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A COMPLETE GUIDE TO
UNDERSTANDING, PREVENTING,
AND SURVIVING TERRORISM
M A R K S A U T E R
M
A
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K
S
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T
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Chief Operations Officer
Chesapeake Innovation Center
J A M E S J A Y C A R A F A N O
J
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S
J
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C
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F
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Senior Fellow for Defense and Homeland Security
The Heritage Foundation
MCGRAW-HILL
New York / Chicago / San Francisco / Lisbon / London / Madrid / Mexico City
Milan / New Delhi / San Juan / Seoul / Singapore / Sydney / Toronto
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Dedication?????
didn t have a word file
to put in here.
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CONTENTS
I NTRODUCTI ON 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
CHAPTER 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
CHAPTER 2 The Rise of Modern Terrorism: The Road to 9/11 23
Chapter Overview 23
Chapter Learning Objectives 24
v
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vi CONTENTS
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
CHAPTER 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 A R T 2
P
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2
UNDERSTANDING TERRORISM
CHAPTER 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
CHAPTER 5 Al-Qaida and Other Islamic Extremist Groups: Understanding
Fanaticism in the Name of Religion 85
Chapter Overview 85
Chapter Learning Objectives 86
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CONTENTS vii
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
CHAPTER 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
CHAPTER 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
CHAPTER 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
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viii CONTENTS
CHAPTER 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
CHAPTER 10 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
CHAPTER 11 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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CONTENTS ix
The Role of the Congress 230
State and Local Governments 231
Chapter Summary 233
Chapter Quiz 234
Notes 234
CHAPTER 12 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
CHAPTER 13 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
CHAPTER 14 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
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x CONTENTS
Types of Critical Infrastructure 290
Chapter Summary 304
Chapter Quiz 304
Notes 304
CHAPTER 15 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
CHAPTER 16 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
CHAPTER 17 Public Awareness and Personal and Family Preparedness:
Simple Solutions, Serious Challenges 351
Chapter Overview 351
Chapter Learning Objectives 352
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CONTENTS xi
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
CHAPTER 18 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
APPENDI 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
APPENDI X 2 Volunteer Services 441
Volunteers Are  First Responders Too 441
The Citizenry Organized Volunteers 442
Notes 444
APPENDI X 3 The Media and Issues for Homeland Security 445
The Media 445
Notes 451
APPENDI 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
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xii CONTENTS
APPENDI 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 NDEX 469
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I NTRODUCTI ON
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,
xiii
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xiv INTRODUCTION
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.
THE DEFI NI TI ON OF HOMELAND SECURI TY
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 xv
H o m e l a n d S e c u r i t y O b j e c t i v e s
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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.
ROLES AND RESPONSI BI LI TI ES
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.
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xvi INTRODUCTION
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 BOOK FOR PROFESSI ONALS AND CI TI ZENS
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 xvii
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
PRACTI CAL I NFORMATI ON
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
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xviii INTRODUCTION
LEARNI NG OBJECTI VES,
ORGANI ZATI ON, AND STYLE USAGE
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 LASTI NG CHALLENGE
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 xix
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
NOTES
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).
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