National Strategy To Combat Terrorist Travel - FAS
NATIONAL STRATEGYTO COMBAT TERRORISTTRAVELMay 2, 2006
NATIONAL STRATEGYTO COMBAT TERRORISTTRAVELMay 2, 2006
Table of ContentsIntroduction .1Summary of Proposed Actions .5Pillar I: Enhance US and Foreign Partner Capabilities to ConstrainTerrorist Mobility Overseas .9Strategic Objective 1: Suppress Terrorists’ Ability to Cross InternationalBorders .9Significance. 9Current Initiatives. 10Intelligence Collection, Analysis, Production, and Dissemination . 10Foreign Terrorist Tracking Task Force . 10Joint Intelligence Task Force—Combating Terrorism . 10National Counterterrorism Center . 10Human Smuggling and Trafficking Center . 10Terrorist Screening and Information Sharing with Foreign Partners . 11Terrorist Interdiction Program . 11G8 Secure and Facilitated International Travel Initiative. 11Watchlisting . 11Technical Support Working Group . 11Strategic Objective 2: Help Partner Nations Build Capacity to LimitTerrorist Travel .13Significance . 13Current Initiatives. 14Engagement with Multilateral Organizations . 14International Civil Aviation Organization.14INTERPOL .14International Financial and Technical Assistance . 15Antiterrorism Assistance Program. 15Counterterrorism Action Group . 15International Law Enforcement Assistance . 15International Port Security Program . 16DOD Combatant Commander Theater Security Cooperation . 16National Strategy To Combat Terrorist Traveli
Table of ContentsDenial of Safe Havens to Terrorists . 16UN Obligations . 16Strategic Objective 3: Deny Terrorists Access to Resources That FacilitateTravel .17Significance . 17Current Initiatives. 17Implementing Global Standards for Travel Documents . 17ICAO Guidelines . 17Visa Waiver Program . 18Secure and Facilitated International Travel Initiative . 18Monitoring and Defeating Terrorist Travel Facilitator Networks . 19Disrupting Financial Networks That Facilitate Terrorist Travel . 19Executive Order 13224 . 19UN Sanctions Authority . 19Pillar I: Continuing Challenges and Proposed Actions .21Terrorist Screening and Information Sharing . 21Capacity Building . 21International Travel Document Security . 22Terrorist Travel Facilitation Networks . 23Pillar II: Deny Terrorists the Ability to Enter, Exit, and Travel Withinthe United States .25Strategic Objective 1: Inhibit Terrorists From Crossing US Borders .25Significance. 25Current Initiatives. 26Visa Screening Process . 26Visas Viper Program . 26Visas Condor Program . 26Consolidated Consular Database . 26Visa Waiver Program . 27Visa Security Program . 27iiNational Strategy To Combat Terrorist Travel
Table of ContentsWestern Hemisphere Partnerships . 27Western Hemisphere Travel Initiative . 27Security and Prosperity Partnership . 27North American Aerospace Defense Command . 27Domestic Risk Management Initiatives—Traveler Screening and InspectionProcesses . 28Terrorist Screening Center . 28Customs and Border Protection Initiatives . 28National Targeting Center . 28US-VISIT . 28Registered Traveler Program . 29Advance Passenger Information System . 29US Border Security Initiatives . 29Secure Border Initiative . 29National Strategy for Maritime Security . 30COASTWATCH Program . 30Coast Guard Notice of Arrival Screening . 30Strategic Objective 2: Enhance US Government Capabilities to Detectand Constrain Terrorist Travel Within the United States .31Significance . 31Current Initiatives. 32Coordination and Information Sharing Between State and Local LawEnforcement and the Federal Government. 32Intelligence Reform and Terrorism Prevention Act of 2004 . 32Homeland Security Act . 32Joint Terrorism Task Forces . 32Immigration and Customs Enforcement Initiatives. 33Executive Order 13388 . 33National Crime Information Center . 33Transportation Security Measures . 34Transportation Security Administration .34Federal Air Marshal Service .34National Strategy To Combat Terrorist Traveliii
Table of ContentsSecure Flight .34Northern Command .34Strategic Objective 3: Strengthen US Identity Verification Systems .35Significance. 35Current Initiatives. 35Standard Format and Security Features for Identification Documents . 35US Passport Enhancements . 35Document Standardization . 35Database of US Lost and Stolen Passports. 36Document Fraud Detection Initiatives . 36Immigration and Customs Enforcement Forensic Document Laboratory . 36Pillar II: Continuing Challenges and Proposed Actions .37Terrorist Screening and Information Sharing . 37US Border Security . 38US Document Security . 38Immigration Laws and Policies . 38Intelligence Capabilities and Training . 39Moving Forward .41Appendix: List of Acronyms and Abbreviations .43ivNational Strategy To Combat Terrorist Travel
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IntroductionIntroductionTargeting travel is at least as powerful a weapon against terrorists astargeting their money. The United States should combine terrorist travelintelligence, operations, and law enforcement in a strategy to interceptterrorists, find terrorist travel facilitators, and constrain terrorist mobility.The 9/11 Commission ReportJuly 22, 2004Constraining the mobility of terrorists is one of the most effective weapons in the Waron Terror. Limiting their movements markedly diminishes terrorists’ ability to attackthe United States, our interests abroad, or our allies. As both the 9/11 Commissionnoted in its main report and the 9/11 Commission staff noted in its separatemonograph on terrorist travel, constraining the mobility of terrorists should be a keyfocus of the US Government’s counterterrorism initiatives over the coming years. Inlight of the Commission’s findings, Congress required the National CounterterrorismCenter (NCTC) to submit this National Strategy To Combat Terrorist Travel (NSCTT)pursuant to Section 7201 of the Intelligence Reform and Terrorism Prevention Act of2004 (IRTPA).The 9/11 terrorist attacks highlighted the need to improve the monitoring and controlof the domestic and international travel systems as a means to constrain terroristmobility. Since then, the US Government has made considerable progress towardachieving this objective. The post-9/11 security environment consists of strengthenedtravel document security, enhanced screening of all visitors to the United States,improved information-sharing relationships with foreign partners, and increasedvigilance of the American people and our allies in the War on Terror. Our foreignpartners have also made progress in strengthening border security and providingterrorist-related information to the United States in a timely and efficient manner.The terrorist enemies we face remain determined, patient, and adaptable. While newsecurity measures are making terrorist travel more difficult, terrorists and illicit travelfacilitators are continually seeking new ways to exploit perceived weaknesses in travelsecurity: Terrorists seek to defeat travel and border systems by using illicit travelnetworks, including professional human smugglers. As legal entry into the United States becomes more difficult, terroristsincreasingly may seek ways to exploit what they perceive as weaknesses in USand foreign border control operations. Further progress inhibiting terrorist mobility and suppressing the illicittravel industry will require sustained bilateral and multilateral internationalcooperation, including coordinated law enforcement, intelligence, anddiplomatic initiatives.National Strategy To Combat Terrorist Travel1
IntroductionThe goal of the NSCTT is to fight terrorist travel globally. The NSCTT identifies eightkey steps necessary to achieve that goal.1. Identify known or suspected terrorists.2. Ensure broad data sharing across the US Government and with partnernations.3. Screen travelers effectively both before reaching and at ports of entry into theUnited States.4. Build partner capacity to limit and screen for terrorist travel.5. Detect and apprehend terrorists who intend to enter, or who may haveentered, the United States.6. Dismantle infrastructures and networks that facilitate terrorist travel.7. Strengthen travel and document security at home and abroad to ensure thatterrorists cannot acquire documentation through legal or illicit means.8. Collect, analyze and disseminate all terrorist travel information to keyconsumers across the counterterrorism and law enforcement communities.In view of these findings, the NSCTT addresses two main topics. First, the NSCTTcaptures current US Government capabilities to confront the problem of terrorist travelaround the globe. Second, the NSCTT recommends how the US Government shouldenhance or expand its capabilities to address the problem.The NSCTT rests on two pillars, each supported by three strategic objectives:Pillar I: Enhance US and Foreign Partner Capabilities to ConstrainTerrorist Mobility OverseasStrategic Objective 1: Suppress Terrorists’ Ability to Cross International BordersStrategic Objective 2: Help Partner Nations Build Capacity to Limit Terrorist TravelStrategic Objective 3: Deny Terrorists Access to Resources That Facilitate Travel2National Strategy To Combat Terrorist Travel
IntroductionPillar II: Deny Terrorists the Ability to Enter, Exit, and Travel Within theUnited StatesStrategic Objective 1: Inhibit Terrorists from Crossing US BordersStrategic Objective 2: Enhance US Government Capabilities to Detect andConstrain Terrorist Travel Within the United StatesStrategic Objective 3: Strengthen US Identity Verification SystemsBeneath each pillar, the NSCTT describes the initiatives currently in place to supportthe strategic objectives. Next, the NSCTT identifies ongoing challenges confrontingboth domestic and international efforts to combat terrorist travel. Finally, the NSCTTsets forth proposed actions, all to be conducted within the constraints of US law andwith appropriate privacy protections, to confront these challenges.NCTC submitted a classified version of the NSCTT to Congress on February 17,2006. While consistent with the classified strategy, this unclassified version of theNSCTT does not reveal sensitive national security information.The United States has achieved significant progress since 9/11 in detecting andcapturing terrorists as they move around the world. Still, work remains to be doneto prevent terrorists from exploiting the international and US travel systems to wageattacks on US and foreign partner interests. By utilizing our own extensive arsenal oftools to fight terrorist travel, and by partnering with other nations to prevent terroristmobility, the United States and its allies in the War on Terror will continue to crippleterrorists’ ability to perpetrate attacks around the world.National Strategy To Combat Terrorist Travel3
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Summary of Proposed ActionsSummary of Proposed ActionsPillar I: Enhance US and Foreign Partner Capabilities toConstrain Terrorist Mobility OverseasTerrorist Screening and Information Sharing(1) Develop and share terrorist mobility information with allies to the fullestextent possible consistent with US national security interests.Capacity Building(2) Utilize State Department–administered law enforcement and counterterrorismassistance programs to work with other countries to strengthen laws designedto limit terrorist mobility; build political will to implement measures againstterrorist travel; train investigators and prosecutors on terrorist travel tradecraft;and monitor results.(3) Working with Canada, examine the feasibility of developing and implementingcompatible procedures and systems to screen individuals traveling between theUnited States and Canada.(4) Continue to work with foreign governments to develop identity verificationsystems aimed at detecting and intercepting high-risk travelers.(5) Encourage foreign governments to adopt or strengthen current practicesfor issuing passports and recording incidents of lost and stolen passports, tofacilitate effective information exchanges bilaterally and with INTERPOL, andto ensure the effective use of such records in screening travelers at the borderwhile reducing incidents of false positives.(6) Encourage the UN Security Council’s Counterterrorism Committee (CTC)to develop standards to measure UN member states’ efforts to implement theobligations imposed by Security Council Resolution 1373 to prevent terroristtravel. The United States, working through mechanisms such as the G8Counterterrorism Action Group, should work to coordinate assistance withdonor countries to build the capacity of states with insufficient resources tomeet these obligations.International Travel Document Security(7) Encourage foreign governments to adopt or strengthen existing lawscriminalizing the counterfeiting, alteration, and misuse of identification andtravel documents. In addition, the US Government, in conjunction withpartner nations, should coordinate US assistance to foreign governments withlimited resources to fight corruption and fraud in their identification andtravel document issuance systems.National Strategy To Combat Terrorist Travel5
Summary of Proposed Actions(8) Encourage other governments to meet or exceed the InternationalCivil Aviation Organization (ICAO) guidelines on minimum securitystandards for the handling and issuance of machine-readable and otherpassports. Encourage the UN Counterterrorism Committee to endorse theseguidelines as best practices for member states to adopt as part of their efforts toimplement their obligations under Security Council Resolution 1373.Terrorist Travel Facilitation Networks(9) Designate as supporters of terrorism those who facilitate terrorist travel underExecutive Order 13224, and support listings of such individuals and entitieswho are associated with al-Qa‘ida and the Taliban by the United NationsSecurity Council’s 1267 Sanctions Committee to deter others from providingthis type of facilitation.(10) Coordinate Interagency efforts to encourage foreign jurisdictions to imposecriminal, civil, or administrative penalties on individuals who knowinglyconceal, transport, or transfer currency with the intent to evade reportingrequirements.(11) Increase efforts to encourage other countries to identify and close downalien smuggling networks and document forgery cells, to criminalize aliensmuggling and document forgery in countries where current laws areinsufficient, and to build the capacity of countries less able to do so.(12) Continue to work with multilateral organizations, such as the InternationalMaritime Organization, to strengthen international ship and port securitystandards to reduce the incidents of alien smuggling, stowaways, and shipjumpers.6National Strategy To Combat Terrorist Travel
Summary of Proposed ActionsPillar II: Deny Terrorists the Ability to Enter, Exit, andTravel Within the United StatesTerrorist Screening and Information Sharing(13) Consistent with Homeland Security Presidential Directive 11, finalizetransition of the US Visitor and Immigrant Status Indicator Technology(US-VISIT) system, including VWP travelers, and consular processing ofvisa applicants from a two-fingerprint to a ten-fingerprint screening systemmanaged within established databases.(14) Grant the appropriate security clearances to consular, CBP, and USCitizenship and Immigration Services (USCIS) officers, and establishthe required technical infrastructure to support the sharing of classifiedinformation on travelers with potential ties to terrorism.(15) Leverage the Information Sharing Environment to establish minimum systeminteroperability standards for agencies involved in sharing information onterrorists’ identities, and to establish systems’ connectivity to state and locallaw enforcement agencies.US Border Security(16) Fully implement the US-VISIT system across the immigration and bordermanagement enterprise.(17) Implement pre-departure Advance Passenger Information System (APIS)to improve the US Government’s ability to vet international air and seapassengers against the consolidated terrorist watchlist maintained by theFederal government to identify and interdict potential terrorists before theydepart the United States.(18) Establish international registered traveler programs, on a multilateral basis,with partner nations to increase advance information on a greater number oftravelers and allow for increased scrutiny of higher risk travelers attemptingentry into the United States.(19) Fully implement US Government supporting plans for the National Strategyfor Maritime Security to defend US coastlines from terrorists seeking entryinto the United States by sea.US Document Security(20) Fully implement and leverage authorities of the REAL ID Act, and developregulations for state motor vehicle bureaus and state bureaus of vital statistics.National Strategy To Combat Terrorist Travel7
Summary of Proposed ActionsImmigration Laws and Policies(21) Expand efforts to control borders, address interior enforcement and attackimmigration fraud, including through the Secure Border Initiative (SBI).Intelligence Capabilities and Training(22) Ensure that an appropriate number of intelligence analysts in the USIntelligence Community are dedicated to the problem of global terroristmobility.(23) Increase the number of actionable leads to Immigration and CustomsEnforcement (ICE) and FBI by continuing to develop analytical capabilitiessurrounding information derived from US-VISIT and other border securitysystems.(24) Provide sufficient resources to enable the Human Smuggling and TraffickingCenter (HSTC) to fulfill its responsibilities to conduct analysis of clandestineterrorist travel and support the US Government’s coordination of efforts to combatterrorist travel, as required in Section 7202 of the IRTPA.(25) Capitalize on curricula currently employed by CBP, the Federal LawEnforcement Training Center, ICE, and the US Secret Service to developa comprehensive document fraud prevention curriculum to train federal,state, and local document issuers and reviewers on establishing documentfraud prevention and risk management programs, intelligence methods usedto identify fraudulent travel documents, and how intelligence analysts cansupport field operators whose work involves the review of travel documents.8National Strategy To Combat Terrorist Travel
Pillar I: Constrain Terrorist Mobility OverseasPillar I: Enhance US and Foreign PartnerCapabilities to Constrain Terrorist MobilityOverseasThree strategic objectives are key to US efforts to combat terrorist mobility outside theUnited States:1. Suppress Terrorists’ Ability to Cross International Borders2. Help Partner Nations Build Capacity to Limit Terrorist Travel3. Deny Terrorists Access to Resources That Facilitate TravelStrategic Objective 1: Suppress Terrorists’ Ability to CrossInternational BordersSignificanceTerrorists are intent on harming Americans and American and allied intereststhroughout the world. Constraining terrorists’ ability to move freely across bordersoverseas is critical to diminishing their potential to perpetrate acts of terrorism. The USGovernment, often acting in concert with partner nations, has a number of tools at itsdisposal to prevent terrorists from exploiting the international travel system. These toolsfall into two categories. The first is the collection and analysis of information on mattersrelated to global terrorist mobility. The second is terrorist screening and informationsharing with foreign partners.Critical Mission Areas Intelligence Collection, Analysis, Production, and Dissemination— Harness the US Government’s intelligence capabilities to trackterrorist mobility globally— Ensure that US military forces stationed around the worldcontribute and have access to terrorist mobility informationTerrorist Screening and Information Sharing with Foreign Partners— Share known or suspected terrorist identities with foreignpartners— Detect terrorists at international bordersNational Strategy To Combat Terrorist Travel9
Pillar I: Constrain Terrorist Mobility OverseasCurrent InitiativesIntelligence Collection, Analysis, Production, and DisseminationForeign Terrorist Tracking Task ForceIn Homeland Security Presidential Directive 2 (HSPD-2), the President directed theDepartment of Justice to establish the Foreign Terrorist Tracking Task Force (FTTTF)to ensure that federal agencies coordinate programs to: (1) deny entry into the UnitedStates of aliens associated with, suspected of being engaged in, or supporting terroristactivity; and (2) locate, detain, prosecute, or deport terrorist-related aliens in the UnitedStates. The FTTTF engages in efforts to identify foreign terrorists and their supporterswho have entered or seek to enter the United States and US territories; and to detectsuch factors as violations of criminal or immigration law which would permit exclusion,detention, or deportation of such individuals.Joint Intelligence Task Force—Combating TerrorismThe Defense Intelligence Agency’s Joint Intelligence Task Force—Combating Terrorism(JITF-CT) provides analytic support to US military and defense collection operationsto disrupt terrorist travel and acquire related data. JITF-CT also reviews DOD uniqueand unserialized datasets to identify and nominate watchlist candidates.National Counterterrorism CenterThe 9/11 Commission recommended the establishment of a National CounterterrorismCenter (NCTC), built on the foundation of the Terrorist Threat Integration Center(TTIC), to be a center for joint strategic operational planning and intelligence, staffedby personnel from across the US Government. NCTC is charged with ensuring thatagencies, as appropriate, have access to and receive all-source intelligence necessary toexecute their counterterrorism plans and perform independent, alternative analysis.Human Smuggling and Trafficking CenterSection 7202 of the Intelligence Reform and Terrorism Prevention Act (IRTPA)established the Human Smuggling and Trafficking Center (HSTC) as an Interagencyintelligence/law enforcement/diplomacy fusion center and information clearinghousecomposed of representatives from the Departments of State, Justice, and HomelandSecurity and the Intelligence Community. The HSTC fosters greater integrationand overall effectiveness in US Government efforts to combat migrant smuggling,trafficking in persons, and clandestine terrorist travel. It facilitates the broaddissemination of intelligence and drafts strategic assessments on smuggling andtrafficking-related matters. The HSTC is charged with strengthening partnerships withforeign governments and international organizations to combat human smugglingand trafficking. The IRTPA also requires HSTC to support NCTC’s counterterrorismefforts.10National Strategy To Combat Terrorist Travel
Pillar I: Constrain Terrorist Mobility OverseasTerrorist Screening and Information Sharing with Foreign PartnersTerrorist Interdiction ProgramThe Te
Targeting travel is at least as powerful a weapon against terrorists as targeting their money. Th e United States should combine terrorist travel intelligence, operations, and law enforcement in a strategy to intercept terrorists, fi nd terrorist travel facilitators, and constrain terrorist mobility. Th e 9/11 Commission Report July 22, 2004
terrorist groups that trade in illicit drugs to fund terrorist operations, and U.S. Attorneys' offices across the country prosecute cases involving terrorist financing, working closely with the Department's National Security and Criminal Divisions. Congress enacted a number of statutes that the Department uses to target the funding of terrorist
The Terrorist Screening Database and Preventing Terrorist Travel Congressional Research Service Summary After the terrorist attacks of September 11, 2001, the federal government developed a unified regimen to identify and list known or suspected terrorists. The regimen has received repeated
3. Terrorist Financing 4.1 What is "terrorist financing"? Terrorist financing is a general term to describe activity that provides or facilitates the provision of money or property to be used for terrorist purposes. The various terrorist financing offences can be found in Part III of the Anti-Terrorism and Crime Act 2003.
into real estate, luxury assets, or business ventures.2 Terrorist Financing Terrorist financing refers to the processing of funds to sponsor or facilitate terrorist activity. A terrorist group, like any other crim
combat terrorist financing set out in The Anti-Terrorism (Financial and Other Measures) Act (ATFA) since 2004. The original obligations on the financial sector in Bermuda have been in place since 1998. Bermuda has committed itself to having a strong and robust framework to combat money laundering and terrorist financing.
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review of national and international counter terrorist strategies. This work has sought to investigate the historical origins and model of operation of traditional Hawala, considering the risks these system pose for assis ting terrorist financing. A normative framework has been presented against which counter terrorist strategies
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