Combating Terrorism
Department of State Programs to Combat Terrorism Abroad
Gao ID: GAO-02-1021 September 6, 2002
Efforts to combat terrorism have become an increasingly important part of government activities. These efforts have also become important in the United States' relations with other countries and with international organizations, such as the United Nations (U.N.). The Department of State is charged with coordinating these international efforts and protecting Americans abroad. State has helped direct the U.S. efforts to combat terrorism abroad by building the global coalition against terrorism, including providing diplomatic support for military operations in Afghanistan and other countries. State has also supported international law enforcement efforts to identify, arrest, and bring terrorists to justice, as well as performing other activities intended to reduce the number of terrorist attacks. The State Department conducts multifaceted activities in its effort to prevent terrorist attacks on Americans abroad. For Americans traveling and living abroad, State issues public travel warnings and operates warning systems to convey terrorism-related information. For American businesses and universities operating overseas, State uses the Overseas Security Advisory Councils--voluntary partnerships between the State Department and the private sector--to exchange threat information. To disrupt and destroy terrorist organizations abroad, State has numerous programs and activities that rely on military, multilateral, economic, law enforcement, intelligence, and other capabilities. State uses extradition treaties to bring terrorists to trial in the United States and cooperates with foreign intelligence, security, and law enforcement entities to track and capture terrorists in foreign countries. If the United States has no extradition agreements with a country, then State, with the Department of Justice, can work to obtain the arrest of suspected terrorist overseas through renditions. The State Department leads the U.S. response to terrorist incidents abroad. This includes diplomatic measures to protect Americans, minimize damage, terminate terrorist attacks, and bring terrorists to justice. To coordinate the U.S. effort to combat terrorism internationally, State uses a variety of mechanisms to work with the Departments of Defense, Justice, and the Treasury; the intelligence agencies; the Federal Bureau of Investigation; and others. These mechanisms include interagency working groups at the headquarters level in Washington, D.C., emergency action committees at U.S. missions overseas, and liaison exchanges with other government agencies.
GAO-02-1021, Combating Terrorism: Department of State Programs to Combat Terrorism Abroad
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Report to Congressional Requesters:
September 2002:
Combating Terrorism:
Department of State Programs to Combat Terrorism Abroad:
GAO-02-1021:
Contents:
Letter:
Results in Brief:
Background:
Programs and Activities to Prevent Terrorism Abroad:
Programs and Activities to Disrupt and Destroy Terrorist Organizations
Abroad:
Programs and Activities to Respond to Terrorist Incidents
Abroad:
Activities to Coordinate U.S. Efforts to Combat Terrorism
Abroad:
Agency Comments:
Appendixes:
Appendix I: Department of State Organizational Chart:
Appendix II: Department of State Programs and Activities to Combat
Terrorism Abroad:
Appendix III: Comments from the Department of State:
Appendix IV: GAO Contact and Staff Acknowledgements:
GAO Contact:
Acknowledgments:
Tables:
Table 1: State Department Funding to Combat Terrorism Abroad:
Table 2: State Department Programs and Activities to Combat Terrorism
Abroad:
Figures :
Figure 1: Damage from al Qaeda Terrorist Attack, U.S. Embassy, Dar-es-
Salaam, Tanzania, August 1998:
Figure 2: Bureau of Diplomatic Security Training for Local Guards:
Figure 3: New Security Fence, Gate, and Vehicle Barrier at a U.S.
Embassy:
Figure 4: Response to al Qaeda Terrorist Attack, U.S. Embassy, Nairobi,
Kenya, August 1998:
Abbreviations:
ATA: Antiterrorism Assistance Program:
CA: Bureau of Consular Affairs :
CIA: Central Intelligence Agency:
DOD: Department of Defense: :
DS: Bureau of Diplomatic Security:
EAC: Emergency Action Committee:
EAP: Emergency Action Plan:
FBI: Federal Bureau of Investigation:
FEST: Foreign Emergency Support Team:
IIP: Office of International Information Programs:
ILEA: International Law Enforcement Academy:
INL : Bureau for International Narcotics and Law Enforcement Affairs :
INR: Bureau of Intelligence and Research :
IO: Bureau of International Organization Affairs :
L: Office of the Legal Advisor:
NSC: National Security Council:
OBO: Bureau of Overseas Buildings Operations:
OFDA: Office of Foreign Disaster Assistance:
OSAC: Overseas Security Advisory Council:
PM: Bureau of Political-Military Affairs :
RSO: Regional Security Officer:
S/CT: Office of the Coordinator for Counterterrorism:
USAID: U.S. Agency for International Development:
Letter:
September 6, 2002:
The Honorable Christopher Shays
Chairman
Subcommittee on National Security,
Veterans Affairs, and International Relations
Committee on Government Reform
U. S. House of Representatives:
The Honorable Henry J. Hyde
Chairman
Committee on International Relations
U.S. House of Representatives:
The Honorable Tom Lantos
Ranking Member
Committee on International Relations
U.S. House of Representatives:
Since the terrorist attacks of September 11, 2001, efforts to combat
terrorism have become an increasingly important part of U.S. government
activities. Such efforts have also become more important in U.S.
relations with other countries and with international organizations,
such as the United Nations (U.N.). The U.S. Department of State is
charged with coordinating these international efforts and protecting
Americans abroad; its objective is to reduce the number of terrorist
attacks, especially those on U.S. citizens and interests. While
countering terrorism has always been a part of State‘s role, it took on
heightened significance in the aftermath of the 1998 al Qaeda terrorist
attacks on the U.S. embassies in Tanzania and Kenya (see fig. 1). Since
the September 11 attacks on the World Trade Center in New York City and
the Pentagon in Washington, D.C., State has helped direct the U.S.
efforts to combat terrorism abroad by building the global coalition
against terrorism, including providing diplomatic support for military
operations in Afghanistan and other countries. State has also supported
international law enforcement efforts to identify, arrest, and bring
terrorists to justice, as well as performing other activities intended
to reduce the number of terrorist attacks.
Figure 1: Damage from al Qaeda Terrorist Attack, U.S. Embassy, Dar-es-
Salaam, Tanzania, August 1998:
[See PDF for image]
Source: Department of State.
[End of figure]
This report is intended to assist your committees in overseeing the
State Department‘s leadership of U.S. programs to combat terrorism
abroad. Specifically, this report identifies the State Department‘s
programs and activities intended to (1) prevent terrorist attacks, (2)
disrupt and destroy terrorist organizations, (3) respond to terrorist
incidents, and (4) coordinate efforts to combat terrorism. Footnotes to
this report identify programs and activities managed by the U.S. Agency
for International Development that complement the State Department‘s
efforts to combat terrorism abroad. This report is part of a larger
effort that you jointly requested to review governmentwide programs to
combat terrorism overseas. Regarding some of these programs, it is
important to recognize that the State Department works in conjunction
with a number of other federal agencies, including the Departments of
Defense, Justice, and the Treasury, as well as the Central Intelligence
Agency. As agreed with your staff, we plan to report later this year on
governmentwide efforts to combat terrorism overseas.
State‘s organizational chart appears in appendix I to this report.
Detailed information on the State Department‘s programs and activities
appears in appendix II. This information includes State‘s framework for
combating terrorism abroad, programs and activities for combating
terrorism abroad, and responsible bureaus and offices.
We identified the State Department‘s programs and activities for
combating terrorism by reviewing State documents, such as Congressional
Presentation Document, FY 2003 and Patterns of Global
Terrorism,[Footnote 1] and by conducting interviews with State
officials. To identify programs and activities provided by other
departments and coordinated through State, we reviewed documents and
interviewed officials from the Departments of Defense, Justice, and the
Treasury; the Federal Bureau of Investigation (FBI) and other law
enforcement agencies; and the U.S. Agency for International Development
(USAID). In addition, we conducted fieldwork at the U.S. Embassy in
Athens, Greece, to observe programs and activities to combat terrorism
overseas. At selected regional and functional military commands, we met
with State Department Political Advisors at the U.S. Central Command at
MacDill Air Force Base, Florida; the U.S. Southern Command in Miami,
Florida; and the U.S. European Command in Stuttgart-Vaihingen, Germany.
In addition, we conducted fieldwork at the International Law
Enforcement Academy in Budapest, Hungary, to review programs to combat
terrorism that the State Department manages or funds or both. We did
not evaluate the effectiveness of these programs. We conducted our
review from February 2002 through July 2002 in accordance with
generally accepted government auditing standards.
Results in Brief:
The State Department conducts multifaceted activities in its effort to
prevent terrorist attacks on Americans abroad. For example, to protect
U.S. officials, property, and information abroad, State operates
programs that include local guards for U.S. missions, armored vehicles
for embassy personnel, U.S. Marine security guards to protect sensitive
information, and plans to evacuate Americans in emergencies. For
Americans traveling and living abroad, State issues public travel
warnings and operates warning systems to convey terrorism-related
information. For U.S. businesses and universities operating overseas,
State uses the Overseas Security Advisory Councils--voluntary
partnerships between the State Department and the U.S. private sector-
-to exchange threat information. To improve the ability of foreign
governments to combat terrorism, State funds several training programs
that operate both in the United States and overseas.
To disrupt and destroy terrorist organizations abroad, State has
numerous programs and activities that rely on military, multilateral,
economic, law enforcement, intelligence, and other capabilities. For
example, State‘s program to enhance military cooperation has resulted
in 136 countries‘ offering a range of military assistance for Operation
Enduring Freedom in Afghanistan.[Footnote 2] State has supported
efforts, through international organizations like the United Nations,
for the global implementation of resolutions and treaties aimed at
reducing terrorism. In addition, State uses extradition treaties to
bring terrorists to trial in the United States and cooperates with
foreign intelligence, security, and law enforcement entities to track
and capture terrorists in foreign countries. If the United States has
no extradition agreements with a country, then State, with the
Department of Justice, can work to obtain the arrest of suspected
terrorists overseas through renditions. It also provides rewards for
information leading to the arrest and prosecution of designated
terrorists or the thwarting of terrorist attacks.
The State Department leads the U.S. response to terrorist incidents
abroad. This includes diplomatic measures to protect Americans,
minimize damage, terminate terrorist attacks, and bring terrorists to
justice. Once an attack has occurred, State‘s activities include
measures to alleviate damage, protect public health, and provide
emergency assistance. State also coordinates interagency exercises for
combating terrorism abroad. In addition, State helps foreign
governments prepare to respond to an attack by conducting multinational
training exercises. (A comprehensive presentation of the State
Department‘s programs and activities appears in appendix II.):
To coordinate the U.S. effort to combat terrorism internationally,
State uses a variety of mechanisms to work with the Departments of
Defense, Justice, and the Treasury; the intelligence agencies; the
Federal Bureau of Investigation; and others. These mechanisms include
interagency working groups at the headquarters level in Washington,
D.C.; emergency action committees at U.S. missions overseas; and
liaison exchanges with other government agencies.
Background:
According to the State Department‘s 2002 Annual Performance Plan, the
department‘s counterterrorism goals are to reduce the number of
terrorist attacks, bring terrorists to justice, reduce or eliminate
state-sponsored terrorist acts, delegitimize the use of terror as a
political tool, enhance the U.S. response to terrorism overseas, and
strengthen international cooperation and operational capabilities to
combat terrorism.
The Secretary of State is responsible for coordinating all U.S.
civilian departments and agencies that provide counterterrorism
assistance overseas. The Secretary also is responsible for managing all
U.S. bilateral and multilateral relationships intended to combat
terrorism abroad.
State requested over $2.3 billion to combat terrorism in fiscal year
2003. This includes more than $1 billion for overseas embassy security
and construction, as well as for counterterrorism assistance and
training to countries cooperating with the global coalition against
terrorism. Table 1 provides a breakdown of State‘s funding to combat
terrorism.
Table 1: State Department Funding to Combat Terrorism Abroad:
Dollars in millions.
Bureau of Administration; Fiscal year 2001
(actual): $50; Fiscal year 2002 (enacted): $37;
Emergency
Relief Fund: $0; Fiscal year 2003 President‘s
budget: $123.
Bureau of Overseas Buildings Operations; Fiscal
year 2001
(actual): 1,035; Fiscal year 2002 (enacted):
1,159; Emergency
Relief Fund: 105; Fiscal year 2003 President‘s
budget: 1,286.
Bureau of Consular Affairs; Fiscal year 2001
(actual): 409; Fiscal year 2002 (enacted): 465;
Emergency
Relief Fund: 0; Fiscal year 2003 President‘s
budget: 643.
Bureau of Diplomatic Security; Fiscal year 2001
(actual): 105; Fiscal year 2002 (enacted): 115;
Emergency
Relief Fund: 48; Fiscal year 2003 President‘s
budget: 228.
Office of the Coordinator for Counterterrorism;
Fiscal year 2001
(actual): 35; Fiscal year 2002 (enacted): 41;
Emergency
Relief Fund: 50; Fiscal year 2003 President‘s
budget: 69.
Total; Fiscal year 2001
(actual): $1,634; Fiscal year 2002 (enacted):
$1,817; Emergency
Relief Fund: $203; Fiscal year 2003 President‘s
budget: $2,349.
Sources: Office of Management and Budget and the Department of State
(Office of the Coordinator for Counterterrorism).
[End of table]
By contrast, State spent about $1.6 billion in fiscal year 2001 and
received about $1.8 billion to combat terrorism in fiscal year 2002.
State received an additional $203 million through the Emergency
Response Fund as part of the $40 billion appropriated by the Congress
in response to the September 11, 2001, terrorist attacks against the
United States.
The Office of Management and Budget reported that determining precise
funding levels associated with activities to combat terrorism is
difficult because departments may not isolate those activities from
other program activities. Some activities serve multiple purposes--for
example, upgrades to embassy security help protect against terrorism as
well as other crimes.
Programs and Activities to Prevent Terrorism Abroad:
The State Department conducts multifaceted activities in an effort to
prevent terrorist attacks on Americans abroad. For example, to protect
U.S. officials, property, and information abroad, the Bureau of
Diplomatic Security provides local guards for embassies and armored
vehicles for embassy personnel (see fig. 2). In addition, it provides
undercover teams to detect terrorist surveillance activities. Following
the 1998 embassy bombings in Africa, State upgraded security for all
missions, which included strengthening building exteriors, lobby
entrances, and the walls and fences at embassy perimeters (see fig.
3).[Footnote 3] The upgrades also included closed-circuit television
monitors, explosive detection devices, walk-through metal detectors,
and reinforced walls and security doors to provide protection inside
the embassy. In addition, State plans to replace some existing
embassies with buildings that meet current security standards, such as
having a 100-foot setback from streets surrounding embassies. State
also has programs to protect national security information discussed at
meetings or stored on computers. These programs include U.S. Marine
security guards controlling access to embassies, efforts to prevent
foreign intelligence agencies from detecting emanations from computer
equipment, and computer security programs.
Figure 2: Bureau of Diplomatic Security Training for Local Guards:
[See PDF for image]
Source: GAO.
[End of figure]
Figure 3: New Security Fence, Gate, and Vehicle Barrier at a U.S.
Embassy:
[See PDF for image]
Source: GAO.
[End of figure]
State has several programs to help warn Americans living and traveling
abroad against potential threats, including those posed by terrorists.
For example, to warn Americans about travel-related dangers, in fiscal
year 2001 the Bureau of Consular Affairs issued 64 travel warnings, 134
public announcements, and 189 consular information sheets. In addition,
missions employ a ’warden system“ to warn Americans registered with an
embassy of threats against their security. The system varies by mission
but uses telephone, E-mail, fax, and other technologies as appropriate.
Finally, the Bureau of Diplomatic Security manages the Overseas
Security Advisory Councils program. The councils are a voluntary, joint
effort between State and the private sector to exchange threat-and
security-related information. Councils currently operate in 47
countries.
In addition, State manages and funds programs to train foreign
government and law enforcement officials to combat terrorism abroad.
These programs include the following:
* the Antiterrorism Assistance Program, implemented by the Bureau of
Diplomatic Security, to enhance the antiterrorism skills of law
enforcement and security personnel in foreign countries;
* the International Law Enforcement Academies, managed by the Bureau
for International Narcotics and Law Enforcement Affairs, to provide law
enforcement training in four locations around the world.[Footnote 4]
The Departments of State, the Treasury, and Justice--including the
Bureau of Diplomatic Security, Federal Bureau of Investigation, and
other U.S. law enforcement agencies--provide the on-site training;
* the Department of Justice‘s Overseas Prosecutorial Development and
Assistance Training and the International Criminal Investigation
Training Assistance Program. The State Department provides policy
oversight and funds this training, which is intended to build rule-of-
law institutions, and includes general law enforcement and anticrime
training for foreign nationals.[Footnote 5]
Programs and Activities to Disrupt and Destroy Terrorist Organizations
Abroad:
State conducts numerous programs and activities intended to disrupt and
destroy terrorist organizations. These programs and activities rely on
military, multilateral, economic, law enforcement, and other
capacities, as the following examples illustrate:
* The Bureau of Political-Military Affairs coordinates with Department
of Defense on military cooperation with other countries. It has been
State‘s liaison with the coalition supporting Operation Enduring
Freedom, processing 72 requests for military assistance from coalition
partners since September 11, 2001.
* The Bureau of International Organization Affairs helped craft and
adopt United Nations Security Council Resolution 1373, obligating all
member nations to fight terrorism and report on their implementation of
the resolution. It also assisted with resolutions extending U.N.
sanctions on al Qaeda and the Taliban and on certain African regimes,
including those whose activities benefit terrorists.
* The Department of State‘s Office of the Coordinator for
Counterterrorism, the Bureau of International Narcotics and Law
Enforcement, and the Economic Bureau work with the Department of the
Treasury and other agencies to stem the flow of money and other
material support to terrorists. According to the State Department,
since September 11, the United States has blocked $34.3 million in
terrorist related assets.
* The Office of the Legal Advisor pursues extradition and mutual legal
assistance treaties with foreign governments. The Office of the Legal
Advisor also works with the U.N. and with other nations in drafting
multilateral agreements, treaties, and conventions on
counterterrorism.
* The Bureau of Diplomatic Security, working with the Department of
Justice, cooperates with foreign intelligence, security, and law
enforcement entities to track and capture terrorists in foreign
countries, assist in their extradition to the United States, and block
attempted terrorist attacks on U.S. citizens and assets abroad.
* The Office of the Coordinator for Counterterrorism, in conjunction
with the Department of Justice and other agencies, coordinates State‘s
role in facilitating the arrest of suspected terrorists through an
overseas arrest, known as a rendition, when the United States lacks an
extradition treaty.
* The Bureau of Diplomatic Security manages the Rewards for Justice
Program. This program offers payment for information leading to the
prevention of a terrorist attack or the arrest and prosecution of
designated individuals involved in international terrorism. These
rewards reach up to $25 million for those involved in the September 11
attacks.
* The Bureau of Intelligence and Research prepares intelligence and
threat reports for the Secretary of State, high-level department
officials, and ambassadors at U.S. missions. It also monitors
governmentwide intelligence activities to ensure their compatibility
with U.S. foreign policy objectives related to terrorism, and it seeks
to expand the sharing of interagency data on known terrorist suspects.
Programs and Activities to Respond to Terrorist Incidents Abroad:
The State Department is responsible for leading the U.S. response to
terrorist incidents abroad. This includes measures to protect
Americans, minimize incident damage, terminate terrorist attacks, and
bring terrorists to trial. Once an attack has occurred, State‘s
activities include measures to alleviate damage, protect public health,
and provide emergency assistance. The Office of the Coordinator for
Counterterrorism facilitates the planning and implementation of the
U.S. government response to a terrorist incident overseas. In a given
country, the ambassador would act as the on-scene coordinator for the
response effort. (See figure 4.):
Figure 4: Response to al Qaeda Terrorist Attack, U.S. Embassy, Nairobi,
Kenya, August 1998:
[See PDF for image]
Source: Department of State.
[End of figure]
In addition, several other bureaus respond to the aftermath of a
terrorist attack and help friendly governments prepare to respond to an
attack by conducting joint training exercises.
* The Bureau of Political-Military Affairs is tasked with helping to
prepare U.S. forces, foreign governments, and international
organizations to respond to the consequences of a chemical, biological,
radiological, or nuclear incident overseas. For example, the bureau is
developing a database of international assets that could be used to
respond to the consequences of a terrorist attack using weapons of mass
destruction. It also participates in major interagency international
exercises, which are led by DOD. In addition, the bureau assisted in
the first operational deployment of a U.S. consequence management task
force, working with the DOD regional command responsible for conducting
the war in Afghanistan.
* Several bureaus and offices deploy emergency response teams to
respond to terrorist attacks. For example, the Office of the
Coordinator for Counterterrorism deploys multi-agency specialists in
the Foreign Emergency Support Team (FEST) to assist missions in
responding to ongoing terrorist attacks. For example, at the request of
the Ambassador, the FEST can be dispatched rapidly to the mission. As
one component of this team, the Bureau of Political-Military Affairs
can deploy a Consequence Management Support Team to assist missions in
managing the aftermath of terrorist attacks. In addition, the Bureau of
Overseas Buildings Operations Emergency Response Team helps secure
embassy grounds and restore communications following a crisis.[Footnote
6]
See appendix II for a comprehensive list of State‘s programs and
activities to combat terrorism.
Activities to Coordinate U.S. Efforts to Combat Terrorism Abroad:
The State Department is responsible for coordinating all federal
agencies‘ efforts to combat terrorism abroad. These include the
Departments of Defense, Justice, and the Treasury; the various
intelligence agencies; the FBI and other law enforcement agencies; and
USAID. In addition, State coordinates U.S. efforts to combat terrorism
multilaterally through international organizations and bilaterally
with foreign nations. State uses a variety of methods to coordinate its
efforts to combat terrorism abroad, including the following:
* In Washington, D.C., State participates in National Security Council
interagency working groups, issue-specific working groups, and ad hoc
working groups. For example, the Office of the Coordinator for
Counterterrorism maintains policy oversight and provides leadership for
the interagency Technical Support Working Group--a forum that
identifies, prioritizes, and coordinates interagency and international
applied research and development needs and requirements to combat
terrorism.
* At U.S. embassies, State implements mission performance plans that
coordinate embassy activities to combat terrorism, country team
subgroups on terrorism, emergency action committees to organize embassy
response to terrorist threats and incidents, and ad hoc working groups.
For example, selected embassies have country team subgroups dedicated
to law enforcement matters, chaired by the Deputy Chief of Mission.
Working with related bureaus and agencies such as the Regional Security
Office, FBI Legal Attaché, and Treasury Department Financial Attaché,
these subgroups coordinate efforts to combat terrorism among the
various agencies overseas.
* In Washington, D.C., and elsewhere, State exchanges personnel with
other agencies for liaison purposes. In Washington, D.C., for example,
State personnel serve as liaisons at the CIA‘s Counter-Terrorism
Center. The department also provides each U.S. regional military
command with a Political Advisor, who helps the respective commanders
coordinate with State Department Headquarters and with U.S. embassies
on regional and bilateral matters, including efforts to combat
terrorism.
Agency Comments:
We received written comments from the Department of State that are
reprinted in appendix III. State wrote that the report is a ’useful
guide“ and ’good outline“ of State‘s activities and roles in the
campaign against terrorism. State noted that there are many more often
intangible and hard-to-measure actions taking place as part of the
department‘s contribution to fighting terrorism. State also provided
technical comments, which we incorporated where appropriate.
We are sending copies of this report to interested congressional
committees and to the Secretary of State. We will make copies available
to others on request. In addition, the report will be available at no
charge on the GAO Web site at http://www.gao.gov.
If you or your staff have any questions about this report, please
contact me at (202) 512-4128. Another GAO contact and staff
acknowledgments are listed in appendix IV of this report.
Jess Ford, Director
International Affairs and Trade:
Signed by Jess Ford:
[End of section]
Appendix I: Department of State Organizational Chart:
[See PDF for image]
Source: U.S. Department of State.
[End of figure]
[End of section]
Appendix II: Department of State Programs and Activities to Combat
Terrorism Abroad:
The Department of State coordinates U.S. government efforts to combat
terrorism abroad. Within the department, multiple bureaus and offices
manage programs and activities to combat terrorism. State also works
with several U.S. and foreign government agencies in carrying out these
programs and activities. Table 2 presents the programs and activities
and the bureaus responsible for managing them. The table also presents
information about some of the U.S. government agencies with which State
cooperates. Table 2 describes:
* the strategic framework of State‘s efforts to combat terrorism
abroad;
* State‘s programs and activities to prevent terrorism abroad;
* State‘s programs and activities to disrupt and destroy terrorist
organizations abroad; and:
* State‘s programs and activities to respond to terrorist incidents
abroad.
Table 2: State Department Programs and Activities to Combat Terrorism
Abroad:
[See PDF for image]
[End of section]
Appendix III: Comments from the Department of State:
United States Department of State Washington, D.C.20520:
AUG 19 2002:
Dear Ms. Westin:
We appreciate the opportunity to review your draft report, ’COMBATING
TERRORISM: Department of State Programs to Combat Terrorism Abroad,“
GAO-02-1021, GAO Job Code 320138.
The Department‘s comments are enclosed for incorporation, along with
this letter, as an appendix to the GAO final report. We also provided
technical comments via e-mail to Ms. Cheryl Goodman.
If you have any questions regarding this response, please contact
Michael Kraft, Bureau of Coordinator for Counterterrorism on (202) 647-
1845.
Christopher B. Burnham Assistant Secretary for Resource Management and
Chief Financial Officer:
Signed by Christopher B. Burnham:
Enclosure:
As stated.
cc: GAO/IAT - Ms. Goodman State/OIG - Mr. Berman State/S/CT - Ms.
Kinney:
Ms. Susan S. Westin, Managing Director, International Affairs and
Trade, U.S. General Accounting Office.
Department of State Comments on GAO Draft Report:
COMBATING TERRORISM: Department of State Programs to Combat Terrorism
Abroad (GAO-02-1021, GAO Job Code 320138):
The Department of State appreciates the interest of Congress in
learning more about State‘s contribution to the War on Terrorism. The
report provides a good outline of the State Department‘s numerous
activities and roles in the campaign against international terrorism.
We appreciate the challenge its authors faced in trying to capture the
dynamic movement and intensity of the U.S. government‘s
counterterrorism
effort.
Looking at an organizational chart or tasking list does not convey the
impact, intensity and pace of the War on Terrorism since 9/11. Numerous
policies and programs had been developed before September 11, but the
State Department and other agencies have literally doubled their
efforts and resources to dismantle and bring to justice al-Qaida and
other terrorists since last September.
While the military campaign was visible on the world‘s TV screens, an
important campaign was also launched at the political, diplomatic, and
economic levels. The economic aspects have been easier to cover in the
report, since they are more conspicuous than other work which involves
intelligence gathering and analysis, preparation required to legally
seize
assets, and efforts to persuade other Islamic countries that their best
interests do not lie with extremism, nor with regimes that support it.
The report is a useful guide, one of the best unclassified documents
yet prepared. However, it should be read with the understanding that
there are many more, often intangible and hard-to-measure actions
taking place as part of the State Department‘s contribution to
combating terrorism.
[End of section]
Appendix IV: GAO Contact and Staff Acknowledgments:
GAO Contact:
Cheryl Goodman, (202) 512-6571:
Acknowledgments:
In addition to the contact named above, Edward George, Addison Ricks,
Steve Caldwell, Mark Pross, James Lawson, Lori Kmetz, Yolanda Elserwy,
Reid Lowe, and Cheryl Weissman made key contributions to this report.
FOOTNOTES
[1] U.S. Department of State, Congressional Presentation Document, FY
2003 (Washington, D.C.: 2002); Patterns of Global Terrorism
(Washington, D.C.: May 2002).
[2] Operation Enduring Freedom is the military campaign that began on
October 7, 2001, against al Qaeda and Taliban forces in Afghanistan and
elsewhere.
[3] The USAID Office of Security is responsible for ensuring security
at all USAID facilities that are not colocated with U.S. missions
(approximately 58 of 95, as of January 2002), although it coordinates
these security arrangements with Diplomatic Security in Washington and
with the Regional Security Officers in country. Additionally, the
Office of Security handles USAID building construction issues,
coordinating extensively with State‘s Bureau of Overseas Buildings
Operations, which constructs buildings for USAID‘s tenancy, and with
Diplomatic Security.
[4] The academies are located in Budapest, Hungary; Bangkok, Thailand;
Gaborone, Botswana; and Roswell, New Mexico.
[5] USAID also supports programs to train foreign law enforcement,
prosecutors, and judges and to assist in rewriting legislation and
criminal sentencing guidelines. USAID missions and the Bureau for
Democracy, Conflict, and Humanitarian Assistance have rule-of-law and
governance programs in about 60 of the 85 countries where USAID has a
presence.
[6] USAID assists in the aftermath of a terrorist incident through its
Office of Foreign Disaster Assistance (OFDA). OFDA participates with
other U.S. teams, deploying immediately with the Foreign Emergency
Support Team. OFDA serves as an Advisor to the U.S. Chief of Mission,
helping to coordinate the initial response efforts. Because of its
relationships and formal agreements with both U.S. government agencies
and nongovernmental organizations, OFDA can provide information on
their capacities to assist a host nation in managing the consequences
of a terrorist incident. OFDA is currently providing humanitarian
assistance in Kabul, Afghanistan, as the United States has
reestablished its mission there.
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