/t"/tf1~ t?~t?

773 <6
~c:. a/}/1 ,~cfl
___ ------.......;t'
Law Enforcement Sensitive

MEMORANDUM FOR THE RECORD

Event: Cofer Black, DOS S/CT programs

Type of event: Briefing
Date: Aug. 14, 2003
Special Access Issues: None
Prepared by: Susan Ginsburg
Team Number: 5
Location: State Department
Participants - Non-Commission:
Ambassador Cofer Black, Coordinator for Counterterrorism (S/CT), Dept. of State;
Karen Aguilar, Regional Multilateral Designations, S/CT

Participants - Commission:
Depty. Exec. Dir. 202-331-4063
Chris Kojm
Leader, Team 5 202-401-1726
M. Elizabeth Swope
Counsel, Team 5 202-401-1747
Susan Ginsburg
Counsel, Team 5 202-401-1705
Janice Kephart-Roberts
Team 3 202-331-4079
Scott Allan
Documents/handouts received by the Commission:
S/CT Organization Plan
Designating Foreign Terrorist Organizations Under U.S. Law

S/CT Mission
State Department Basic Authorities Act of 1956

TEXT:
The State Department is the most important government agency in the "war on
terrorism," because it is American diplomacy that enables other agencies - security,
military-to go forward effectively. The two most important functions of S/CT are
leadership and representation, especially regional geographic representation,
development of contacts. There are those who help us and those who don't. S/CT's
mission is to build the will and capacity to counter terrorism. Aspiration is for S/CT
officers to be knowledgeable in CT policies, integrate world counterrorism structure that
makes sense, need to re-prioritize use of time and resources.
• Post 9/11 meeting in the sit room on borders.

Observation made that we have "no defended border" between US and Canada, so
escalated relations with the Canadians on border topics.

9/11 Agency Internal Matters

•
Document fraud. Not involved in technical aspects - CA and DS.

Visa policy. Weigh in with CA, not a primary issue.

Watchlist. Live discussions
meeting attended by CA AlS
(?) in Senior Steering Group
watchlist at TIIC. Congress
access is key. DHS is really
assessing US vulnerabilities,
on future of the watchlist process. Today's NSC deputies
Maura Harty backed up by S/CT person. S/CT participates
at TIlC, with INR, DS, CA. Foresees integration of
said there is not enough commonality, and broadest possible
only a customer, so should not run the system. DHS focus is
Hoover Dam. Master database does not present a problem

•
for TIPOFF .

Ambassador Black reports to Dep Sec. Armitage.

• Basic communications
Counterterrorism
mechanism for real time breaking events is 8 AM
Security Group video conference under Fran Townsend at NSC.
Helpful that Fran used to be a DOS, he used to be at CIA.

Designations of foreign terrorists by State and Treasury post 9/11 carried out pursuant
to Exec Order 13224. 250 individuals and groups.
Prior to 9/11, pursuant to Foreign Terrorist Organization process, 36 foreign terrorist
organizations. Emphasized importance of balancing designation with other interests,
such as intelligence activity. Object is not to designate, but to use as one tool to "get
terrorists. "

Anti-Terrorist Assistance program. Training. CT provides policy overlay, rank. orders

countries on basis of need. DS implements.

Patterns of Global Terrorism. The definitive anti-terrorism account in the world.

Provides a vehicle to advance US perspectives.

Border screening. "Unwise to initiate policies that are fishing expeditions, to see what
we come up with." Policy is open doors, secure borders. Idea is to protect but not hassle.

•
"Criteria of who to stop still emerging." Must identify measurables of who we want to
stop. By country? Geneder? 3rd country passports because that's what US interested in .

Various regional and multilateral counterterrorism efforts:

CICTE for OAS, chairmanship EI Salvador, new and has potential, focus on
communication and training assistance.
G-8. more bureaucratic and problematic.
OSCE. Passports and biometrics. 55 countries.

Country policy coordination and guidelines is from NSC, with broad brush stroke.
Policy Coordinating Committee and CSG.

Terrorist flr:::Je .. Biggest growth area for S/CT. Training to financial units and
lawmakers. Important thing is "taking money away from the right people."
, .

S'CF hasgrown from about 20 to nearly 100 people.

9/11 Agency Internal Matters

•
 70

,
Appropriations for Fiscal Year 1999 (Public
. 91
91
t;~t ..~r·st;~ ..Ad";;;i~~t;~ti~~·~r·F~;~~
..M:
d·~~~~~·~~g;.~~··~~~~:~~:::~:~:::::~:~~::~~~~~~~~~~~~~~::~:
91
91
(Publie Law 96-449) .. 93
1. State Department Basic Authorities Act of 1956
Public Law 84-885 [So 2569], 70 Stat. 890, approved August 1, 1956, as
amended

AN ACT To provide certain basic authority for the Department of State.

Be it enacted by the Senate and House of Representatives of the
United States of America in Congress assembled, That this Act may
be cited as the "State Department Basic Authorities Act of 1956".
TITLE I-BASIC AUTHORITIES GENERALLY
ORGANIZATION OF THE DEPARTMENT OF STATE
SECTION 1. (a) SECRETARY OF STATE.-

* * * * * * *
(£)1 COORDINATOR FOR COUNTERTERRORISM.-
(1) IN GENERAL.-There is within the office of the Secretary of
State a Coordinator. for Counterterrorism (in this paragraph re-
ferred to as the 'Coordinator') who. shall be appointed by the Presi-
dent, by and with the advice and consent of the Senate .
. . (2) DUTIES.-
(A) IN GENERAL-The Coordinator shall perform. such duties
and exercise such powers as the Secretary of State shall pre-
scribe.
(B) DurIES DESCRIBED.-The principal duty of the Coordina-
tor shall be the overall supervision (including policy oversight
of resources) of international counterterrorism activities. The
Coordinator shall be the principal adviser to the Secretary of
State on international countertelTOrism. matters. The Coordina-
tor shall be the principal counterterrorism official within the
senior management of the Department of State and shall re-
port directly to the Secretary of State.
(3) RANK AND STATUS .OF AMBASSAOOR.-The Coordinator shall
have the rank and status of Ambassador at Large." ..

* * * * * * *
SEC. 36.· DEPARTMENI' OF STA1E REWARDS PROGRAM.
(a) ESTABLISHMENT.-
(1) IN GENERAL-There is established a program for the pay-
ment of rewards to carry out the purposes of this section.

I See. <0 was added by See. 2801(a) of Public Law 105-277 (112 Stat. 2681-824)
222 U.s.C. 2708. Sec 36 WIL8 added by sec. 102 of Public Law 9S-533 (98 Stat. 27OB). It was
~ .. : eubsequently ameDded by Public Law 100-690 (102 Stat. (287); by Public Law 103-236 (lOB
Stat. 619); by Public Law 104-134 (110 Stat. 1321-45); In 1998, sec. 36 was ameDded both by
lee. 2202 of Public Law 105-277 (112 Stat. 2681-805) and subsequently by sec. 101 of Public
Law 105-323 (112 Stat. 3029).
(71)
 .oJ ned person " means a person that makes
in section 1604(a).
A

nited States assistance" means-

;~stance under the Foreign Assistance Act of
2151 et. seq.), other than urgent humani-
or medicine;
to stance under the Arms Export Control 5. International Security and Development Cooperation Act
of 1985
Ig' b~ the Commodity Credit Corporation for Partial text or Public Law 99-83 [So 960], 99 Stat. 190, approved August 8,
f agncultural commodities; and 1985 as amended
g under the Export-Import Bank Act.
AN ACT To authorize internationel development and security assistance programs
and Peace Corps programs for fiscal years 1986 and 1987, and for other purposes.
Be it enacted by the Senate and House of Representatives of the
United States of America in Congress assembled,
SECTION 1. SHORT TITLE AND TABLE OF CONTENTS.
(a) SHORT TITLE.-This Act may be cited as the "International
Security and Development Cooperation Act of 1985".

* * * * * *
TITLE V-INTERNATIONAL TERRORISM AND FOREIGN
AIRPORT SECURITY 1
PART A-INTERNATIONAL TERRORISM GENERALLY

SEC. 501.· • •
SEC. 502. COORDINATION OF ALL UNITED STATES TERRORISM-RELAT-
ED ASSISTANCE TO FOREIGN COUN'1RIES.
(a) COORDINATION.~The Secretary 'of State shall be responsible
for coordinating all assistance related to international terrorism
which is provided by the United States Government
(b) REpORTS.-Not later than February 1 each year, the Sec-
retary of State, in -consultation with appropriate United States
Government agencies, shall report to the appropriate committees of
the Congress on the assistance related to international terrorism
which was provided by .the United States Government during the
preceding fiscal year. Such reports may be provided on a classified
basis to the extent necessary, and shall specify the amount and na-
ture of the assistance provided.
(c) RULE OF CONSTRUCTlON.-Nothing contained in this section
shall be construed to limit or impair the authority or responsibility
of any other Federal agency with respect to law enforcement, do-
mestic security operations, or intelligence activities as defined in
Executive Order 12333.2

:-106 (110 Stat. 494) amended and restated subpara. (A),

eign AsaistaDCe Act ot 1961, other than- lSee Section F for the text ot legislation on foreign airport security.
Jt&Dce or meclicine; and 2For text, see U.s. Congreas. House. Committee OD Intemational Relations. LegisUJtioll Oil
r 11 of part I (as enacted by the Freedom tor Russia and Fo~i81l Relationa Th.,!,Ugh 1996, (Washington, G.P.O., 1997). vol. II, sec. D.
J and Open Markets Support Act ot 1992);". (35)
 , ~uthorization Act, Fiscal Years 1992 6. Foreign Relations Authorization Act, Fiscal Years 1988
and 1993 ~ .. and 1989
cLaw 102-188 [H.R. 14 5 tat. partial text of Public Law 100-204 [H.R. 1777], 101 Stat. 1331, approved
October 28 , 1991 ,amen d·· y 647, approved
December 22, 1987, as amended
!appropriations for fucal years 1992 and 1993 f th AN ACf To authorize ap'pro'priations for fiscal years 1988 and 1989 for the Depart-
:ment of State, and for other purposes. or e ment of State, the United States Information Agency, the Voice of America, the
Board for International Broadcasting, and for other purposes.
~ Se!Wcteand House of Representatives of the
rica tri ongress assembled , Be it enacted by the Senate and House of Representatives of the
!LE. United States of America in Congress assembled,
SECl'ION 1.1 SHORT TITLE AND TABLE OF CONTENTS.
~~a:9~;. "Foreign Relations Authorization
(a) SHORT TITLE.-This Act may be cited as the "Foreign Rela-
tions Authorization Act, Fiscal Years 1988 and 1989".
* * * * * * * * * * * *
SCELLANEOUS FOREIGN POLICY
PROVISIONS TITLE I-THE DEPARTMENT OF STATE
>REIGN POLICY PROVISIONS PART B-DEPARTMENT OF STATE AUTHORITIES AND ACTIVITIES

* * * * * * * * * * * *
SEC. 140.1 ANNUAL COUNTRY REPORTS ON TERRORISM.
mRORIST ASSETS IN THE UNl'IED STA1ES
(a) REQUIREMENT OF .ANNuAL COUNTRY REPORTS
therJft.er~
GRESS -~ 90 da . ON TERROR-
md e~e1Y 365 days the date of ISM.-The Secretary of State shall transmit to the Speaker of the
sulta~on with the Attorney Gene':Je:::dtary
~eDC1es,2 shall submit to the Committee ap-
House of Representatives and the Committee on Foreign Relations
of the Senate, by April 303 of each year, a full and complete report
~e Co~ttee on Finance of the Senate ~ providing-
. (1) detailed assessments with respect to each foreign coun-
~ Affairs 3 and the Committee on Wa
~ or Repre~ntatives a report describing di: try-
(A) in which acts of international terrorism occurred
~~ts.held In the United States by terro~ which were, in the opinion of the Secretary, of major sig-
tiC?nengaged In mternational te .
ie a detailed list and descri~~~f nificance;
(B) about which the Congress was notified during the
· 1.

·puryoses of this section- preceding five years pursuant to section 6(j) of the Export
~r:!~
:i~ ~ corunstries", refers to countries des-
tate under section 4O(d) of the
Administration Act of 1979; and
(C) which the Secretary determines should be the sub-
ject of such report; 4
~tional terrorism" has the m . . (2) all relevant information about the activities during the
~14O(d) of the Foreign Relatio:A~~ryen preceding year of.anyterrorist group, and any umbrella group
'S 1988 and 1989. nza- under which such terrorist group falls, known to be responsible
for the kidnapping or death of an American citizen during the
I RelaUons Autborizat·
;}, &truck out "TreasuJn.ndc~e=
ey General and ap
A
. te·
F'
'.
~&: Ithe994and 1995
reof "Treas-
122 us,o. 2651 note.
222 u.s.c. 2656f.
4 (109 Stat. prop.na investigatIve llgeDciea,". 8Sec. 122 of the Foreign Relations Authorization Act, Fiscal Years 1990 and 1991 (Public Law
lep . 186) pro\'lded that retereDOes to the Committee 101-246; 104 Stat. 27), struck out "March 81" and inserted in lieu thereof -April 30".
· H re&eDtofatiRepvea
shaD be treated as reterriDg to the Co ·t 4 Sec. 578(1) of the Foreign Operations, Export Financing, and Related Programs Appropria-

aente='
ouse reaentativea IIUD.I - tions Act. 1997 (sec. 101(c) of titie I of the Omnibus Consolidated Appropriations Act. 1997; Pub-
Relations Autbo· t· A· lic Law 104-208; 110 Stat. 3009), struck out "'and" at the end of para. (1), struck out a period
· added this JOD ct, Fiscal Y.... 1994 and 1995 at the end of para. (2) ~d inserted instead a semicolon, and added new paras. (8) and (4).
(86) (87)
 88
preceding five years, any terrorist group known to be fins
by countries about which Congress was notified during the
ceding year pursuant to section 6(j) of the Export Admini
tion Act of 1979, and any other known international ten
group which the Secretary determines should be the subjE
such report; 4
(3) 4 with respect to each foreign country from whicl:
United States Government has sought cooperation durire
previous five years in the investigation or prosecution of a
of international terrorism against United States citizens (
terests, information on-
(A) the extent to which the government of the fo
country is cooperating with the United States Govern
in apprehending, convicting, and punishing the indiv
or individuals responsible for the act; and
(B) the extent to which the government of the fo
country is cooperating in preventing further acts of tE
ism against United States citizens in the foreign cou
and .
(4)4 with respect to each foreign country from whicl
United States Government has sought cooperation durin;
previous five years in the prevention of an act of interna1
terrorism against such citizens or interests, the informatic
scribed in paragraph (3XB).
(b) PROVISIONS To BE INCLUDED IN REPORT.-The repor
QUired under subsection (a) should to the extent feasible in
(but not be limited to)- .
(1) with respect to subsection (aXl}-
(A) a review of major counterterrorism efforts u
taken by countries whiCh are the subject of such repoi
eluding, as appropriate, steps taken in International
(B) the response of the judicial system of each 00
which is the subject of such report with respect to mr
relating to terrorism affecting American citizens or ~
ties, or which have, in the opinion of the Secretary, :
nificant impact on United States counterterrorism ei
including responses to extradition requests; and
(C) ~cant sup~rt, if any, for international t
ism by each country which is the subject of such repoi
eluding (but not limited to}-
(i) p<?litical and financial support;
(ii) diplomatic support through diplomatic re<
tion and use of the diplomatic pouch;
(ill) providing sanctuary to terrorists or ter
grou(.IV)psthand
;e POSItiOns
.. (i1ncluding
U
...; reco rd s ) on
voung ntY'

ters relating to terrorism in the General Asseml

the United Nations and other international bodie
fora of each country which is the subject of sue
port; and
(2) with respect to subsection (aX2), any-
(A) sigriificant financial support provided by foreigr
ernments to those groups directly, or provided in su
of their activities;
 S/CT Mission

The primary mission of the Office of Counterterrorism (S/CT)

is to ensure that the policies, plans and activities of foreign
governments support the United States' objectives in the Global
War on Terrorism (GWOT). S/CT will accomplish this mission
through intense diplomatic engagement with foreign governments
and comprehensive command and coordination of all USG
international counterterrorism (CT) policy and programs. S/CT's
efforts both contribute to the safety of Americans abroad, and
bolster the security of our homeland.

Roles of S/CT in Counterterrorism

The Department is the first among equals in USG agencies that

deal with international CT. The political will garnered through
diplomatic engagement is essential to the success of military,
law enforcement, intelligence and financial activities in the
GWOT. Given its importance, S/CT will focus on its primary
mission. My top priority is to induce foreign governments to
cooperate as effectively as possible in the GWOT both
'bilaterally with the u.s. and multilaterally with international
and regional organizations. Our goal is to create coalitions
that identify, deter, apprehend and prosecute terrorists. S/CT
programs include:

• Anti Terrorism Assistance (ATA)

• Terrorist Interdiction Program (TIP)
• CT Public Diplomacy
• Foreign Emergency Support Team (FEST)
• Technical support Working Group (TSWG)
• counterter~orism Financing (CTF) Training and Technical
Assistance
• Designations of Terrorist Organizations and Supporters of
Terrorism

S/CT is pressing various policy i~itiatives with other

governments to combat terrorism: stopping terrorist fund-
raising; improving border controls and travel documents;
encouraging adherence to international treaties and conventions
on terrorism and new conventions against terrorist bombings and
fund raising; higher security standards for air and ground
transportation systems; and countering weapons of mass
destruction. S/CT Leg~slative Issues include:
 2

• Treaties: Obtain Senate ratification of convention against

-terrorist bombings, and convention to suppress terrorism
fund raising. Both "have been submitted to Congress,
Justice is finalizing the implementing legislation.

• Sanctions legislation: Protect CT interests and close

potential loopholes in Export Administration Act being
considered by Senate Banking Committee. Support efforts to
fix Trade Sanction and Effective Penalty Reform Act of 2000
loopholes including ones allowing exports to FTOs.

o Obtain full appropriation requested for ATA program and

TIP and support full funding of CJS appropriation.Bill
request which funds the CT R&D program.

• FTO Process: Obtain legislative improvements in Foreign

Terrorist Organization (FTO) provisions in the
Antiterrorism and Effective Death Penalty Act of 1996, to
make the implementation more workable.

o Make permanent the S Visa provisions, which facilitate

resettlement in US if necessary to protect terrorism
rewards recipient and immediate families. Current
authority expires in November.
 SICT Organization Plan

• Coordinator
for Counterterrorism
Amb. Cofer Black

Personal Assistant
Libby Braun

Principal Deputy
Coordinator
William Pope

Personal Assistant
Sandy Phelps

Staff Assistant
Special Assistant Kathleen H.-Floyd
James Neel

Homeland
Security Unit

•
• Mitch Optican
• Rob Dolce

1
Liaison Officers

II
.Administration Operations
Regional Program~ (Amb. J. Dinger)
Legislation, PD R.Gain
Multilateral
Designations K. Wycoff
K. Aguilar 9/11 Agency Internal Matters

See Page 2 I See Page 3 ,

I See Page 4

Budget Assistant
I-
Planner S.Bell

Budget Conferences
Implementer

• 08/11/2003
1
 SICT Organi1Ation Plan
Deputy Coordinator
Regional and Multilateral
.Affairs and Designations
Karen Aguilar

OMS OMS
M. Jablonsky Pat Chambers

Office Director
Brent Hartley
Multilateral I G-8
• Chris Ensley
• Sally Schlegel

~------------------ -------------------~ II
,------------i------------- Designations
I
Regionals I I
I I
• S. Fox • T. Navratil
I I ~ ~
I I
WHA I I
EAP I I
-Tom Cooney I I
•Erik Rye -Everett Kaplan I I
-Paul Fujimura FTO
-Karen Chandler
•Adam Frankel I
I
I
I
I
Exec Order
- Ms. Sarraf
I-- - • M.Jacks
I
I I
I I
I I
I I I
SA I I
I I FTO
EUR - Mark Wildermuth I I I
- (Marc Norman) • Ruth Parent I I -GS I-- ~ - T. Bacon-
I I Gonzalez I
- (John Sullivan) • Stephanie Molnar I I to be advertised I
I I I
I I I
I I I
I I I
I I I
NEA I FTO I
AF
I ~ I
• Mark Shaheen I I • Rob Goodson I
-Lee MacTaggart I I
- Miller GS Position I I
-FS to be Advertised ,I I
-Katy Gore . I I I
I I
I
I
L --------~
----------------------------------------

2
08/11/2003
 SICT Organization Plan
Associate Coordinator
Programs, Legislation and
Public Diplomacy
Karl Wycoff

OMS OMS
Receptionist
J. Redfern
Vacant

Office Director
(and R&DrrSWG)
Mike Jakub

r---------- -----------
Legislative Capacity Building
- Mike Kraft

Wisniewski

Senior Policy
WorkShops
-G. Stinson
-H. Medeiros

----------------------

3
08/11/2003
 S/CT Operations
Navy Hill Annex

• OMS
Associate Coordinator
Operations
(Amb. John Dinger)

Deborah Watson

Office Director TOPOFF

Tom Hastings Vacant

'--------11 R. ~:~~.... 1
__________________
~ ~__-~--~---~---~---~-,~~~~~--~---~---~--~---~---~-_J,
Director of Director Crisis ,:
Plans/Policy Res onse :
,,
I

-Mark Thompson -Tim Walsh ,

-James Webster
I I
I I 9/11 Agency Internal Matters

•
9/11 Agency Internal Matters

Reserve Augmentation
Part-Time and Full-Time
DODReservists
Commo
Support FEST
-Mike Cifarelli Sensitive Support
-Tom McCue i i
9/11 Agency Internal Matters
•Doug Rhodes I I
(IRM)
r
,
I

~--------------------------------------
I '
-------------------------------------

• 4
08/11/2003
 9/11 Agency Internal Matters

•
 DESIGNATING FOREIGN TERRORIST ORGANIZATIONS UNDER
U.S. LAW

• The process of designating a Foreign Terrorist

Organization under the authorities of the Antiterrorism
and Effective Death Penalty Act of 1996, Public Law 104-
132, Section 301) is a detailed and extensive effort.
The State Department, working closely with the
intelligence community, and Departments of Justice and
Treasury, must first compile an Administrative Record
an exhaustive dossier of evidence -- that documents the
group's involvement in terrorist activities. Both
classified and unclassified sources are used in preparing
the administrative record.

• This administrative record then undergoes an extensive

interagency review as the Secretary of State's
designations must be made in consultation with Attorney
General and the Secretary of Treasury.

• Congress also included in the 1996 law a provision that

makes a designation subject to judicial review in the
U.S. Court of Appeals for the District of Colombia.
Thus, the Administrative Record, which is usually
classified because it contains intelligence material,
must withstand court scrutiny. (Several groups have
challenged the designations. Thus far, the Court has
upheld the designations.)

• Seven days before publishing an FTO designation in the

Federal Register, the Department of State provides
classified notification to Congress. The designation takes
effect upon publication.

• FTO designations expire in two years unless renewed. The

law allows groups to be designated at any time following a
decision by the Secretary, in consultation with the
Attorney General and the Secretary of the Treasury. The
Secretary may also revoke designations after determining
that the statutory requirements have been met.
* Sec. 219 of the Immigration and Nationality Act, which was amended by the Antiterrorism and Effective Death
Penalty Act of 1996, defines terrorist activity to mean: any activjty which is unlawful under the laws of the place
where it is committed (or which, if committed in the United States, would be unlawful under the laws of the United
States or any State) and which involves any of the following:

(I) The highjacking or sabotage of any conveyance (including an aircraft, vessel, or vehicle).

(II) The seizing or detaining, and threatening to kill, injure, or continue to detain, another individual in order to
compel a third person (including a governmental organization) to do or abstain from doing any act as an explicit or
implicit condition for the release of the individual seized or detained. .

(III) A violent attack upon an internationally protected person (as defined in section 1116(b)(4) of title 18, United
States Code) or upon the liberty of such a person.

(IV) An assassination.

(V) The use of any-

(a) biological agent,· chemical agent, or nuclear weapon or device, or

(b) explosive or firearm (other than for mere personal monetary gain), with intent to endanger, directly or indirectly,
the safety of one or more individuals or to cause substantial damage to property.

(VI) A threat, attempt, or conspiracy to do any of the foregoing.

(iii) The term "engage in terrorist activity" means to commit, in an individual capacity or as a member of an
organization, an act of terrorist activity or an act which the actor knows, or reasonably should know, affords material
support to any individual, organization, or government in conducting a terrorist activity at any time, including any of
the following acts:

(I) The preparation or planning of a terrorist activity.

(II) The gathering of information on potential targets for terrorist activity.

(III) The providing of any type of material support, including a safe house, transportation, communications, funds,
false documentation or identification, weapons, explosives, or training, to any individual the actor knows or has
reason to believe has committed or plans to commit a terrorist activity.

(IV) The soliciting of funds or other things of value for terrorist activity or for any terrorist organization.

(V) The solicitation of any individual for membership in a terrorist organization, terrorist government, or to engage in
a terrorist activity. .
TO: Office of Del. Hutchins

ATTN: Erin
Joanne Accolla

Crom: Betty Swope [meswope@9-11commission.gov]

nt: Thursday, September 11,20037:06 AM
. a: TeamS@9-11commission.gov
Subject: FW: Terrorist Interdiction Program documents

May 03 TIP FY 05 Budget program 100302 TIP OMB 02 1902 PISCES

mmitee Program Re Justification.doc ... scription. doc (36 KE CPD FY04.doc ... Intro Paper.do...

-----Original Message-----
From: Wisniewski, Mark E [mailto:WisniewskiME@STATE.GOV]
Sent: Wednesday, September 10, 2003 3:34 PM
To: 'meswope@9-11commission.gov'
Subject: Terrorist Interdiction Program documents

Ms Swope: I was asked to forward to you copies of electronic documents we have that best
describe the background, purpose and operation of S/CT's Terrorist Interdiction Program.
I understand that you requested this information in the course of your recent meeting with
Ambassador Black. Attached are five products that meet those criteria. I have a couple
more that, although unclassified, have been stored on classified media and hence I must go
through the process with our IT folks to have them properly transferred to unclass media
before I can forward them. I anticipate no more than a one day delay. Three of the four
documents attached represent material the department put together for the annual budget
requests in the 2002 and 2003 timeframes.

rk Wisniewski
CT TIP Program Coordinator
7-6475
«May 03 TIP Commitee Program Review.ppt» «FY 05 Budget Justification.doc» «program
description. doc» «10 03 02 TIP OMB CPD FY04.doc» «02 19 02 PISCES Intro Paper.doc»

1
Terrorist Interdiction Program Description

The effort to deter terrorism, and particularly prevent terrorist attacks on American soil, requires
working with our global friends and allies to establish means to prevent the unrestricted movement
of persons involved in terrorist activities. The Terrorist Interdiction Program (TIP) significantly
contributes to this cause by serving to bolster the border security of countries at a high-risk of
terrorist transit. Terrorists take advantage of nations with little or no effective capability to
identify or track their passage, or otherwise restrict their freedom of movement. TIP is designed to
counter this threat by serving as a foundation for increased counterterrorism cooperation and
providing the means for participating nations to disrupt terrorist activities.

TIP provides selected countries with a computerized system that allows border control officials to
quickly identify suspect persons attempting to enter or leave the country through air, land and sea
ports of entry. TIP also provides selected countries with the means to collect, compare and
analyze traveler information and contribute to the global effort to understand terrorist methods and
track their movements. By assisting countries to better control their borders TIP enhances the
security of Americans both at home and abroad.

TIP is a joint program that installs and maintains the Personal Identification Secure Comparison
and Evaluation System (PISCES) at selected points of entry in a participating country. PISCES
provides a high-speed secure connection from the participating country's central data base of
suspect persons to air, land and sea points of entry where the system is installed. PISCES enables
border officials to quickly input traveler infonnation contained in passports or other official
documents to the database and obtain nearly instantaneous feedback on the traveler's status with
respect to the government's listing of terror suspects. In addition to installing PISCES equipment
at points of entry, and government headquarters facilities of the nation's choosing, TIP provides
comprehensive training in PISCES operation and maintenance, as well as assistance with
optimizing its employment in the country's border control and immigration program.

There are presently 60 countries identified through a USG interagency process as potential
recipients of TIP. These countries were selected based on known terrorist activity or terrorist
transit, a need for the capability that PISCES provides, and the political will to participate with the
United States in this program. While the initial installation of PISCES may only be at the
participating nation's international airport(s), it is a goal of TIP to install the system at all
significant air, land and sea points of entry.

In FY 2005, the Department plans to conduct approximately 15 phased installations of PISCES in

countries on the interagency tier list for TIP. Some of these installations may represent the initial
increment of TIP in a particular country, while others would involve expansion of the number of
sites where PISCES is operating in a country. The size, complexity and scope of these
installations will vary according to the unique requirements and desires of the participating nation,
as well existing priorities in response to the changing nature of the terrorist threat. The goal
remains to install TIP as quickly and comprehensively as resources and circumstances permit.
Policy:
Within S/CT, DOS and CTC
Within the Interagency
With Missions
Among Host Nation Agencies
 ·····1d~ntifiea':E)cfi't~~ti(,n
R ()ot~~"'D'o'rih
Collected Country Watchlist Data
Collected Country Traveler Data
Improve Immigration Controls
Building Effective Watch listing
Tighter immigration screening in more locations
Deployrri~~~tst~p~kistan,Afgh~hi~t~~,Yemen
and Nepal
Surveys in 17 countries
Acceptance by 18 countries
Revised PISCES "baseline" software
 Use of local IT Vendors
Improved Program Communications
New Host Nation Demonstration
New Information Materials
New Video
Web Site
 .Regio nal'C~l1te""'('<""":""'"
,,_,_' '•.... ,:'"', .•• ,,.:',.,:, "'.,-;, .' __
..':,1_.""' ••',, ,'" ':':_:':"-:" ".'-:-',,:;:

Develop and deploy new "standard" PISCES

system
Improve data flow from the field
FY202(SUPP}+ ....
.... .·$10
FY 2003 $5.0M $9.0M
FY 2004 (Req) $11.0M
 :,::·,~~.nal11a'
Colombia:
Mauritania
Kazakhstan Nigeria
Senegal
Egypt
Saudi Arabia
Czech Republic
Russia Bulgaria
Romania
 · .. ' ':",<:'»' • ·i,':,'

Intelligence collected
Deterrent Value
· ...'Se" .•.'es ....i' i~~'~~"<)' ' ..0 g~i:l·<..i.'<····,··c:.,::
.......•............... n-.
,...
'::<'::."":,, .....
:...
Serves as af~~alpoint for CT Engagement~ith host nation
officials at a new level, with new officials
Intelligence collection - from the moment of engagement
through installation and support phases
Provides continuing, increased access to Host Nation
officials
Terrorist Interdiction Program Description

The effort to deter terrorism, and particularly prevent terrorist attacks on American soil, requires :
working with our global friends and allies to establish means to prevent the unrestricted movement
of persons involved in terrorist activities. The Terrorist Interdiction Program (TIP) significantly
contributes to this cause by serving to bolster the border security of countries at a high-risk of
terrorist transit. Terrorists take advantage of nations with little or no effective capability to
identify or track their passage, or otherwise restrict their freedom of movement. TIP is designed to
counter this threat by serving as a foundation for increased counterterrorism cooperation and
providing the means for participating nations to disrupt terrorist activities.

TIP provides selected countries with a computerized system that allows border control officials to
quickly identify suspect persons attempting to enter or leave the country through air, land and sea
ports of entry. TIP also provides selected countries with the means to collect, compare and
analyze traveler information and contribute to the global effort to understand terrorist methods and
track their movements. By assisting countries to better control their borders TIP enhances the
security of Americans both at home and abroad.

TIP is a joint program that installs and maintains the Personal Identification Secure Comparison
and Evaluation System (PISCES) at selected points of entry in a participating country. PISCES
provides a high-speed secure connection from the participating country's central data base of
suspect persons to air, land and sea points of entry where the system is installed. PISCES enables
border officials to quickly input traveler information contained in passports or other official
documents to the database and obtain nearly instantaneous feedback on the traveler's status with
respect to the government's listing of terror suspects. In addition to installing PISCES equipment
at points of entry, and government headquarters facilities of the nation's choosing, TIP provides
comprehensive training in PISCES operation and maintenance, as well as assistance with
optimizing its employment in the country's border control and immigration program.

There are presently 60 countries identified through a USG interagency process as potential
recipients of TIP. These countries were selected based on known terrorist activity or terrorist
transit, a need for the capability that PISCES provides, and the political will to participate with the
United States in this program. While the initial installation of PISCES may only be at the
participating nation's international airport(s), it is a goal of TIP to install the system at all
significant air, land and sea points of entry.

In FY 2005, the Department plans to conduct approximately 15 phased installations of PISCES in

countries on the interagency tier list for TIP. Some of these installations may represent the initial
increment of TIP in a particular country, while others would involve expansion of the number of
sites where PISCES is operating in a country. The size, complexity and scope of these
installations will vary according to the unique requirements and desires of the participating nation,
as well existing priorities in response to the changing nature of the terrorist threat. The goal
remains to install TIP as quickly and comprehensively as resources and circumstances permit.
 THE TERRORIST INTERDICTION PROGRAM
NADR Account

Background
The Terrorist Interdiction Program (TIP) is the Coordinator for Counterterrorism's
(S/CT) response to the increasing ability of terrorists to cross international boundaries to
stage terrorist attacks and escape undetected. TIP limits terrorists' capabilities to move
freely amongst countries by assisting host countries in securing their borders. The
program has three parts:

• Installing the Personal Identification Secure Comparison and Evaluation

System (PISCES);
• Training immigration and customs officials to use PISCES; and
• Development, sustainment and management of the system.

PISCES is a database that provides border control officials with information that
allows them to identify and detain or track individuals of interest. The system provides a
high-speed, secure connection from a country's centralized data bank of suspects, located
in the country's intelligence bureau, to points of entry where PISCES is installed. This
allows border control officials to check passports quickly and accurately for the purpose
of identifying terrorist suspects. Officials can also use PISCES to quickly retrieve
information on persons who may be trying to hastily depart the country after a terrorist
incident. Furthermore, TIP will train these border control officials to use PISCES to
collect, compare and analyze data that can be utilized to arrest and investigate suspects.

S/CT selects countries to participate based on the countries' volume of travel and
use as a transit point, available intelligence information, and political will to cooperate.
S/CT plans to add five countries per year over the next six years. This will require a
significant increase in funding given the need to increase the number of installations per
country (approximately $800k per "node"). Addressing multiple transit points within a
country is essential to ensure TIP's maximum effectiveness, especially in countries at
higher risk for transit of suspected individuals. Additionally, the program's success
requires appropriate funding for the sustainment, system development and regional
program management for the long-term. .

Since September 11 and the addition of the Frontline States, we now have
identified 57 countries as potential recipients of TIP. Our initial baseline goal was to
install TIP in one to two airports in up to five countries annually -- a schedule that would
take at least 12 years to complete at the current annual funding level. Supplemental is
thus needed to ramp up installation of PISCES in multiple points of entry in a range of
new countries as well as augment the number of nodes for some countries already in the
TIP program.
Use of Funding

FY 2000
The Secretary allocated $1.25 million in FY 2000 for the TIP. S/CT, in
conjunction with the interagency counterterrorism community, selected Pakistan for the
TIP pilot project. Approximately $1 million was used to develop the PISCES software
for Pakistan. The remaining $250,000 was provided to INTERPOL to upgrade the
INTERPOL NCB in Islamabad, Pakistan.

FY 2001
The Secretary allocated $4 million in FY 2001 for the TIP. The Department will
use approximately $1.5 million to install PISCES in the Karachi, Pakistan International
Airport with associated links to key government ministries and agencies. More
specifically, the funding will be used to install the infrastructure necessary to support
PISCES and establish connectivity between arrival and departure lounges in the Karachi
International Airport, the Federal Investigative Agency (FIA) in Karachi and Islamabad,
the Intelligence Bureau (IB) in Karachi and Islamabad, the National Database and
Registration Authority (NADRA) in Islamabad, and the Islamabad International Airport.
This funding will also purchase the hardware and software necessary for installation and
train border control officials to use PISCES.

The Department will use the remaining $2.5 million for programs in the United
Arab Emirates (UAB), Yemen, Kenya, and South Africa. Approximately $2,355,000 will
be used for site assessments, contractor support, the purchase of hardware and software,
training for border control officials, and the installation of PISCES in the U AE, Yemen,
and Kenya (approximately $785,000 for each country). The Department also plans to use
up to $145,000 for site assessments and contractor support in South Africa.

In addition, TIP supported the upgrade of INTERPOL's communications system

to transmit fingerprints, photos, and other graphics on a near-real time basis to and from a
participating country's INTERPOL National Central Bureau (NCB) to other points on the
INTERPOL network. Information from the NCB can then be entered into PISCES
databases. This support will continue as required by the region.

FY 2002
The President's budget requested $4 million in FY 2002 for the TIP. Of this,
approximately $640,000 will be used to complete installation of PISCES in South Africa
and train border control officials to use PISCES. The remaining funding will be used to
conduct site assessments, install the TIP, and train host country border control officials in
the next priority countries. Prior to the terrorist attacks on 11 September 2001, we
planned to install TIP in Nigeria, the Philippines, Thailand, Bosnia, and Turkey. As a
result of those attacks, the order of priority countries is shifting. FY 2002 program funds
will be targeted towards countries identified as priorities based on more recent
assessments of intelligence, strategic importance to the global counterterrorism campaign,
and political will.

FY 2002 ERF Supplemental

Beyond the planned FY 2002 program, $4 million in supplemental funds will be
used to accelerate and broaden implementation of TlP assets in priority countries. The
benefits of TlP _ giving states improved capability to interdict and prevent the transit of
terrorist suspects - is a critical component of the global effort to fight terrorism.

Supplemental funds will enable the Department to provide TlP to countries that
have moved up on the priority list. Greece, for example, is a higher priority country due
to the 2004 Olympics and its requirement for a strong border security system. Funds will
also be needed to meet unforeseen requirements, such as a program in Indonesia, which
the President offered to President Megawati Sukarnoputri in September 2001.

FY 2002 Supplementa@f?_~!:!'~~1..l~~~~_5!f~~~-T!-e.Y'!-~~-~!ti~~-!~f?~!!~~~_f~!_~~ --__--{_D_e_le_te_d_: '::.-------

TIP program and the increase in per-country requirements (more nodes per country plus
sustainment) leaves a sizeable funding shortfall to meet the President's war on terrorism.
Supplemental funding of $18 million is requested to meet near-term program
requirements. The current funding plan (illustrated below) applies the FY 2002 annual
and ERF supplemental funding to help fulfill these requirements, and reflects the need for
FY 2002 emergency supplemental funding:

Afghanistan $2.5M
Pakistan $3.25M
India $3.25M
Yemen $1.5M
Mexico $2.5M
Greece $1.5M
Kenya $1.5M
Indonesia $1.5M
philippines $1.5M
S. Africa $1.5M
Tanzania $1.5M
Jordan $1.5M
UAB $.5M
Malaysia $1.5M
Singa~ore ~l.5M
Total $27M
 We believe investment in TIP provides a significant diplomatic engagement tool
as well as a tactical intelligence measure that will help tighten the noose at key terrorist
transit points world-wide. By assisting countries in securing their borders, TIP enhances
the security of Americans who live and travel abroad. The program acts as both an entre'
for USG diplomatic engagement with an host nation and acts as a clear indicator of its
willingness to support the global campaign against terrorism.
 PISCES
Personal Identification Secure Comparison and
Evaluation System

_~ ••• _ •.. ~_ .. _. ._ •.•• ',_.0" ._~ •• __ ._.,_ -_,' • ---- •..•.• -- •• - •.. -.-- •... -.-.- - ••. - ••• ---.--.- •.• ---------.------ .• - ••••• --- ••• -------.------------ .•• - ... ----.----

The Personal Identification Secure Comparison and Evaluation System

(PISCES) assists host countries in the global effort to combat terrorism and
crime. It collects, compares and analyzes data gathered from travelers,
allowing border control officials to quickly and easily identify suspect
. individuals.
• Introduction
As the tragic events of September 11 remind us, terrorism is a global threat with global
reach: although the attack occurred on American soil, citizens of more than 80 countries
were killed in the strike. The proper use of intelligence is the only way to stay one step
ahead of terrorist networks, disrupt their operations and protect innocent people around
the world from their malicious intentions. But information, although abundant, is useless
until it can be interpreted, managed and shared.

The Personal Identification Secure Comparison and Evaluation System (PISCES) is

a sophisticated border management tool and powerful high-tech weapon designed to help
fight the global war against terrorism. PISCES provides host countries with the means to
detect, prevent and deter global terrorist activities by collecting, comparing and analyzing
traveler information at strategic transit points around the world. It is efficient and reliable,
with low deployment and maintenance costs.

•
9/11 Agency Internal Matters

•
•

9/11 Agency Internal Matters

System Hardware and Software

PISCES is a client-server system. This allows PISCES to operate in a stand-alone, LAN

or WAN configuration. Included with the PISCES system are the necessary anti-viral and

•
backup software and Microsoft Office suite, inc1uding the Word,.PowerPoint, Excel and
Access programs .
• PISCES uses the Dell 6400 or 4400 servers and Dell 4100 clients. The operating system
is Windows 2000 and the database management system is Oracle. A web browser
interface allows quick access to foreign languages without changing the application code.
It features the JAVA control programming language and compliance with the Open
Database Connectivity Query Standard. The browser controls and supports rapid
response for database functions, peripheral devices, and system administration. The
system also features numerous peripherals to boost its effectives (see box below). All of
these peripherals are modular and insulated from the application software by easily
altered interface routines. That means if a new peripheral is needed, a different brand is
purchased Of a new and improved version is released, the impact of such a change or
upgrade is virtually unnoticed by the user.
Planning for and Installing PISCES

9/11 Agency Internal Matters

• 9/11 Agency Internal Matters

Step 1: The Site Survey

Network, software and facilities engineers

perform a detailed site survey to determine the
specific installation needs at each location where
PISCES will be installed. Following the
completion of a detailed questionnaire that
examines the status andlor availability of
electrical power, networking requirements, the
system environment and other similar issues, the
team creates a floor plan and power schematics
to accommodate PISCES. The survey team
typically includes a staff member who is
prepared to discuss the PISCES project in detail.
A 12-minute video, available in English and
Arabic, further demonstrates the capabilities of
the PISCES system. Before they depart the

•
team will prepare a list of any additional actions that are necessary to complete the
installation of the system. This is called the After Action Report.
• Step 2: Planning, Ordering and Delivery

Based on the After Action Report the PISCES team will prepare a project plan, system
design, equipment inventories and installation and training plans. They will order all of
the necessary equipment and will configure it for installation, loading the COTS and
PISCES software. The team tests each PISCES system before it is installed to ensure that
it is operating as required. Following the successful completion of this simulation, the
computers will be packed for shipping.

Step 3: PISCES Installation

When the final installation site is ready, a PISCES team will

arrive to install the system and conduct a training. User's
manuals and training materials will be provided-in the local
language if necessary- to all personnel who will be using the
system, such as customs and immigration officials, border
guards, analysts and system administrators.

Future enhancements
9/11 Agency Internal Matters

•
As technology becomes more sophisticated, so too do the
practices of criminals and terrorist networks in their quest to
evade detection. PISCES strives to stay one step ahead and
has planned several critical upgrades for future versions of
the system. Biometrics, for example, is a rapidly advancing
and exciting new technology that will further enhance the
effectiveness of the PISCES system. Below is a list of some
of what's to come:

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•
 Global Programs

• Account ""
TERRORIST INTERDICTION
($ in thousands)
PROGRAM

~ADR'

TIP Program Background:

As Sept. 11 made painfully clear, the United States has a major interest in
preventing terrorists from crossing international borders to attack innocent civilian
populations or to disrupt the internal stability of friendly countries. The Terrorist
Interdiction Program (TIP) is designed to help prevent or disrupt thetravel of terrorists
across international borders into high-risk countries that have little or no means of
quickly identifying such persons. TIP complements existing anti-terrorism training
programs by providing border control systems, incorporating computerized database
programs and rapidly transmitting information to interdict potential terrorists and their
weapons trying to cross international borders. In doing so, TIP bolsters the security of
Americans at home and abroad.

•
Specifically, the TIP program helps recipient nations improve border security by
providing computer hardware, database software, peripheral devices-· such as passport
scanners and finzernrint readers-training, and operational support that enables officials

9/11 Agency Internal Matters

I 9/11 Agency Internal Matters n .

s increase in the baseline
capacity will allow the USG to meet current, emergency, and anticipated needs within the
budget.

The Need for Global Capacity-Building:

Since the beginning of the war on terrorism, the President and other top
Administration and Congressional officials have emphasized the global nature of the
terrorist threat and the need for a cooperative global attack to defeat it. This war extends
•
Global Programs

beyond the battlefield in Afghanistan to every country where terrorist cells currently
operate or have the potential to operate because of weak internal defenses.

Because the tactics of terrorist movements today are highly unconventional, the
United States cannot win this war by conventional military means alone. The efforts of
Our armed forces must be complemented by effective, robust capacity-building programs
overseas, which are aimed at bolstering the capabilities of U.S. allies to fight and mitigate
terrorist activities. TIP does this by providing the necessary training, equipment, and
technologies to host nation security and immigration officials. These are the forces that
will be fighting international terrorism on a daily basis, protecting U.S. assets and
interests overseas and preventing terrorists from ever reaching American soil in the first
place.

TIP is also a significant diplomatic engagement tool. The program acts as both an
entre for USG diplomatic engagement with a host nation and acts as a clear indicator of
its willingness to support the global campaign against terrorism.

TIP Program Scope:

TIP makes it harder for terrorists to enter vulnerable countries undetected by

•
establishing a multiple-layered barrier program comprised of three elements: border
monitoring, using lookout systems and passport scrutiny; updated intelligence and
security databases and communications systems; and development of appropriate
equipment to detect weapons. The program focuses on vulnerable countries that are key
transportation hubs, havens or otherwise important international crossroads identi tied by
intelligence analysis and interagency assessment teams. As demonstrated by the attacks
of Sept. 11, the Cole attack, the Embassy bombings in East Africa in 1998, and other
similar and deadly attacks, intercepting terrorists before they can move into position is
key to preventing terrorist activities and saving lives.

Following Sept. 11 the Three- Tiered Interagency Priority list of strategic

countries increased' from 34 to 60 countries, including all Frontline states; thirteen of
these have known terrorist nodes and are key transit points. Not only has the list of
potential recipient countries increased significantly, but the country program resource
requirements have as well. As noted above, the introduction of the pilot program in
I Ihas
demonstrated the requirement for widespread installation of the system
i throughout all of a country's entry and exit points as well as the necessity for a
! comprehensive program to ensure the proper management, training, and functioning of
the system.

Installing TIP in multiple points of entry within a single country increases its
effectiveness in identifying terrorists as they transit that country's borders. Moreover,

•
building a network of TIP countries exponentially increases the program's effectiveness
by tightening the noose around free movement of terrorist suspects between countries .
But it also increases the cost of the program.
9/11 Agency Internal Matters
 Global Programs

• Budgetary Requirements:
.../9/11 Agency Internal Matters

As the President has said repeatedly, the fight against terrorism requires sustained
efforts over time by the U.S/and its allies. Thus, the ramp-up of TIP in FY 2002 with
supplemental funding should not be considered a one-time event. The TIP program
needs to be sustained at ahigher than historical level to ensure that the increased number
of countrie4 Fe provided the system at a faster rate than initially envisioned
and one which corresponds to the heightened security threats to the United States and to I

American citizens around the world .

• 9/11 Agency Internal Matters

•
 Global Programs

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., .

.
,-
'