A COMPLETE GUIDE TO
UNDERSTANDING, PREVENTING,
AND SURVIVING TERRORISM

M

M A

A R

R K

K S

S A

A U

U T

T E

E R

R

Chief Operations Officer
Chesapeake Innovation Center

J

J A

A M

M E

E S

S J

J A

A Y

Y C

C A

A R

R A

A F

F A

A N

N O

O

Senior Fellow for Defense and Homeland Security
The Heritage Foundation

M

C

G

RAW

-H

ILL

New York / Chicago / San Francisco / Lisbon / London / Madrid / Mexico City

Milan / New Delhi / San Juan / Seoul / Singapore / Sydney / Toronto

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Copyright © 2005 by The McGraw-Hill Companies, Inc. All rights reserved. Printed in
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or by any means, or stored in a data base or retrieval system, without the prior writ-
ten permission of the publisher.

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Dedication?????

didn’t have a word file
to put in here.

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v

C O N T E N T S

I N T R O D U C T I O N

Every American Has a Role in Homeland Security

xiii

P A R T 1

HOW WE GOT HERE FROM THERE: THE EMERGENCE OF
MODERN HOMELAND SECURITY

C H A P T E R 1

Homeland Security: The American Tradition

3

Chapter Overview

3

Chapter Learning Objectives

4

The Earliest Days: Securing Borders and Coasts

4

Threats from Within

5

The New Great Power Faces Foreign Threats

9

World War I: Defense against Sabotage

9

World War II

11

The Cold War

13

The Threat of Shadow War

14

The Emerging Threat to America’s Homeland

16

Chapter Summary

18

Chapter Quiz

19

Notes

19

C H A P T E R 2

The Rise of Modern Terrorism: The Road to 9/11

23

Chapter Overview

23

Chapter Learning Objectives

24

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Twenty-First Century Terrorism

24

Global Goals

25

A Sophisticated, Worldwide Organization

26

Effects of Twenty-First Century Terrorism

31

Highly Efficient Attack

35

Threat of Weapons of Mass Destruction

35

Chapter Summary

37

Chapter Quiz

38

Notes

38

C H A P T E R 3

The Birth of Modern Homeland Security: The National Response
to the 9/11 Attacks

41

Chapter Overview

41

Chapter Learning Objectives

42

The Response to Twenty-First Century Terrorism

42

Taking the Offensive

42

International Cooperation

46

Defensive Efforts

48

Chapter Summary

57

Chapter Quiz

57

Notes

57

P

P A

A R

R T

T 2

2

UNDERSTANDING TERRORISM

C H A P T E R 4

The Mind of the Terrorist: Why They Hate Us

63

Chapter Overview

63

Chapter Learning Objectives

63

Defining Terrorism

64

Why Terrorism

66

Types of Terrorist Groups

73

Suicide Terrorism

78

The Drive for Mass Destruction

80

Chapter Summary

81

Chapter Quiz

81

Notes

82

C H A P T E R 5

Al-Qaida and Other Islamic Extremist Groups: Understanding
Fanaticism in the Name of Religion

85

Chapter Overview

85

Chapter Learning Objectives

86

vi

CONTENTS

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The Muslim World

86

Ideology of Terrorism

89

Common Front against the West

97

Islamic Terrorist Groups

100

Chapter Summary

100

Chapter Quiz

100

Notes

100

C H A P T E R 6

The Transnational Dimensions of Terrorism: The Unique Dangers
of the Twentry-First Century

103

Chapter Overview

103

Chapter Learning Objectives

104

America in a Globalized World

104

Defining Transnational Terrorism

105

Current Threat

112

Profiles of Significant International Terrorist Groups

114

Chapter Summary

114

Chapter Quiz

114

Notes

114

C H A P T E R 7

Domestic Terrorist Groups: The Forgotten Threat

117

Chapter Overview

117

Chapter Learning Objectives

118

The Enemy Within

118

Defining Domestic Terrorism

118

The Incidence of Domestic Terrorism

119

Prevalence of Domestic Terrorism

121

Profiles of Significant Domestic Terrorist Groups and Extremist Movements

123

Evolving Threat

129

Chapter Summary

131

Chapter Quiz

131

Notes

131

C H A P T E R 8

Terrorist Operations and Tactics: How Attacks Are Planned
and Executed

133

Chapter Overview

133

Chapter Learning Objectives

134

Terrorist Planning

134

The Terrorist Organization

136

Terrorist Support Operations

139

Phases of a Terrorist Attack

140

Terrorist Operations

142

Chapter Summary

151

Chapter Quiz

151

Notes

152

CONTENTS

vii

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C H A P T E R 9

Weapons of Mass Destruction: Understanding the Great Terrorist
Threats and Getting beyond the Hype

153

Chapter Overview

153

Chapter Learning Objectives

154

Weapons to Worry About

154

Chemical

155

Biological

161

Radiological

168

Nuclear

172

High-Yield Explosives

176

Chapter Summary

178

Chapter Quiz

179

Notes

179

C H A P T E R 1 0

The Digital Battlefield: Cyberterrorism and Cybersecurity

187

Chapter Overview

187

Chapter Learning Objectives

187

The Threat

188

Insider Attacks

188

Outsider Attacks

189

Cyberattacks

190

Terrorist Use of Cyberspace

192

The Current State of Defenses

193

Protecting Your Business

199

Prospects for the Future

202

Chapter Summary

203

Chapter Quiz

203

Notes

203

P A R T 3

HOMELAND SECURITY: ORGANIZATION, STRATEGIES,
PROGRAMS, AND PRINCIPLES

C H A P T E R 1 1

Homeland Security Roles, Responsibilities, and Jurisdictions:
Federal, State, and Local Government Responsibilities

209

Chapter Overview

209

Chapter Learning Objectives

210

The New Normalcy

210

The National Concept of Protecting the Homeland

210

Organizing for Domestic Security

211

Federal

212

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The Role of the Congress

230

State and Local Governments

231

Chapter Summary

233

Chapter Quiz

234

Notes

234

C H A P T E R 1 2

America’s National Strategies: The Plans Driving the War on
Global Terrorism and What They Mean

237

Chapter Overview

237

Chapter Learning Objectives

238

What Is a Strategy?

238

National Security Strategy

240

National Strategy for Combating Terrorism

241

National Strategy to Combat Weapons of Mass Destruction

243

National Military Strategy

244

National Strategy for Homeland Security

245

National Strategy for the Physical Protection of Critical Infrastructures and

Key Assets

248

National Strategy to Secure Cyberspace

249

National Money Laundering Strategy

250

National Drug Control Strategy

250

Assessing the National Strategies

251

Chapter Summary

258

Chapter Quiz

259

Notes

259

C H A P T E R 1 3

Domestic Antiterrorism and Counterterrorism: The New Role for
States and Localities and Supporting Law Enforcement Agencies

261

Chapter Overview

261

Chapter Learning Objectives

262

The Front Lines of Terrorism

262

Jurisdictions and Responsibilities

263

State and Local Planning

263

Response

278

Chapter Summary

280

Chapter Quiz

281

Notes

281

C H A P T E R 1 4

Critical Infrastructure Protection and Key Assets: Protecting
America’s Most Important Targets

283

Chapter Overview

283

Chapter Learning

283

ObjectivesLifeblood of the U.S. Economy

284

Means for Protecting Critical Infrastructure

286

CONTENTS

ix

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Types of Critical Infrastructure

290

Chapter Summary

304

Chapter Quiz

304

Notes

304

C H A P T E R 1 5

Incident Management and Emergency Management: Preparing for
When Prevention Fails

307

Chapter Overview

307

Chapter Learning ObjectivesThinking …

307

and Experiencing the Unthinkable

307

The Emergency Response Challenge

308

Management of Domestic Incidents

310

The All-Hazards Approach

314

Principles and Components of Emergency Management

315

Emergency Management Systems and Operations

316

The Future of National Domestic Incident Management

321

Challenges for State and Local Government Emergency Operations Planning

325

Chapter Summary

328

Chapter Quiz

328

Notes

329

C H A P T E R 1 6

Business Preparedness, Continuity, and Recovery: Private-Sector
Responses to Terrorism

331

Chapter Overview

331

Chapter Learning Objectives

331

New World of Disorder

332

Definitions and Standards

333

Changing Business Environment: The Usama Effect

334

Legal Issues

334

Planning for the Worst

336

Supply Chain Security

345

Physical Security

346

Information Technology Continuity and Recovery

347

Chapter Summary

348

Chapter Quiz

348

Notes

348

C H A P T E R 1 7

Public Awareness and Personal and Family Preparedness:
Simple Solutions, Serious Challenges

351

Chapter Overview

351

Chapter Learning Objectives

352

x

CONTENTS

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The Preparedness Challenge

352

Risk Communications

353

Individual, Family, and Community Antiterrorism Measures

360

Principles of Emergency Preparedness Planning

362

Indications of a Terrorist Attack

370

Chapter Summary

371

Chapter Quiz

371

Notes

371

C H A P T E R 1 8

The Future of Homeland Security: Adapting and Responding to the
Evolving Terrorist Threat While Balancing Safety and Civil Liberties

373

Chapter Overview

373

Chapter Learning Objectives

374

The Future of Terrorism

374

The Future of Technology

380

The Future of Homeland Security Structures

384

Chapter Summary

386

Notes

386

A P P E N D I X 1

Profile of Significant Islamic Extremist and International Terrorist
Groups and State Sponsors

391

Profiles of Significant Islamic Extremist Terrorist Groups

391

Profiles of Significant International Terrorist Groups

412

Notes

439

A P P E N D I X 2

Volunteer Services

441

Volunteers Are “First Responders” Too

441

The Citizenry Organized—Volunteers

442

Notes

444

A P P E N D I X 3

The Media and Issues for Homeland Security

445

The Media

445

Notes

451

A P P E N D I X 4

Medical and Public Health Services Emergency and Disaster
Planning and Response: Public Health and Medical Organizations
Have Unique and Demanding Responsibilities for Preparing and
Responding to Terrorist Attacks

453

Federal Support for Medical Responses

453

Organizing State and Local Activities

453

CONTENTS

xi

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A P P E N D I X 5

Preparing and Responding to Threats against the Agriculture Sector

461

Federal Agricultural Security and Response Resources

461

Protection of Critical Agriculture Infrastructure

464

Preparedness and Response

466

I N D E X

469

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CONTENTS

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xiii

I N T R O D U C T I O N

EVERY AMERICAN HAS A ROLE IN
HOMELAND SECURITY

“Are you guys ready? Let’s roll.”

Todd Beamer, passenger of United Airlines Flight 93,
September 11, 2001

On September 11, 2001, United Airlines Flight 93 left Newark
International Airport in New Jersey bound for San Francisco,
California. Shortly after takeoff, a team of four terrorists seized control
of the plane. From cell phone conversations the passengers and crew
learned that other planes had been hijacked as well and crashed into
the Twin Towers at the World Trade Center in New York and the
Pentagon in Washington, DC. Passenger Tom Burnett called his wife
and reassured her, “Don’t worry. We’re going to do something.”
Burnett, fellow passenger Todd Beamer, and others rushed the terror-
ists. While Burnett and Beamer tried to retake control of the cockpit,
the plane crashed into a field in rural Pennsylvania killing all aboard.

The courage of the passengers and crew of Flight 93 prevented

an even greater tragedy. In the wake of the terrible 9/11 attacks,
however, Americans realized that determination and sacrifice
alone were not enough to meet the threat of transnational terror-
ism. In the years following, the nation undertook an unprece-
dented effort to provide for domestic security. Our purpose is to
describe the nature of the threat to the United States and how
America is responding to the danger of terrorism—the policies,

Sauter_FM_144064-X 3/17/05 10:33 AM Page xiii

principles, strategies, organizations, and programs that are respon-
sible for protecting the homeland, incorporating the efforts of the
federal government, state and local officials, business, nongovern-
mental organizations, and private citizens.

Many of the challenges presented by the tasks of homeland security

are ubiquitous. They affect the personal safety of every American and
impact every aspect of the nation’s political, financial, transportation,
health, and legal systems. By some estimates, $100 billion is spent
every year protecting Americans from harm.

1

There are few issues

more important for each and every citizen to understand. All of us
need a foundation in homeland security.

This text provides the three core elements of knowledge required

for understanding the challenge of protecting the homeland. Part 1
covers how we got here from there, outlining America’s traditional
approach to domestic security, the evolution of an unprecedented
terrorist threat that led to the September 11 attacks, and the nation’s
response to the events of 9/11. Part 2 offers an overview of con-
temporary terrorists—who they are, what they want, and how they
operate. This knowledge is essential to understanding the chal-
lenge of homeland security. You must “know your enemy.” Part 3
describes all the critical elements of the present homeland security
regime. Knowing the enemy is not enough; good security requires
“knowing yourself” as well. In respect to homeland security, that
means we all must understand the measures being taken by gov-
ernment officials, public servants, businesses, and average citizens.
Part 3 elaborates on the following key concepts: the definition
of homeland security, homeland security objectives, and roles and
responsibilities.

T H E D E F I N I T I O N O F H O M E L A N D S E C U R I T Y

The U.S. government defines homeland security as the domestic
effort (as opposed to the overseas war on terrorism) to defend
America from terrorists. In practice, homeland security efforts have
also come to comprise general preparedness under the all-hazards
doctrine, which focuses on common efforts that help prepare for both
terrorist attacks and other natural or human-made catastrophes, such
as hurricanes and accidental chemical spills.

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INTRODUCTION

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H

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s

The National Strategy for Homeland Security, released by the White
House in 2002, has significantly shaped America’s homeland security
agenda. The strategy set three strategic objectives:

•

Preventing Terrorism:

The top priority in America’s strategy, this objec-

tive includes improving “intelligence and warning” of terrorist
activities; “border and transportation security” to keep terrorists
and their weapons out of the country; and “domestic counterter-
rorism,” activities by domestic law enforcement agencies to pre-
vent and interdict terrorist activity.

•

Reducing Vulnerabilities:

This objective entails “protecting critical

infrastructure” and “defending against catastrophic terrorism,” or
preventing terrorists from acquiring and using weapons of mass
destruction and reducing the vulnerability of the nation to such
attacks.

•

Minimizing Damage and Recovering from Attacks:

The final strategic objective

involves improving the nation’s capability to respond if an attack
does occur. Enhancing “emergency preparedness and response”
includes coordinated incident management processes and effective
response capabilities, ranging from interoperable communications
to stockpiling of vaccines. Training and support to state and local
fire, emergency, and law enforcement personnel—often called “first
responders”—is a key part of this objective.

R O L E S A N D R E S P O N S I B I L I T I E S

The responsibility for achieving the national homeland security
objectives falls upon every segment of American society, starting with
federal, state, and local agencies, a vast and overlapping patchwork
of more than 87,000 organizations.

2

Virtually all public servants—police officers, firefighters, emergency

medical technicians, municipal workers, public health officials, prosecut-
ing attorneys, councilpersons, mayors, governors, congresspersons, and
employees at every federal agency—take part in protecting America from
the threat of terrorism.

INTRODUCTION

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They all must cooperate with the corporate sector to protect what

is called America’s “critical infrastructure.” As defined by Congress,
critical infrastructure means “systems and assets, whether physical or
virtual, so vital to the United States that the incapacity or destruction
of such systems and assets would have a debilitating impact on secu-
rity, national economic security, national public health or safety, or
any combination of those matters.”

3

In short, these are the physical

assets that serve as the foundation of the American way of life—our
governance, economic vitality, and free civil society.

Critical infrastructure sectors include agriculture, food, water, pub-

lic health, emergency services, government, the defense industrial
base, information and telecommunications, energy, transportation,
banking and finance, chemicals and hazardous materials, and postal
and shipping. Homeland security policy also focuses on protecting
cyberspace (the use of information technologies such as computers
and the Internet) and “key assets” such as national monuments (like
the Washington Monument in Washington, DC), nuclear power
plants, dams, government buildings, and commercial facilities such
as skyscrapers.

Because an estimated 85 percent of critical infrastructure is owned

by the private sector, American corporations and other commercial
organizations play a central role in protecting the homeland.
National homeland security efforts aim to coordinate and focus all
these public and private organizations, along with the citizenry, by
providing common priorities and principles, and coordinating
national activities.

A B O O K F O R P R O F E S S I O N A L S A N D C I T I Z E N S

It is no longer an option, but a civic obligation, for Americans
to understand the issues that confront our nation and do their part to
defend both security and civil liberties. Every American has a role
to play in the war against terrorism. Whether they are a government
official coordinating a response to a terrorist act, an emergency respon-
der rolling on a call, a citizen reporting a suspicious incident, a business
leader deciding how to best protect employees, or a voter struggling
with a controversial issue, all will benefit from a deeper understanding
of homeland security issues. Homeland Security: A Complete Guide to

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INTRODUCTION

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Understanding, Preventing, and Surviving to Terrorism provides essential
information for

•

Government leaders and managers

•

Emergency responders

•

Security personnel

•

Business executives

•

Concerned citizens

•

Volunteers

•

Students

•

Voters

P R A C T I C A L I N F O R M A T I O N

While the book explores both the theoretical and historical underpin-
nings of its topics, it is not primarily a work of theory or history.
Homeland Security is a practical textbook and reference source to help
its readers understand real-life situations, existing programs, and cur-
rent policies. The chapters of the book include essential information on

•

The most dangerous enemy groups facing our nation

•

The tactics and weapons terrorists plan to use against us, includ-
ing cyberterrorism and other modern threats

•

The truth behind the hype about weapons of mass destruction

•

Key national strategies for securing the homeland and combat-
ing terrorism, plus their implications for first responders, corpo-
rate America, and average citizens

•

The most important government and private-sector organiza-
tions involved in homeland security—what they do and how
they work, and sometimes don’t work, together

•

Practical resources to help readers protect themselves from dis-
asters and assist in the prevention of terrorism

INTRODUCTION

xvii

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L E A R N I N G O B J E C T I V E S ,
O R G A N I Z A T I O N , A N D S T Y L E U S A G E

Homeland Security is designed as a text for both academic and training
courses in homeland security and terrorism. It supports the learning
objectives established by the programs and guidelines of the Department
of Homeland Security and the United States Citizen Corps.

Chapters are presented in the order necessary to build a full con-

ceptual foundation for understanding and responding to the threat of
terrorism. Each chapter, however, stands alone. Each provides key
learning objectives and a chapter quiz. The material in each chapter
provides sufficient information to both master the learning objectives
and answer the questions posed at the end of the chapter. Appendices
provide additional information on niche areas of homeland security
that may be of interest to professional emergency responders.

Chapters also contain From the Source and Issues features. From

the Source features provide excerpts from actual documents that
influence homeland security policies. Issues features frame key con-
troversial questions regarding various aspects of homeland security
that remain subjects of ongoing debate. Both are provided as means
to stimulate additional discussion on the learning objectives set up in
each chapter.

Significant attention has been given to maintaining consistent style,

word usage, and definitions throughout the text. Readers will learn
about many international terrorist organizations and key terms associ-
ated with them. In general, the book follows the foreign language
guidelines of The Chicago Manual of Style and in specific adopts the style
of the U.S. State Department’s style for common usages such as
al-Qaida, Usama bin Ladin, and Hizballah. Where source documents are
quoted, their original spellings are maintained. Additionally, terms and
definitions regarding U.S. homeland security measures are consistent
with those currently used by the Department of Homeland Security.

A L A S T I N G C H A L L E N G E

The global war on terrorism will be a protracted conflict. We will need
homeland security for a long time. In the years ahead, many Americans
may find themselves playing roles they never expected. Most will meet

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INTRODUCTION

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their obligations in quiet ways. Some will be called upon to display
conspicuous heroism as shown by the emergency responders at the
World Trade Center and Pentagon, the passengers aboard Flight 93,
and the U.S. forces now battling terrorism around the world. All will
need as much knowledge as possible to be successful. Knowledge is the
first and most important shield in the war against terror. It is in that
spirit that Homeland Security is presented.

Mark Sauter and James Jay Carafano, Ph.D

Washington, DC

N O T E S

1. While the National Strategy for Homeland Security (September 2002), p. xiii, reports the

“United States spends roughly $100 billion per year on homeland security,” the actual
amount is open to debate. The cited estimate includes DHS agencies and federal, state,
and local first responders and emergency services, but excludes most military spending.
Private-sector estimates of total homeland security spending, which sometimes include
international purchases of technology, range up to $138 billion a year. However, some far
lower estimates focus on the increased spending due to the terrorist threat and exclude
“normal” spending on law enforcement, fire fighting, and emergency services.

2. Ibid, p. vii.

3. USA PATRIOT Act, Public Law 107-56 (October 26, 2001).

INTRODUCTION

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