abroad.

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Specifically, the TIP program helps recipient nations improve border security by providing computer hardware, database software, peripheral devices-· such as passport scanners and finzernrint readers-training, and operational support that enables officials

9/11 Agency Internal Matters

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9/11 Agency Internal Matters s increase in the baseline capacity will allow the USG to meet current, emergency, and anticipated needs within the

budget.

The Need for Global Capacity-Building: Since the beginning of the war on terrorism, the President and other top

Administration and Congressional officials have emphasized the global nature of the terrorist threat and the need for a cooperative global attack to defeat it. This war extends

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Global Programs

beyond the battlefield in Afghanistan to every country where terrorist cells currently operate or have the potential to operate because of weak internal defenses. Because the tactics of terrorist movements today are highly unconventional, the United States cannot win this war by conventional military means alone. The efforts of Our armed forces must be complemented by effective, robust capacity-building programs overseas, which are aimed at bolstering the capabilities of U.S. allies to fight and mitigate terrorist activities. TIP does this by providing the necessary training, equipment, and technologies to host nation security and immigration officials. These are the forces that will be fighting international terrorism on a daily basis, protecting U.S. assets and interests overseas and preventing terrorists from ever reaching American soil in the first place. TIP is also a significant diplomatic engagement tool. The program acts as both an entre for USG diplomatic engagement with a host nation and acts as a clear indicator of its willingness to support the global campaign against terrorism. TIP Program Scope: TIP makes it harder for terrorists to enter vulnerable countries undetected by establishing a multiple-layered barrier program comprised of three elements: border monitoring, using lookout systems and passport scrutiny; updated intelligence and security databases and communications systems; and development of appropriate equipment to detect weapons. The program focuses on vulnerable countries that are key transportation hubs, havens or otherwise important international crossroads identi tied by intelligence analysis and interagency assessment teams. As demonstrated by the attacks of Sept. 11, the Cole attack, the Embassy bombings in East Africa in 1998, and other similar and deadly attacks, intercepting terrorists before they can move into position is key to preventing terrorist activities and saving lives.

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Following Sept. 11 the Three- Tiered Interagency Priority list of strategic countries increased' from 34 to 60 countries, including all Frontline states; thirteen of these have known terrorist nodes and are key transit points. Not only has the list of potential recipient countries increased significantly, but the country program resource requirements have as well. As noted above, the introduction of the pilot program in demonstrated the requirement for widespread installation of the system i throughout all of a country's entry and exit points as well as the necessity for a ! comprehensive program to ensure the proper management, training, and functioning of the system.

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Installing TIP in multiple points of entry within a single country increases its effectiveness in identifying terrorists as they transit that country's borders. Moreover, building a network of TIP countries exponentially increases the program's effectiveness by tightening the noose around free movement of terrorist suspects between countries .

But it also increases the cost of the program. 9/11 Agency

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Budgetary Requirements: As the President has said repeatedly, the fight against terrorism requires sustained efforts over time by the U.S/and its allies. Thus, the ramp-up of TIP in FY 2002 with supplemental funding should not be considered a one-time event. The TIP program needs to be sustained at ahigher than historical level to ensure that the increased number of countrie4 provided the system at a faster rate than initially envisioned and one which corresponds to the heightened security threats to the United States and to American citizens around the world .

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