Sie sind auf Seite 1von 35

Unclassified with CONFIDENTIAL Attachments

NATIONAL COMMISSION ON
TERRORIST ATTACKS UPON THE UNITED STATES

Draft Monograph Outlines as of 9/9/03

Team 1A (Commission Sensitive)


Team 2 (CONFIDENTIAL)
Team 3 (CRU - Not Attached)
Team 4 (LES)
Team 5 (Commission Sensitive)
Team 6 (Commission Sensitive)
Team 7 (Commission Sensitive)
Team 8 (Commission Sensitive)

Unclassified with CONFIDENTIAL Attachments


Commission Sensitive

TEAM 1A MONOGRAPH OUTLINE

The September 11 Conspiracy

I. Overview of Conspiracy

II. Formation of the Conspiracy

A. Context of Al-Qaeda's Plans to Use Civil Aircraft as Weapons


1. Manila Air (Bojinka) - 1994-95
2. Murad debriefing by Philippine National Police - 1995
3. Air France Hijacking by GIA Terrorists - Dec. 1994
4. Other

B. Hatching of 9/11 Plot


1. Conception and Approval of Operation -1996-1998
2. Kuala Lumpur meeting - Jan. 2000
3. Detailing of Nawaf Al-Hazmi (NAH) and Khalid Al-Mihdhar (KAM) to US
4. Recruiting of Hamburg Cell in Germany, Pakistan & Afghanistan
5. Selection of Atta as Emir - 1999-2000

III. Preliminary Phase of Operation

A. Hamburg Cell Pilots' Preparation


1. Researching Flight Schools - early 2000
2. Preparing for Travel to US - spring 2000
3. Arrival of Al-Shehhi, Atta, Jarrah in US - 5/00-6/00
4. Financial Support from Operatives in UAE
5. Flight Training - 6/00-12/00

B. Arrival of NAH and KAM in US-1/15/00


1. Activities in LA [to be investigated]
2. Meet Al-Bayoumi and Move to SD - 2/00
3. Activities in SD - 2/00-12/00
a. Move into Parkwood Apartments
b. Open BOA account
c. Buy Car
d. Move to Lemon Grove
e. Departure of KAM
f. NAH's Activities - 6/00-12/00 [to be investigated]

C. Substitution of Hanjour for NAH as 4th Pilot - Dec. 2000


1. Hanjour's Prior Flight Training and Licensing - mid-1990s
2. Hanjour's Arrival in SD-12/00
3. Hanjour and NAH travel to Arizona

Commission Sensitive
Commission Sensitive

IV. Deployment Phase

A. Involvement of Bin Al-Shibh as Liaison between Al-Qaeda Leadership and Atta - Jan.-
June 2001
1. Meeting with Atta, Berlin, Jan. 2001
2. Meetings with UBL, KSM, Abu Hafs Al-Masri in Afghanistan
3. Meeting with KSM in Karachi - June 2001

B. Travels of Pilot Hijackers After Flight Training


1. Atta, Al-Shehhi & Jarrah in Georgia, Virginia & NJ - late Jan.-early April 2001 - then
back in Florida
2. Jarrah's 5 Trips to Germany and Lebanon - Oct. 2000-July 2001

C. Travel of Non-Pilot Hijackers to US


1. Selection of Operatives in Afghanistan
2. Arrangements to Travel to US
3. Arrival of Operatives in US
4. Infusion of Additional Financing

D. Transcontinental Test Flights by the Four Pilots - May-Aug. 2001


1. Information Pilots Obtained
2. Las Vegas Rendezvous

E. Bin Al-Shibh's Coordination Role


1. Spain Meeting and in Phone Contacts with Atta - Summer 2001
2. Contact with and Money Transfer to Moussaoui - July-Aug. 2001
3. Receipt of 9/11 Date from Atta and Communication thereof to KSM

F. Planning Delays and Al-Qaeda's Preparations in Afghanistan for Post-Operation


Counterattack - Summer 2001

G. Hijackers' Acquisition of Tickets for 9/11 Flights -- Aug. 2001

V. Execution Phase

A. Assembly of Flight Teams


1. AA #11: Atta, Al-Suqami, Waleed & Wail Al-Shehri, Al-Umari
2. UA #175: Al-Shehhi, Banihammad, Ahmed & Hamza Al-Ghamdi, Mohand Al-Shehri
3. AA #77: Hanjour, NAS, KAM, Moqed, Salim Al-Hazmi
4. UA #93: Jarrah, Saeed Al-Ghamdi, Al-Haznawi, Al-Nami

B. Return of Excess Funds to Operatives in UAE

C. September 11 Hijackings and Crashes

Commission Sensitive
Commission Sensitive

VI. Sidebars to Address Loose Ends, Alternative Theories and Popular Misconceptions

A. DSM
B. "Holy Tuesday"
C. Second Wave of Attacks
D. Other

VII. Glossary of Who's Who in Conspiracy

Commission Sensitive
WITH DRAWAL NOTICE

RG: 148
Box: 00004 Folder: 0009 Document: 7
Series: Stephanie Kaplan Files

Copies: 1 Pages: 4

ACCESS RESTRICTED

The item identified below has been withdrawn from this file:

Folder Title: Team Monograph Outlines


Document Date:
Document Type: Miscellaneous (o^-\\e j
Special Media:
From:
To:

Subject: Intelligence: Management, Analysis, Collection

In the review of this file this item was removed because access to it is
restricted. Restrictions on records in the National Archives are stated in
general and specific record group restriction statements which are available
for examination.

NND: 301
Withdrawn: 06-20-2008 by:

RETRIEVAL #: 301 00004 0009 7


System DocID: 2869

|/U3tXA CVvja-'i'
WITH DRAWAL NOTICE

RG: 148
Box: 00004 Folder: 0009 Document: 8
Series: Stephanie Kaplan Files

Copies: 1 Pages: 9

ACCESS RESTRICTED

The item identified below has been withdrawn from this file:

Folder Title: Team Monograph Outlines


Document Date:
Document Type: Miscellaneous
Special Media:
From:
To:

Subject: Team 3 Outline

In the review of this file this item was removed because access to it is
restricted. Restrictions on records in the National Archives are stated in
general and specific record group restriction statements which are available
for examination.

NND: 301
Withdrawn: 06-20-2008 by:

RETRIEVAL #: 301 00004 0009 8


System DocID: 2870
Commission Sensitive
Law Enforcement Sensitive
MONOGRAPH OUTLINE
TEAM 4: TERRORIST FINANCING

I. How did Al-Qaeda as an institution (as opposed to the hijackers) raise and
move funds to support itself? What were Al-Qaeda's expenditures?

A. Who were the facilitators/ fundraisers?


1. How important is fundraising to Al-Qaeda
a. Discuss UBL's personal wealth
2. Who were the individuals enlisted to raise money
a. AQ operatives
b. Donors
c. Religious figures
d. Representatives of other terrorist groups
3. What methods did they use
a. Meetings
b. Zakat
c. Barter

B. What were the sources of Al-Qaeda's funds?


1. Individual donors
a. Where located
b. Size of donations
c. Commitment to AQ versus other organizations
2. State support of terrorism
a. Saudi Arabia and associated entities
b. Other countries
c. Quasi state support - government funding of NGOs
3. Charities
a. Generally
b. Description of specific charities pre 9/11 suspected of raising money
c. U.S. sources
4. Micro financing
a. General description of the financing of terrorist groups through petty or
organized criminal activity
b. Description of specific investigations prior to 9/11
5. Drug trafficking
a. To what extent has al-Qaeda financed itself through drug trafficking
(particularly Afghanistan opium production), or taxing drug traffickers
b. To what extent have terrorist cells, particularly domestic terrorist cells,
financed themselves through drug trafficking

C. What methods were used to move money destined for terrorist groups or
terrorist acts?

1. Money movement through financial institutions

Commission Sensitive
Law Enforcement Sensitive
Commission Sensitive
Law Enforcement Sensitive

a. Poorly regulated and offshore financial centers


b. Other financial institutions
c. MSBs/ hawalas other money remitters

2. Money movement and storage through non-financial institutions and other


informal methods
a. Precious metals and stones
b. Trade-based movements
c. Bulk cash/courier movement

D. What were Al-Qaeda's expenditures?


1. How much money was involved
a. How much did al-Qaeda spend to sustain itself and run its various
activities
b. Did this budget change over time pre-9/11
2. What were specific expenditures
a. Taliban
b. Training camps
c. Terrorist operations
d. Other terrorist groups
e. Other

II. Prior to 9/11, what did the U.S. do to identify and stop the raising and
movement of money in support of terrorist groups?

A. What did the USG do to gather and analyze intelligence on the raising and
movement of money in support of terrorist groups?

1. Description and assessment of the government's ability to gather and analyze


intelligence domestically on al-Qaeda related fundraisers and money
transmitters
a. FBI
i. Description and analysis of the FBI structure involved in terrorist
finance; institutionally, did the FBI see a need for a separate effort
focused on the money trails
ii. Description and analysis of the amount of collection and level of
understanding of the means and methods of fund raising and money
movement
iii. Description and analysis of the methods used to coordinate the
various FBI Field Offices

b. Treasury
i. FinCEN's efforts to analyze intelligence
(a) Office for Intelligence
(i) Why/how set up
(ii) Description of how it operates (including chain of
Commission Sensitive
Law Enforcement Sensitive
Commission Sensitive
Law Enforcement Sensitive

command, information flows, funding)


(iii) How did FinCEN use this information
(b) Office of Strategic Analysis
(i) Function and structure
(ii) Studies or typologies on terrorist finance or alternative
methods of moving value
(c) General description and analysis of the level of coordination
between FinCEN and other USG intelligence efforts
(i) Domestic agencies
(ii) Foreign intelligence agencies

ii. Other Treasury efforts

c. Description of the roles and efforts of other agencies (e.g., State, NSA)
involved in the gathering or analysis of intelligence regarding terrorist
financing

d. Description of the level of cooperation and intelligence sharing among the


relevant agencies. Did agencies with a need get information in a timely
manner?

2. Description and assessment of the government's ability to gather and analyze


intelligence on al-Qaeda related fundraisers and money transmitters overseas

a. CIA
i. Description and assessment of the CIA structure involved in
terrorism generally and terrorist financing specifically
(a) CTC efforts
(i) Creation of UBL station
(ii) Intelligence gathering re:
a. Al-Qaeda financing, efforts, success
b. Countries supporting terrorism
c. Abilities of foreign entities to identify, track and disrupt TF
(iii) Sources of information
(iv) Level of interest in financial activities vs. other activities
(b) Non-CTC efforts
(i) Regional/country desks
(ii) Use of foreign intelligence services
ii. Institutionally, did the CIA see a need for a separate effort focused
on the money trails
iii. Description and assessment of the amount of collection and level
of understanding about terrorist financing prior to 9/11

b. General description and assessment of the State Department's role in


gathering and analyzing financial intelligence related to terrorist groups

Commission Sensitive
Law Enforcement Sensitive
Commission Sensitive
Law Enforcement Sensitive

i. Structure of State for gathering and analyzing intelligence


generally
(a) Analysis by INR
(b) Other efforts
(i) Foreign trips/meetings
(ii) Embassy/envoy feedback
(iii) Multilateral/regional efforts
(iv) Voluntary provision of information
ii. Description and analysis of the level of information collection and
analysis conducted by State with regard to terrorist financing

Description and analysis of other foreign intelligence collection and


analysis efforts
i. NSA
ii. Treasury
iii. Defense

B. What did the USG do to disrupt the raising and movement of money in
support of terrorist groups?

1. Description and assessment of law enforcement efforts to disrupt terrorist


financing domestically
a. Domestic criminal prosecutions
i. Traditional criminal prosecutions, e.g., money laundering
ii. Prosecutions under 2339A and 2339B
(a) Description of the history and use of terrorist financing statutes
(b) Analysis of the lack of domestic prosecutions under the statute
iii. Interrelationship between domestic and foreign criminal
prosecutions, if any: use of renditions, extradition or evidence sharing
with regard to terrorist finance
b. Other disruptive activities short of prosecution

2. A description and assessment of covert and other actions to disrupt terrorist


financing overseas
a. Did the CIA use the intelligence it had to disrupt terrorist financing
i. Proposals for covert action
ii. Barriers to US covert action
b. Sharing information with foreign intelligence or law enforcement services
i. General US willingness to pass information
ii. Ability and willingness of foreign intelligence services to use USG
information to disrupt terrorist financing groups

3. A description and assessment of efforts to freeze terrorist assets or otherwise


financially isolate them through designations
a. Legal authority for and scope of designations
Commission Sensitive
Law Enforcement Sensitive
Commission Sensitive
Law Enforcement Sensitive

i. President's authority under War Powers Act and IEEPA,


delegated to OFAC
(a) History and nature of President's authority
(b) Description of how designations work within OFAC (including
chain of command, information flows, funding)
(c) Level of follow through
ii. Secretary of State's authority to designate Foreign Terrorist
Organizations
(a) Nature and history of Secretary's authority
(b) Description of how designations occur (including chain of
command, information flows, funding)
(i) EB, S/CT, INL
(c) Level of follow through
iii. Level of interagency coordination among agencies involved in the
EEPA and FTO process

b. Descriptions of the various designations made between 1996 and 2001


i. What was designated and by whom, and a description and analysis
of assets frozen/blocked as a result of designations
(a) Taliban
(b) Bin Laden
(c) Al-Qaeda
ii. Designations considered but not made, particularly with respect to
the five terrorist funding organizations identified in our document
request
(a) Description and analysis of the barriers (institutional or otherwise)
present prior to 9/11 that prevented the naming of these
organizations
iii. Attempts made by US to gather information in support of
designations, blocking and freezing
(a) Bin Laden family interviews
(i) Purpose and goals
(ii) Level of cooperation w/family
(iii) Results: Information/conclusions
(b) OFAC Trips to SA, UAE, Kuwait, Bahrain, etc. to enlist
cooperation
(i) Purpose and goals of the trip
(ii) Level of cooperation
(iii) Results
(c) FT AT center
(i) Rationale and purpose of FT AT center
(ii) Description and assessment of the pre-9/11 efforts to get
the center staffed and operational

c. Discussion and analysis of the effect of the freezing and blocking


i. Any internal/external studies to show that blocking is effective
Commission Sensitive
Law Enforcement Sensitive
Commission Sensitive
Law Enforcement Sensitive

ii. Any evidence of disruption to plans

4. Regulation of financial institutions to deter or disrupt terrorist financing (to


the extent not covered in discussion of the 9/11 hijackers)
a. General description of enforcement efforts against regulated financial
institutions regarding money laundering and terrorist finance
i. Relationship between money laundering and terrorist finance; do
AML controls assist in stopping TF
b. Regulation of money service businesses and non-bank financial
institutions
i. Congress required Treasury to regulate MSBs in 1994, but no
regulations were issued until post 9/11
c. Regulation of non-financial institutions and non-traditional methods of
moving value
d. Attempts to increase regulation of financial flows
i. "Know your customer" and privacy issues generally
ii. Legislative attempts

C. What did the USG do to generate international cooperation on identifying/


disrupting terrorist financing?

1. What were US efforts to garner international support for efforts to block and
freeze assets
a. Description of the general international attitude regarding counter-terrorist
financing
i. Support of multilateral institutions for blocking and freezing
(a) UN actions against Taliban UNSCR 1267 Oct. 99
(b) Other examples of support
(c) USG response to independent foreign efforts
(i) Did they overlap USG efforts
(ii) Were they seen as effective
(iii) Interaction with private sectors
ii. Foreign entities' views of the terrorism problem and the utility of
blocking and freezing
(a) Definitions of terrorism
(b) Charities
(c) "Legitimate struggles"
(d) Emphasis on sources of terrorism
(e) Human rights issues
(f) Link between terrorism and other issues (drugs/guns/etc.)
(g) Interface between UNSC CTC and Sanctions Committee
(h) State terrorism
b. Level of foreign cooperation
i. Assets claimed frozen vs. actually frozen
ii. Closing/sanctioning financial institutions (formal/informal)
iii. Did multilateral organizations put pressure on members
Commission Sensitive
Law Enforcement Sensitive
Commission Sensitive
Law Enforcement Sensitive

iv. Intelligence provided

2. Description and assessment of USG efforts to increase foreign political will


a. What were efforts made in conjunction with countries not involved in
supporting terrorism
i. Meetings and conferences in which the subject of terrorist
financing was on the agenda,
ii. Efforts in multilateral context
b. What efforts were made against (with?) countries considered to be
supporters of terrorism
i. Sticks: What sanctions were considered or levied
ii. Carrots: What benefits were considered for those who would
renounce support of terrorism
iii. Multilateral efforts and sanctions

3. Description and assessment of USG efforts to increase the technical capacity


of foreign entities to identify and disrupt terrorist financing
a. Description of technical capacity of certain strategic countries (and related
private sectors)
i. Legal authorities
ii. Intelligence
iii. FIUs
iv. Private sector sophistication
b. Description and assessment of USG efforts to improve these abilities
i. Assessments
ii. Training
iii. Funding
iv. Role of various agencies (coordination, etc.)

D. What did the United States Government do to coordinate the disparate


agencies involved in identifying, tracking and disrupting terrorist finances?

1. Description and assessment of the structural mechanisms in place to


coordinate the US Government activities and resolve disputes
a. NSC/CSG description generally
b. PDD-39-June21, 1995
i. Description
ii. Response by relevant agencies
c. Were there shortcomings in efforts to:
i. Prevent the abuse of charities
ii. Regulate informal money transmitters
iii. Identify illegal trade-based money movements

2. Description and assessment of structural mechanisms in place to share


financial information

Commission Sensitive
Law Enforcement Sensitive
Commission Sensitive
Law Enforcement Sensitive

3. Description and assessment of barriers to effective interagency coordination


and information sharing

III. Based on what we know about the 9/11 conspiracy, were there any key
opportunities to detect them as a result of their financial transactions? What
other lessons can be drawn from these financial transactions?

A. What do these transactions say about how organized, planned terrorist


operations operate within the US?

1. How sophisticated were the 19 hijackers in disguising their financial


transactions? Do the transactions of other known terrorist cells or groups
differ from what we had seen with the 9/11 hijackers? What does that
difference tell us?
2. Were there patterns within the transactions that we can look to in identifying
or disrupting future terrorist attacks?

B. Were the anti-money laundering controls in place sufficient to detect the


types of movement of money involved here?

1. General description of anti-money laundering controls prior to 9/11 [with


cross-reference to detailed discussion contained elsewhere]
a. Financial institution controls
b. Non-financial institution controls

2. What was the role of foreign regulatory environments in facilitating funding


i. UAE: The UAE is has a notoriously lax regulatory environment.
What is that environment, and did it contribute to the ease of
movement of terrorist money? Would it have made any difference?
ii. German
iii. Saudi Arabia
iv. Pakistan

3. How did the financing evade detection?


a. Were transactions lawful (were false SSANs used; any other illegality)
b. Did transactions generate SARs (must address persistent reports SARs
were generated, but never timely investigated)
i. If yes, which transactions; why no follow-up; was there break-
down in system
ii. If no, should any have been filed, did any transactions meet criteria
c. Any other relevant reporting (CTRs etc.)
d. Any other facts that should have raised red flags under then-existing
regime

4. Was the existing system simply not designed to detect the type of transactions
engaged in by the 9/11 terrorists, or was there some specific individual,
Commission Sensitive
Law Enforcement Sensitive
Commission Sensitive
Law Enforcement Sensitive

corporate, or government failure?

C. Was there any concerted, contemporaneous effort to track known terrorists


cells through their financial transactions?

1. Discuss and assess the government's technical ability to engage in real time
monitoring and tracking

a. Description and assessment of the government's ability to engage in real


time monitoring
b. Factors inhibiting efforts to develop capability
i. Privacy/civil liberty issues (were there relevant legislative or
regulatory efforts halted as a result)
ii. Technological deficiencies
iii. Resource issues
iv. Interagency coordination/cooperation
c. Compare the private sector and government capability to engage in real
time transaction monitoring

2. Two 9/11 hijackers with known extensive UBL links were not located for over
two weeks after the realization that they were in the U.S., despite holding U.S.
bank accounts in their own names
a. Why was no effort made to track them through financial transactions?
b. Had efforts been made, could the two known hijackers have been timely
found (i.e., were their specific bank accounts and/or other transactions
discoverable)
c. Address JI findings
3. Moussaoui financial transactions
a. In the pre 9/11 world, would a timely analysis of Moussaoui's financial
transactions been able to allow the intelligence or law enforcement
communities to expose the conspiracy?

IV. What has al-Qaeda done since 9/11 to continue to support terrorist
operations and move money?

A. How have their methods of fundraising changed?

B. What are the sources of Al-Qaeda's funds?


1. Individual donors
a. Reluctant to give
2. States
3. Charities
4. Micro-financing
5. Other

Commission Sensitive
Law Enforcement Sensitive
Commission Sensitive
Law Enforcement Sensitive

C. How does Al-Qaeda move money?


1. Increased use of couriers versus financial institutions

D. What are al-Qaeda's expenditures?


1. No longer have expenses of Taliban
2. What are training expenses now
3. Support of other terrorist groups
4. Terrorist operations

E. To what extent are these changes in reaction to USG policies discussed in Section
V below

V. What are we currently doing, and have these efforts eliminated the
deficiencies present before 9/11?

A. What is the current approach to gathering and analyzing intelligence on the


raising and movement of money in support of terrorist groups?

1. Description and assessment current domestic intelligence gathering and


analysis
a. Structural
i. FBI
(a) TFOS
(i) Structure and function
(ii) Relationship/function with field offices
(b) JTTFs and their focus on terrorist financing
ii. FinCEN
iii. Other agencies
b. Capability
i. Capability to do real-time tracking of persons through financial
transactions
(a) Given the same facts today, could known operatives in U.S. be
located in time to avert disaster
(b) Given the Moussaoui facts today, could his financial transactions
be tracked to unravel the plot
(c) Impact of changes (legal, technological, structural)
(d) Ability to identify people through bank records
(e) Other data that the USG can search to find people quickly and link
them to others
(f) How fast can this information be accessed in emergency
(g) What obstacles hinder U.S. efforts to enhance capabilities in this
area
(i) Legal obstacles
(ii) Technological obstacles
(iii) Lack of cooperation/data sharing between and among USG
(iv) Insufficient public-private partnerships (are talent,

Commission Sensitive
Law Enforcement Sensitive
Commission Sensitive
Law Enforcement Sensitive

initiative, and resources being optimally utilized)


(h) How should privacy and civil liberties be assured
ii. Other changes in capability
c. Information sharing and coordination among the different agencies

2. Discuss and assess current foreign intelligence gathering and analysis


a. Structural
i. CIA
(a) Creation of FINO
(i) Rationale/ history, etc
(ii) Description of duties, etc
(iii) Assessment of effectiveness
ii. State
iii. Other agencies
b. Capability
i. Effect of detainee interviews
ii. Other changes in capability
c. Coordination and information sharing with foreign intelligence
i. Has this improved
ii. US willingness to share information
d. Coordination and information sharing within the USG
i. Among intelligence agencies
ii. With law enforcement agencies

B. What is the current approach to disrupting terrorist funding?

1. Description and assessment of changes in law enforcement efforts to disrupt


terrorist financing
a. Legal and structural changes
b. Changes in focus and aggressiveness
c. Changes in capability
d. Specific efforts against specific methods
(a) Micro-financing
(b) Charities
(c) Financial institutions
(d) Hawala and other informal methods
(e) Bulk cash
(f) Other
e. Coordination and evidence sharing

2. Description and assessment of the changes made, procedurally and


substantively, in the US effort to name terrorist groups
a. General description of namings since 9/11
i. General description of the post 9/11 process as compared to the
previous process
(a) Is there a significant difference as to the type/nature/number of
Commission Sensitive
Law Enforcement Sensitive
Commission Sensitive
Law Enforcement Sensitive

designations compared to pre 9/11


(b) Description of specific namings
(c) Analysis of specific namings, with an eye to answering the
following questions:
(i) Is OF AC receiving information from the FBI/CIA/Foreign
partners better and faster than before
(ii) Could any of these entities been named prior to 9/11 if the
processes had been working better
(iii) How significant are these groups in the world of terrorist
finance
(iv) Will naming/blocking/freezing really make any difference
ii. International cooperation in the naming process
(a) Description of international post-9/11 efforts
(i) UN efforts
(ii) Bilateral efforts
(b) Assessment of level of cooperation and effectiveness
(i) Description of countries that have frozen assets
a. Claims vs. reality
b. Private sector follow-through and enforcement
(ii) Consequences for failing to comply
(c) Barriers to more effective cooperation
(i) Jurisdictional issues
(ii) Inability to share sensitive information internationally
iii. Future of OF AC naming efforts
(a) The "second phase" — allowing foreign partners to take the lead in
future namings
(i) Rationale/background
(ii) Effectiveness of second phase
(b) Terrorist efforts to circumvent

3. Description and assessment of covert and other actions to disrupt terrorist


financing overseas
a. Legal and structural
b. Focus and aggressiveness
c. Capability
d. Ability and willingness to share information for covert operations with
foreign law enforcement or intelligence

C. What is the current regulatory environment?

1. Description and assessment of title HI of the USA PATRIOT Act


a. General description
b. Use of section 311 of USA PATRIOT
i. Description/history of section 311 "special measures" for
areas/institutions of money laundering concern
ii. Use so far: Ukraine (threaten); Narau (actual)
Commission Sensitive
Law Enforcement Sensitive
Commission Sensitive
Law Enforcement Sensitive

iii. Why no broader requests


(a) Worry about diplomatic backlash
(b) Sufficiency of evidence/use of classified materials
(c) Political will/philosophical objection
c. Broader scope of AML
i. MSBs
ii. Other non-bank financial institutions, including hawala and other
methods of informal value transfer
iii. Non-financial institutions
d. Customer ID
e. Correspondent bank restrictions/enhanced due diligence
f. Patriot Act Communication System (PACS) system
i. General description
ii. Workable?

2. Other regulatory agencies


a. Fed
b. OCC

3. Regulation of charities within the US

4. Private sector efforts


a. Private initiatives
b. Public-Private Cooperation

D. What are the current efforts to generate international cooperation?

1. Description and assessment of structural changes within the USG


a. Description and roles of various agencies involved
b. Methods and effectiveness of interagency coordination

2. Description and assessment of changes made to increase the capacity of


foreign entities to identify and disrupt terrorist financing
a. Participation in multilateral efforts
i. UN
ii. World Bank/IMF
iii. FATF
iv. Relationship between USG policy and policies/efforts of
multilaterals
b. Bilateral efforts

3. Description and assessment of changes made to increase the political will of


foreign entities or to gain consensus on the issue of terrorist financing
a. Multilateral efforts
b. Bilateral efforts
c. Overcoming differences
Commission Sensitive
Law Enforcement Sensitive
Commission Sensitive
Law Enforcement Sensitive

i. Diplomatic pressure
ii. Sticks
iii. Carrots
iv. Use of multilaterals

E. What are the current mechanisms to coordinate government agencies?

1. Description and assessment of structural mechanisms in place to coordinate


US government policies and actions
a. Policy Coordinating Committee
i. General description
(a) History, etc
(b) Description of structure
(c) Issues raised at PCC/ method by which it works
b. Groups above the PCC - Principals and Deputites Committees
c. Other informal senior-level coordinating mechanisms

2. Operational coordination issues


a. Structure for interagency coordination and information sharing
b. Specific issues

3. Assessment
a. Does the fact that no single entity/person has authority over counter-
terrorist financing as issue impair its effectiveness

4. Does the ad-hoc nature of the PCC (why the GC of Treasury?) ultimately have
an impact on the ability of the USG to focus long-term on the problem

VI. What specific, actionable policy recommendations can be made to improve


the current efforts in light of the lessons of 9/11?

Commission Sensitive
Law Enforcement Sensitive
COMMISSION SENSITIVE

TEAM 5 MONOGRAPH OUTLINE

Immigration, Nonimmigrant Visas and Border Control

I. Principles and Goals of the US Border Security System Prior to Sept. 11, 2001

A. What were the principal broad purposes of the US immigration system before the
Sept. 11 attack? What border security issues were recognized over time and how
did the system address them? How did immigration laws and policies address
Islamic and other terrorism?

B. What agencies directed our border security system, and what were their mandates
and activities? How well did the agencies involved in the system work to fulfill
their mission as they understood it? To what extent was counterterrorism a real
element of border security policy and programs?

1. Department of State
2. Department of Justice
3. Immigration and Naturalization Service
4. FBI
5. CIA and other intelligence agencies
6. Department of Defense and military
7. Congress
8. State and local authorities
9. Coast Guard

II. The Encounter Between the Al Qaeda Plotters and the US Border Security
System

A. Intelligence about terrorist mobility and access to the US

1. Al Qaeda's view of entry into the US as understood today


2. Intelligence agency knowledge before Sept. 11
3. Law enforcement agency knowledge before Sept. 11
4. Intelligence and information disseminated to border security authorities
5. Border security agencies' own intelligence capabilities and knowledge

B. Intelligence about individual terrorists: watchlisting

1. Intelligence and law enforcement agency identification of terrorists


a. CIA, NSA, DIA terrorist identification information
b. FBI information
c. Foreign participation in terrorist identification

2. The development of terrorist watchlisting by the Dept. of State

COMMISSION SENSITIVE
COMMISSION SENSITIVE

a. Islamic fundamentalist terrorists watchlisted prior to Sept. 11


b. The Sept. 11 plot and watchlisting
3. Lookouts by federal inspection services (INS, APHIS, and Customs)
4. FAA and airline company listings (with Team 7)
5. Assessment and accountability

C. Terrorist acquisition of international travel documents

1. Al Qaeda's view of the role of travel documents


2. Terrorist travel document practices known prior to the Sept. 11 plot
3. US policy and security practices concerning travel and supporting
documents.
a. International and US standards for documentation
b. Enforcement policy, programs, and resources prior to Sept. 11
4. Characteristics of the Sept. 11 hijackers' international travel documents

D. The visa process

1. The US visa process encountered by al Qaeda in the Sept. 11 plot

a. Statutory authority
b. Policy direction
c. Budget, personnel, training
d. Consular access to terrorist intelligence
e. Applications, other forms, interviews, and technology tools
f. Adjudication clearances and advisory opinions
g. Internal controls and evaluations of posts

2. Visas issued to the Sept. 11 hijackers

a. Saudi Arabia
i. Visa Express and interview policy
ii. the 15 Saudi hijackers
iii. Saudi runner-up hijackers
b. United Arab Emirates
i. AlShehhi
ii. Banihammad
c. Germany - Berlin
i. interview policy
ii. Atta
iii. Jarrah
d. Yemen
i. Binalshibh
ii. Essabar

3. Visas issued to terrorists prior to the Sept. 11 plot

COMMISSION SENSITIVE
COMMISSION SENSITIVE

4. Visas issued to U.S. associates of the hijackers

5. Assessment and accountability

E. Federal inspections upon entry

1. The federal inspection process encountered by al Qaeda

a. Statutory authority
b. Policy direction
c. Watchlist/lookout information
d. Primary inspection
i. inspections of the 19 hijackers
ii. inspections of other plotters
e. Secondary inspection
i. inspections of certain hijackers
ii. inspections of plotters and associates

2. Border crossing by previous Islamic terrorists

3. Assessment and accountability

F. Detection and interior immigration enforcement of terrorists

1. Statutory authority
2. Policy direction
3. Enforcement agencies, missions, and resources
4. 1996 mandated student tracking system
5. 1996 mandated exit-entry system
6. Biometrics
7. Identification document standards
8. Technology
9. Assessment and accountability

III. Terrorism, US Immigration and Border Security After Sept. 11

A. How did border security authorities respond on Sept. 11 and in the immediate
aftermath? (duration of "immediate aftermath " tbd)

1. Consulates
2. Airports
3. Land borders
4. Sea borders
5. Foreigners in the US

COMMISSION SENSITIVE
COMMISSION SENSITIVE

B. How do we now assess the terrorist threat? Since Sept. 11, 2001, how have
those involved in our immigration and border security system redefined its goals
to address Islamic and other terrorism?

1. Borders and the terrorist threat

a. Vulnerabilities exposed by al Qaeda and others


b. Terrorist mobility's relationship with other transborder crimes
c. Access to the US as a dimension of national policy

2. Redefined goals of the immigration and border security system

a. Immigration and border security framework


b. Intelligence and watchlisting
c. Identity documents
d. Screening prior to entry
e. Screening at entry
f. Border enforcement - north, south, sea
g. Internal regulation, compliance, and enforcement
h. International cooperation

C. Key participants and their contributions to the redefined mission. How has the
US immigration and border security system changed to address Islamic and
other terrorism?

1. The White House


a. Immediate response and its impact
b. Current role
c. Recommendations

2. The CIA and other intelligence agencies


a. Immediate response and its impact
b. Terrorist identity intelligence
c. Terrorist mobility intelligence
d. Watchlisting and terrorist tracking
e. Recommendations

3. Department of State
a. Immediate response and its impact
b. Current role
c. Opportunities and vulnerabilities
d. Recommendations

4. Department of Justice
a. Immediate response and its impact
b. Current role

COMMISSION SENSITIVE
COMMISSION SENSITIVE

c. Opportunities and vulnerabilities


d. Recommendations

5. Department of Homeland Security


a. Immediate response and its impact
b. Transformation at the nation's borders
c. Key achievements
d. Key weaknesses
e. Recommendations

6. Department of Defense and other military [tbd]


a. Immediate response
b. Current role
c. Recommendations

7. State and local authorities


a. Immediate response
b. Current role
c. Recommendations

8. Private sector and citizens


a. Immediate response
b. Current role
c. Recommendations

IV. Conclusion

COMMISSION SENSITIVE
Commission Sensitive

TEAM 6 MONOGRAPH OUTLINE

Law Enforcement and Domestic Intelligence

I. The Domestic Intelligence/Counterterrorism Community Prior to the September 11 Attacks

A. The Members of the Domestic Intelligence/Counterterrorism Community and their


Respective Roles Prior to September 11

1. The legal framework governing intelligence collection and counterterrorism


activity within the United States

2. The actual roles assumed by the various agencies acting within the United
States

B. The FBI's Approach to Combating International Terrorist Activity in the United


States prior to September 11.

1. The FBI's collection, processing, and dissemination of intelligence regarding


foreign terrorist activity within the United States

a. Collecting the "dots"

b. Connecting the "dots"

c. Sharing the picture with others

2. The FBI's structure, traditions, and priorities and their impact on


counterterrorism strategy

a. The law enforcement mentality

b. The field office structure

c. The oppression of tradition

3. The impact of external forces on the FBI's counterterrorism strategy

a. Legal constraints - real and imagined - on the FBI's operations

b. The role of other agencies or institutions on FBI operations

i. The White House's influence

ii. Congress and the power of the purse

Commission Sensitive
Commission Sensitive

iii. The Department of Justice's directives

iv. The influence of fellow community members

C. The Other Participants in the Domestic Counterterrorism Efforts - Who They Were
and What They Were Doing

1. The CIA's NR Division

2. The Department of Defense and Protection of the Homeland

3. The NSA and the Issue of U.S. Persons

II. The Extent to Which the Structure and Operations of the Domestic Intelligence Community
Was a Factor in the Failure of the Domestic Intelligence Community to Protect the
Homeland on September 11

A. The lack of a search for Hazmi and Mihdhar when they entered the United States and
established residence in early 2000.

B. New attention on Hazmi and Mihdhar but ultimately a failed search over Summer
2001.

C. Hijackers' stumbles and other possible missed opportunities.

D. The Phoenix EC: missed opportunity or distraction?

E. The failed pre-9/11 investigation into Moussaoui.

III. The Domestic Intelligence/Counterterrorism Community Since the September 11 Attacks

A. The Changing Roles Within the Community and the Altered Legal Framework

B. The Reinvention of the FBI Since the September 11 Attacks

1. The FBI's new collection, processing, and dissemination of intelligence


regarding foreign terrorist activity within the United States

a. Collecting the "dots"

b. Connecting the "dots"

c. Sharing the picture with others

2. The FBI's new structure, and priorities and their impact on counterterrorism

Commission Sensitive ^
Commission Sensitive

strategy

a. Prevention as the new motto

b. Centralization of the counterterrorism effort

c. Changing technology, incentives, and ways of thinking

d. The changing operational landscape - JTTFs, TTIC,

3. The impact of external forces on the FBI's counterterrorism strategy

a. The new legal landscape - its impact on effectiveness

b. The changing role of other agencies or institutions on FBI operations

i. The White House's influence

ii. Congress and the power of the purse

iii. The Department of Justice's directives

iv. The impact of competition for the FBI's job

4. How Far the FBI Has Come and Whether It Has Come Far Enough

a. Intentions versus reality - how far has the FBI come along its intended
trajectory

b. How much further the FBI must go to meet the needs of our primary
domestic counterterrorism agency

C. The Department of Homeland Security and its intended role in the Intelligence
Community

D. The Other Participants in the Domestic Counterterrorism Efforts - Who They Are
Now and What They Are Doing

1. The CIA's NR Division

2. The Department of Defense and Protection of the Homeland

3. The NSA and the Continuing Issue of U.S. Persons

Commission Sensitive
Commission Sensitive

IV. Defining the Future of the Domestic Intelligence/Counterterrorism Community

A. Information Sharing - Analysis of the Way Forward

B. The Foreign/Domestic dichotomy and resolving artificial barriers to an effective


intelligence program.

C. Mapping vulnerabilities - whose job?

D. The best way to close the remaining gaps between the existing domestic intelligence
function and the ideal

Commission Sensitive
COMMISSION SENSITIVE

TEAM 7 MONOGRAPH OUTLINE

Civil Aviation and Transportation Security: 9/11/01 and Beyond

PART ONE: CIVIL AVIATION SECURITY AND THE 9/11/01 HIJACKINGS

I. Creation and Evolution of the Aviation Security System prior to Pan Am 103
a. Threats to Commercial Aviation prior to Pan Am 103
1. Domestic threats
2. International threats
3. Commercial aviation as terrorism target
4. Hijackings
b. FAA's "Dual Mandate" and reactive nature
c. International Conventions
d. Role of federal government, airlines and airports

II. Destruction of Pan Am 103 (1988) and Response


a. Change in perceived threat
b. President's Commission on Aviation Security and Terrorism (1990)

III. Destruction of TWA 800 (1996) and Response


a. Change in perceived threat
b. White House Commission on Aviation Safety and Security (1997)
c. Change and continuity

IV. The Institutions of Civil Aviation Security on September 11, 2001: Priorities
and Approaches
a. Congress
1. Authorizing legislation
2. Appropriations and funding
3. Oversight (including GAO)
b. Federal Aviation Administration
1. Culture
2. Authorities
3. Organization
c. Air Carriers
1. FAR 108 and Air Carrier Standard Security Program
2. Screening
3. Other security responsibilities
d. Airports
1. FAR 107 and Airport Security Program
2. Facility security (including workforce)
3. Access control
4. Law enforcement

COMMISSION SENSITIVE
COMMISSION SENSITIVE

V. Elements of the Aviation Security System on September 11, 2001: What the
Hijackers Had to Defeat
a. Intelligence collection, threat assessment and response
b. Passenger pre-screening
c. Secure area designation and enforcement
d. Checkpoint screening for weapons
e. Checked baggage screening for explosives
f. Cargo and mail screening
g. Aircraft security

VI. The Status and Quality of the Aviation Security System on September 11,
2001

VII. The Setting


a. The hij ackers (April 2001 -September 11, 2001)
b. The airports (Boston, Newark, Washington-Dulles)
c. The airlines (American, United)
d. The day (weather, other events)

VIII. The Flights


a. US Airways (Colgan Air 5930) Portland, ME-Boston
b. AAL11
c. UAL 175
d. AAL77
e. UAL 93

IX. Immediate Response (to September 20, 2001)


a. White House
b. DOT leadership
c. FAAandATC
d. Airlines
e. Airports and law enforcement
f. Congress

X. Consequences
a. Economic
b. Psychological

COMMISSION SENSITIVE
COMMISSION SENSITIVE

PART TWO: TRANSPORTATION SECURITY AFTER SEPTEMBER 11, 2001

XI. Transportation Security Today: Organization


a. DHS
b. TSA
c. DOT
d. Congress
e. State and local government
f. Private sector

XII. Transportation Security Today: Key Issues


a. Leadership and accountability
b. Implementation ways and means
c. Priority-setting and risk management
d. Consequence management: economic and psychological

XIII. Recommendations

COMMISSION SENSITIVE
COMMISSION SENSITIVE

TEAM 8 MONOGRAPH OUTLINE

PART ONE: The Attacks: Breaching the Air Traffic Control and Continental Air
Defense Systems

I. The Air Traffic Control and Continental Air Defense Systems on 9/11
A) How the FAA watched airspace pre 9/11
1. Crowded skies - graphic freeze frame
2. Safety first vs. security
3. Hijacking protocols
B) NORAD's mission and capabilities
1. Rules of Engagement
C) The relationship and ineraction between FAA and NORAD

II. 9/11 Part One: The New York Attacks: Indicators and Warnings (8:15 - 9:10)
A) AA 11
B) United 175 (introduce confusion)
C) Sounding the alarm (9:10 am)
D) The struggle to gain situational awareness

III. 9/11 Part Two: The Washington Attacks: A Failure of Situational Awareness
(9:10-10:15 am)
A) Chasing the phantom A 11
B) Missing AA 77
C) Changing the Rules of Engagement (the shoot-down decision)
D) United 93

IV. 9/11 Part Three: The Fog of War


A) Scrambles
1. NORAD (push into the air)
2. DEFCON 4 and 3
B) Chasing Phantom UA 93
C) Warning the Russians
D) More false alarms
1. Delta 89 / Chicago
2. Air Canada
3. KAL 85
4. US Air 36
E) Clearing the skies: SCATANA

V. Lessons
A) Indications and Warnings
B) Command and Control
C) Homeland Defense
D) Bureaucratic Rivalry/Interaction

COMMISSION SENSITIVE
COMMISSION SENSITIVE

PART TWO: On-Site Response to the Attacks

I. Emergency Readiness on September 10th


A) General Principles
1. Public sector entities: The relationship and interaction between
FBI and ATF, NYPD and FDNY
2. Building owners of WTC
3. Tenants of WTC
4. Pentagon
B) Response upon Impact
1. Tower 1
2. Tower 2
C) Critical Choices: Command and control, Communication, and Evacuation
(8:46 prior to towers failing)
1. NYPD
2. FDNY
3. Private sector
4. NY OEM
5. FEMA
6. Port Authority
D) Collapse
1. NIST structural assessment of why the towers fell
2. The command and control response
3. The emergency responder perspective

II. Pentagon
A) What happened (damage, fire, casualties)
B) Critical choices

III. Consequence Management


A) Rescue
B) Security

IV. The Remains of the Day


A) NY response
B) Pentagon response
C) Recovery and initial lessons learned (NY and Pentagon)

PART THREE: The Response of National Leadership

I.. Crisis Management for National Recovery


A) Agenda at Cabinet level September 11
B) Critical Choices:
1. Continuity of Operations
2. Continuity of Government

COMMISSION SENSITIVE
COMMISSION SENSITIVE

3. Reassuring the Public


a. Closing and reopening the financial markets
b. Resuming normal air traffic
c. Air quality at Ground Zero
d. Law enforcement measures
e. The 9/20 Address
C) Process for taking decisions
D) Reflections (what worked and didn't work)

PART FOUR: Lessons Learned and Best Practices

I. Emergency response best practices


A) Command and Control
B) Evacuation strategies
C) Continuity of business/government

II. Creating Incentives for Emergency Preparedness

A) Interagency relations: Overcoming bureaucratic rivalry


1. FAA/NORAD today
2. NYPD/FDNY today
3. FBI/ATF today
B) Private Sector Incentives for Preparedness

COMMISSION SENSITIVE

Das könnte Ihnen auch gefallen