generate vast sums of money for international organized crime
syndicates and terrorist organizations. Laundered through the
international financial system, this money then provides a huge source
of virtually untraceable funds to corrupt officials, bypass established
financial controls, and further other illegal activities, including
arms trafficking and migrant smuggling. These activities ensure a
steady supply of weapons and cash and ease the movement of operatives
for terrorist organizations worldwide. Breaking the nexus between drugs
and terror is a key objective in our war on terrorism and the National
Drug Control Strategy outlines U.S. goals in this area.
The United States will continue to work with our friends and allies to
disrupt the financing of terrorism. We will identify and block the
sources of funding, freeze the assets of terrorists and those who
support them, deny terrorists access to the international financial
system, protect legitimate charities from being abused by terrorists,
and prevent the movement of terrorists' assets through alternative
financial networks.
Sensitive technology in the hands of terrorists can be just as damaging
to our war efforts as weapons and financing. Therefore, we will
continue to pursue an aggressive strategy that identifies sensitive
information and technology and outlines appropriate steps to preclude
terrorists from obtaining and exploiting them.
_Objective: Eliminate terrorist sanctuaries and havens_. Terrorism
cannot have a place of refuge. It must be rooted out and destroyed. The
United States and the international community must develop procedures
and mechanisms that will eradicate terrorism wherever it exists. An
essential part of this campaign will be the promotion of international
standards of behavior and national legal systems to eliminate terrorist
refuges.
The United States will work in concert with our international and
regional partners to ensure effective governance over ungoverned
territory, which could provide sanctuary to terrorists. Where there is
a clear indication of terrorist activity in these areas, the United
States, in conjunction with our friends and allies, will work to
eliminate these terrorist sanctuaries and preclude any future access to
these areas by terrorist organizations.
The Intelligence Community, in conjunction with the Department of
Defense, the Department of State, and others, will conduct an annual
review and assessment of international terrorist sanctuaries and
subsequently develop plans that address the denial of these areas.
+_Goal_: Diminish the Underlying Conditions that Terrorists Seek to
Exploit+
The third component of the 4D strategy is made up of the collective
efforts to diminish conditions that terrorists can exploit. While we
recognize that there are many countries and people living with poverty,
deprivation, social disenfranchisement, and unresolved political and
regional disputes, those conditions do not justify the use of terror.
However, many terrorist organizations that have little in common with
the poor and destitute masses exploit these conditions to their
advantage. The September 11 terrorists, for instance, came
predominantly from the ranks of the educated and middle-class and
served in an organization led by a millionaire murderer.
These efforts to diminish underlying conditions have material as well
as intangible dimensions. Ongoing U.S. efforts to resolve regional
disputes, foster economic, social, and political development,
market-based economies, good governance, and the rule of law, while not
necessarily focused on combating terrorism, contribute to the campaign
by addressing underlying conditions that terrorists often seek to
manipulate for their own advantage. Additionally, diminishing these
conditions requires the United States, with its friends and allies, to
win the "war of ideas," to support democratic values, and to promote
economic freedom.
The United States does not propose to undertake this difficult
challenge alone. The United States has neither the resources nor the
expertise to be in every place in the world. Moreover, the struggle
against terrorism is not solely an American struggle. Our friends and
allies face many of the same threats. It is essential for America to
work with its friends and allies in this campaign.
_Objective: Partner with the international community to strengthen weak
states and prevent the (re)emergence of terrorism_. Weak states and
failed ones are a source of international instability. Often, these
states may become a sanctuary for terrorism. Therefore, we will ensure
that efforts designed to identify and diminish conditions contributing
to state weakness and failure are a central U.S. foreign policy goal.
The principal objective of our collective response will be the
rebuilding of a state that can look after its own people--their
welfare, health, prosperity, and freedom--and control its borders. The
United States is willing to assist the civilized world--governments,
nongovernmental agencies, and public-private partnerships--in
undertaking these efforts.
We will continue to expand bilateral and multilateral efforts, such as
the U.S.-Middle East Partnership Initiative, to promote good
governance, the rule of law, respect for human rights, and
professionalization of local justice systems. In particular, we will
broaden the scope and strength of International Law Enforcement
Academies, and combatant commands will address civil-military relations
and humanitarian assistance in their Theater Security Cooperation
Plans. Additionally, the Chiefs of Mission will support and report on
U.S. and local efforts to diminish underlying conditions of terrorism
and encourage all nations to implement anti-corruption measures
pursuant to multilateral, regional, or bilateral agreements. A state's
stand on terrorism will be considered when providing aid to that
country.
_Objective: Win the War of Ideas_. Together with the international
community, we will wage a war of ideas to make clear that all acts of
terrorism are illegitimate, to ensure that the conditions and
ideologies that promote terrorism do not find fertile ground in any
nation, to diminish the underlying conditions that terrorists seek to
exploit in areas most at risk, and to kindle the hopes and aspirations
of freedom of those in societies ruled by the sponsors of global
terrorism.
We must use the full influence of the United States to delegitimize
terrorism and make clear that all acts of terrorism will be viewed in
the same light as slavery, piracy, or genocide: behavior that no
respectable government can condone or support and all must oppose. In
short, with our friends and allies, we aim to establish a new
international norm regarding terrorism requiring non-support,
non-tolerance, and active opposition to terrorists.
The United States will seek to support moderate and modern governments,
especially in the Muslim world. We will continue assuring Muslims that
American values are not at odds with Islam. Indeed, the United States
has come to the aid of many Muslims in the past--in Afghanistan,
Kuwait, Bosnia, and Kosovo, to name a few. The United States will work
with such moderate and modern governments to reverse the spread of
extremist ideology and those who seek to impose totalitarian ideologies
on our Muslim allies and friends.
Finding a solution to the Israeli-Palestinian conflict is a critical
component to winning the war of ideas. No other issue has so colored
the perception of the United States in the Muslim world. The
Israeli-Palestinian conflict is critical because of the toll of human
suffering, because of America's close relationship with the state of
Israel and key Arab states, and because of that region's importance to
other global priorities of the United States. There can be no peace for
either side without freedom for both sides. America stands committed to
an independent and democratic Palestine, living beside Israel in peace
and security. Like all other people, Palestinians deserve a government
that serves their interests and listens to their voices. The United
States will continue to encourage all parties to step up to their
responsibilities as we seek a just and comprehensive settlement to the
conflict. The United States can play a crucial role but, ultimately,
lasting peace can only come when Israelis and Palestinians resolve the
issues and end the conflict between them.
We will also use effective, timely public diplomacy and government
supported media to promote the free flow of information and ideas to
kindle the hopes and aspiration for freedom of those in societies ruled
by the sponsors of global terrorism.
+_Goal_: Defend U.S. Citizens and Interests at Home and Abroad+
The final tenet of the 4D strategy encompasses our nation's collective
efforts to defend the United States' sovereignty, territory, and its
national interests, at home and abroad. This tenet includes the
physical and cyber protection of the United States, its populace,
property, and interests, as well as the protection of its democratic
principles.
We face an adaptive enemy. Empowered by modern technology and
emboldened by success, terrorists seek to dictate the timing of their
actions while avoiding our strengths and exploiting our
vulnerabilities. In an increasingly interconnected and technologically
sophisticated world, where time and distance provide less and less
protection, we must be prepared to defend our interests, as a nation
and as citizens.
Embodied in this strategy is the old adage that the best defense is a
good offense. By improving and coordinating our indications and threat
warnings, we will be able to detect terrorist plans before they mature.
Through continuous law enforcement, Intelligence Community, and
military pursuit of terrorist organizations, we will disrupt their
ability to execute attacks both at home and abroad, and by expanding
our physical and cyber protection and awareness, we will reduce the
vulnerability of U.S. personnel, critical infrastructure, and other
U.S. interests.
Our response to this complex mission requires a coordinated and focused
effort from our entire society--the federal, state and local
governments, the private sector, and the American people. This plan, in
concert with the National Strategy for Homeland Security, the National
Strategy to Secure Cyberspace, and the National Strategy for the
Physical Protection of Critical Infrastructures and Key Assets will
help to prepare our Nation for the work ahead.
The attacks of September 11 demonstrate that our adversaries will
engage asymmetrically, within and across our borders. They will exploit
global systems of commerce, transportation, communications, and other
sectors to inflict fear, destruction, and death, to compromise our
national security, and to diminish public confidence and weaken our
will to fight. Their attacks may be coordinated to counter our
offensive activities abroad. Because we are a free, open, and
democratic society, we are, and will remain, vulnerable to these
dangers. Therefore, as we seek to engage globally, we must ensure a
seamless web of defense across the spectrum of engagement to protect
our citizens and interests both at home and abroad.
_Objective: Implement the National Strategy for Homeland Security_. The
establishment of the new Department of Homeland Security will help
mobilize and organize our Nation to secure the U.S. homeland from
terrorist attacks. A key to this task will be the National Strategy for
Homeland Security. The recommendations of the National Strategy for
Homeland Security and the National Strategy for Combating Terrorism
compliment and reinforce each other. From enhancing the analytical
capabilities of the FBI and recapitalizing the U.S. Coast Guard, to
preventing terrorist use of WMD through better sensors and procedures
and integrating information sharing across the federal government, the
objectives in these national strategies are vital to our future success
in the war on terrorism.
_Objective: Attain domain awareness_. Today's world is sharply defined
by compression of both time and distance. Key to defending our Nation
is the effective knowledge of all activities, events, and trends within
any specified domain (air, land, sea, cyber) that could threaten the
safety, security, or environment of the United States and its populace.
This "domain awareness" enables identification of threats as early and
as distant from our borders--including territories and overseas
installations--as possible, to provide maximum time to determine the
optimal course of action.
Domain awareness is dependent upon having access to detailed knowledge
of our adversaries distilled through the fusion of intelligence,
information, and data across all agencies. It means providing our
operating forces--afloat, aloft, and ashore, foreign and domestic--with
a single integrated operating matrix of relevant information within
their specific domain of responsibility. Domain awareness supports
coordinated, integrated, and sustained engagement of the enemy across
the full spectrum of U.S. instruments of power.
The President has instructed the leaders of the FBI, Central
Intelligence, Homeland Security, and the Department of Defense to
develop a Terrorist Threat Integration Center, to merge and analyze all
threat information in a single location. The center is being created
because our government must have the very best information possible to
make sure that the right people are in the right places to protect the
American people. The National Strategy for Homeland Security addresses
information sharing and technology within the United States. The
components of this information sharing apply equally well at home and
abroad. Those procedures and systems that facilitate interagency,
intergovernmental, and private information sharing will be expanded to
allow our overseas agencies to have access and input, as necessary.
This initiative will include not only database alignment and the
horizontal and vertical information flow; it will also optimize
disclosure policy and establish a consistent reporting criteria across
agencies and allies. Additionally, implementation of both the domestic
and international elements of the National Strategy to Secure
Cyberspace and the National Strategy for the Physical Protection of
Critical Infrastructures and Key Assets are designed to help ensure
that all possible efforts are made to safeguard critical information
networks whether located in the United States or abroad.
_Objective: Enhance measures to ensure the integrity, reliability, and
availability of critical physical and information-based infrastructures
at home and abroad_. Much of our strength as a nation is built upon
expansive and efficient transportation, as well as logistic and
information systems permitting unsurpassed participation in global
commerce. Infrastructures and systems that support our economy and
national interests are fully integrated, often dependent upon those
outside of our borders, and span the globe. During times of rapid,
prolonged, and large-scale conflict, even our military forces must rely
upon portions of the global infrastructure to support sustained
operations abroad.
Protection of vital systems is a shared responsibility of the public
and private sectors, working collectively with the owners, operators,
and users of those systems. The integrity of critical infrastructures,
permitting national security mobilization and global engagement during
times of both peace and conflict, must be assured. In many cases U.S.
enterprises overseas are linked or networked to domestic critical
infrastructure, and a terrorist event overseas would have a cascading
effect on domestic reliability. To reduce this possibility, the
Department of State will take the lead and, in conjunction with
appropriate agencies, identify and prioritize critical infrastructure
overseas and partner with industry to establish cost-effective best
practices and standards to maximize security. Where appropriate, we
will coordinate with the host country to ensure its security and
response network is adequate.
Sufficient defense is a balance between our need to accommodate the
enhanced flow of "low risk, high volume" people and goods essential to
our economic vitality, while at the same time focusing energy and
resources on the criminal, hostile and fraudulent few. It places a
premium on effective domain awareness activities, such as accurate
identification of containerized goods before they depart for the United
States.
Implementation of the U.S. Smart Borders Initiatives with Canada and
Mexico, as well as the Third Border Initiative for the Caribbean Basin,
address potential vulnerabilities in the many critical physical and
information-based infrastructures shared with our two North American
allies. Moreover, the U.S. Government's comprehensive border management
strategy will greatly enhance the ability of the U.S. to screen, verify
and process the entry of people and goods into the country.
_Objective: Integrate measures to protect U.S. citizens abroad_.
Defense of our economic vitality must be matched by increased security
of U.S. citizens abroad. The nature of the threat confronting our
citizens has expanded. U.S. citizens living or traveling abroad may now
be at greater risk as potential terrorist targets. Protective measures
must benefit facilities privately owned by U.S. interests as well as
embassies and military installations abroad. Similarly, U.S. travelers
and citizens living abroad must be provided meaningful, up-to-date, and
coordinated threat information. The Department of State will work to
enhance existing programs to inform U.S. citizens traveling or living
abroad about the potential terrorist threats.
As we continue to pursue terrorist organizations of global reach, there
may be a rise in the number of hostages taken overseas. The new policy
on U.S. citizens taken hostage abroad, which was promulgated by the
Department of State in February 2002, ensures that each incident
receives careful review at the federal level. The policy also calls for
aggressive law enforcement efforts to apprehend, prosecute, and punish
terrorists consistent with crisis resolution and force-protection
efforts. All appropriate agencies should be prepared with adequate
resources and authorities to assist in the rescue of U.S. citizens
taken hostage abroad if the circumstances warrant.
In an effort to ensure U.S. law enforcement interests are properly
addressed between the embassy and the host country, the Department of
Justice working with the Department of State, will expand, where
appropriate, its law enforcement presence abroad to further
counterterrorism interdiction, investigation, and prosecution.
Additionally, in coordination with host governments, the U.S.
government will enhance training of and assistance to host governments
in building legal infrastructures to strengthen the rule of law.
_Objective: Ensure an integrated incident management capability_. In
the end, prevention of catastrophic terrorism is dependent upon
interdiction of people and materials. However, solid plans,
preparations, and immediate response remain key to mitigating acts of
terrorism. Unity of effort requires coordination not only at the apex
of the federal government, but also at the operational/tactical level,
where response and intervention actions may be taken by diverse
authorities, acting independently or in coordination with each other.
An effective, integrated response requires incident management
planning, enhanced interoperability, and coordination, based on and
supported by rapid and effective decision-making.
In an effort to ensure rapid crisis response, the U.S. will coordinate
with host governments and regional partners to develop plans for
alerting, containing, and, if necessary, repelling an attack in
progress while ensuring adequate resources are available to mitigate
the damage. At the outset of a crisis, an interagency team capable of
supporting the affected U.S. Embassy with assessments and
recommendations is essential. Consequently, the Department of State,
the Department of Defense, and other relevant agencies shall ensure
that adequate staffing, training, equipment, and transportation are
available for the Foreign Emergency Support Team. All appropriate
departments and agencies will review and, if necessary amend, their
incident-management procedures for overseas terrorist incidents
involving critical infrastructure and facilities of U.S. national
security interest.
CONCLUSION
Political violence may be endemic to the human condition, but we cannot
tolerate terrorists who seek to combine the powers of modern technology
and WMD to threaten the very notion of civilized society. The war
against terrorism, therefore, is not some sort of "clash of
civilizations"; instead, it is a clash between civilization and those
who would destroy it.
Given these stakes, we must persevere until the United States, together
with its friends and allies, eliminates terrorism as a threat to our
way of life. As our enemies exploit the benefits of our global
environment to operate around the world, our approach must be global as
well. When they run, we will follow. When they hide, we will find them.
Some battlefields will be known, others unknown. The campaign ahead
will be long and arduous. In this different kind of war, we cannot
expect an easy or definitive end to the conflict.
This National Strategy reflects the reality that success will only come
through the sustained, steadfast, and systematic application of all the
elements of national power--diplomatic, economic, information,
financial, law enforcement, intelligence, and military--simultaneously
across four fronts. We will _defeat_ terrorist organizations of global
reach through relentless action. We will _deny_ terrorists the
sponsorship, support, and sanctuary they need to survive. We will win
the war of ideas and _diminish_ the underlying conditions that promote
the despair and the destructive visions of political change that lead
people to embrace, rather than shun, terrorism. And throughout, we will
use all the means at our disposal to _defend_ against terrorist attacks
on the United States, our citizens, and our interests around the world.
We will also be resourceful. This strategy relies upon the ingenuity,
innovation, and strength of the American people. We will rally others
to this common cause. We will not only forge a diverse and powerful
coalition to combat terrorism today, but work with our international
partners to build lasting mechanisms for combating terrorism and for
coordination and cooperation. Working with states that are both willing
and able to be full partners in the campaign, we will attack terrorist
groups directly and indirectly, help the weak but willing states build
their capabilities to fight terrorism, and persuade reluctant states to
meet their obligations to the international community in this fight. We
will use all our resources and resourcefulness to compel the unwilling
states to cease support for terrorism.
We will be resolute. Others might flag in the face of the inevitable
ebb and flow of the campaign against terrorism. But the American people
will not. We understand that we cannot choose to disengage from the
world, because in this globalized era, the world will engage us
regardless. The choice is really about what kind of world we want to
live in.