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A COMPLETE GUIDE TO
UNDERSTANDING, PREVENTING,
AND SURVIVING TERRORISM

M A R K

S A U T E R

Founder and General Manager
American Institute of
Homeland Defense (AIHD)

J A M E S

J A Y

C A R A F A N O

Senior Fellow for Defense and Homeland Security
The Heritage Foundation

RAW

-H

ILL

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

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

Sauter_FM_144064-X 2/18/05 2:44 PM Page iii

Copyright © 2005 by The McGraw-Hill Companies, Inc. All rights reserved. Printed in
the United States of America. Except as permitted under the United States Copyright
Act of 1976, no part of this publication may be reproduced or distributed in any form
or by any means, or stored in a data base or retrieval system, without the prior writ-
ten permission of the publisher.

1 2 3 4 5 6 7 8 9 10 DOC/DOC 0 9 8 7 6 5

ISBN 0-07-144064-X

This publication is designed to provide accurate and authoritative information in
regard to the subject matter covered. It is sold with the understanding that neither the
author nor the publisher is engaged in rendering legal, accounting, futures/securities
trading, or other professional service. If legal advice or other expert assistance is
required, the services of a competent professional person should be sought.

—From a Declaration of Principles jointly adopted by a Committee

of the American Bar Association and a Committee of Publishers

McGraw-Hill books are available at special quantity discounts to use as premiums
and sales promotions, or for use in corporate training programs. For more informa-
tion, please write to the Director of Special Sales, McGraw-Hill Professional, Two
Penn Plaza, New York, NY 10121-2298. Or contact your local bookstore.

This book is printed on recycled, acid-free paper containing a
minimum of 50% recycled, de-inked fiber.

Library of Congress Cataloging-in-Publication Data

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C O N T E N T S

INTRODUCTION: 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

Chapter Overview

Chapter Learning Objectives

The Earliest Days: Securing Borders and Coasts

Threats from Within

The New Great Power Faces Foreign Threats

World War I: Defense against Sabotage

World War II

The Cold War

The Threat of Shadow War

The Emerging Threat to America’s Homeland

Chapter Summary

Chapter Quiz

Notes

C H A P T E R 2

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

Chapter Overview

Chapter Learning Objectives

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Global Goals

A Sophisticated, Worldwide Organization

Effects of Twenty-First Century Terrorism

Highly Efficient Attack

Threat of Weapons of Mass Destruction

Chapter Summary

Chapter Quiz

Notesv

C H A P T E R 3

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

Chapter Overview

Chapter Learning Objectives

The Response to Twenty-First Century Terrorism

Taking the Offensive

International Cooperation

Defensive Efforts

Chapter Summary

Chapter Quiz

Notes

P A

A R

R T

T 2

UNDERSTANDING TERRORISM

C H A P T E R 4

The Mind of the Terrorist: Why They Hate Us

Chapter Overview

Chapter Learning Objectives

Defining Terrorism

Why Terrorism

Types of Terrorist Groups

Suicide Terrorism

The Drive for Mass Destruction

Chapter Summary

Chapter Quiz

Notes

C H A P T E R 5

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

Chapter Overview

Chapter Learning Objectives

CONTENTS

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The Muslim World

Ideology of Terrorism

Common Front against the West

Islamic Terrorist Groups

Chapter Summary

Chapter Quiz

Notes

C H A P T E R 6

The Transnational Dimensions of Terrorism: The Unique Dangers
of the 21st Century

Chapter Overview

Chapter Learning Objectives

America in a Globalized World

Defining Transnational Terrorism

Current Threat

Profiles of Significant International Terrorist Groups

Chapter Summary

Chapter Quiz

Notes

C H A P T E R 7

Domestic Terrorist Groups: The Forgotten Threat

Chapter Overview

Chapter Learning Objectives

The Enemy Within

Defining Domestic TerrorismThe Incidence of Domestic Terrorism

Prevalence of Domestic Terrorism

Profiles of Significant Domestic Terrorist Groups and Extremist Movements

Evolving Threat

Chapter Summary

Chapter Quiz

Notes

C H A P T E R 8

Terrorist Operations and Tactics: How Attacks are Planned
and Executed

Chapter Overview

Chapter Learning Objectives

Terrorist Planning

The Terrorist Organization

Terrorist Support Operations

Phases of a Terrorist Attack

Terrorist Operations

Chapter Summary

Chapter Quiz

Notes

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

Chapter Overview

Chapter Learning Objectives

Weapons to Worry AboutChemical

Biological

Radiological

Nuclear

High-Yield Explosives

Chapter Summary

Chapter Quiz

Notes

C H A P T E R 1 0

The Digital Battlefield: Cyberterrorism and Cybersecurity

Chapter Overview

Chapter Learning Objectives

The ThreatInsider Attacks

Outsider Attacks

CyberAttacks

Terrorist use of Cyberspace

The Current State of Defenses

Protecting Your Business

Prospects for the Future

Chapter Summary

Chapter Quiz

Notes

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

Chapter Overview

Chapter Learning Objectives

The New Normalcy

The National Concept of Protecting the Homeland

Organizing for Domestic Security

Federal

viii

CONTENTS

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The Role of the Congress

State and Local Governments

Chapter Summary

Chapter Quiz

Notes

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

Chapter Overview

Chapter Learning Objectives

What is a Strategy?

National Security Strategy

National Strategy for Combating Terrorism

National Strategy to Combat Weapons of Mass Destruction

National Military Strategy

National Strategy for Homeland Security

National Strategy for the Physical Protection of Critical Infrastructures and

Key Assets

National Strategy to Secure Cyberspace

National Money Laundering Strategy

National Drug Control Strategy

Assessing the National Strategies

Chapter Summary

Chapter Quiz

Notes

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

Chapter Overview

Chapter Learning Objectives

The Front Lines of Terrorism

Jurisdictions and Responsibilities

State and Local Planning

Response

Chapter Summary

Chapter Quiz

Notes

C H A P T E R 1 4

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

Chapter Overview

Chapter Learning ObjectivesLifeblood of the U.S. Economy

Means for Protecting Critical Infrastructure

CONTENTS

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Types of Critical Infrastructure

Chapter Summary

Chapter Quiz

Notes

C H A P T E R 1 5

Incident Management and Emergency Management: Preparing for
When Prevention Fails

Chapter Overview

Chapter Learning ObjectivesThinking … and Experiencing the Unthinkable

The Emergency Response Challenge

Management of Domestic Incidents

The All-Hazards Approach

Principles and Components of Emergency Management

Emergency Management Systems and Operations

The Future of National Domestic Incident Management

Challenges for State and Local Government Emergency Operations Planning

Chapter Summary

Chapter Quiz

Notes

C H A P T E R 1 6

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

Chapter Overview

Chapter Learning Objectives

New World of Disorder

Definitions and Standards

Changing Business Environment: The Osama Effect

Legal Issues

Planning for the Worst

Supply Chain Security

Physical Security

Information Technology Continuity and Recovery

Chapter Summary

Chapter Quiz

Notes

C H A P T E R 1 7

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

Chapter Overview

Chapter Learning Objectives

The Preparedness Challenge

Risk Communications

CONTENTS

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Individual, Family, and Community Antiterrorism Measures

Principles of Emergency Preparedness Planning

Indications of a Terrorist Attack

Chapter Summary

Chapter Quiz

Notes

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

Chapter Overview

Chapter Learning Objectives

The Future of Terrorism

The Future of Technology

The Future of Homeland Security Structures

Chapter Summary

Chapter Quiz

Notes

A P P E N D I X 1

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

Profiles of Significant Islamic Extremist Terrorist Groups

Profiles of Significant International Terrorist Groups

Notes

A P P E N D I X 2

Volunteer Services

Volunteers are “First Responders” Too

The Citizenry Organized—Volunteers

Notes

A P P E N D I X 3

The Media and Issues for Homeland Security

The Media

Notes

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

Federal Support for Medical Responses

Organizing State and Local Activities

CONTENTS

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A P P E N D I X 5

Preparing and Responding to Threats against the Agriculture Sector

Federal Agricultural Security and Response Resources

Protection of Critical Agriculture Infrastructure

Preparedness and Response

INDEX

xii

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,

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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.

xiv

INTRODUCTION

Sauter_FM_144064-X 2/18/05 2:44 PM Page xiv

H o

o m

m e

e ll a

a n

n d

d S

S e

e c

c u

u rr ii tt y

y O

O b

b jj e

e c

c tt ii v

v e

e 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

xvi

INTRODUCTION

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Understanding, Preventing and Responding 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

xviii

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.

James Jay Carafano, Ph.D, and Mark Sauter

Washington, DC, September 11, 2004

E N D 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

xix

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