Intelligence to Counter Terrorism: Issues for Congress

Publication Date: May 2003

Publisher: Library of Congress. Congressional Research Service

Author(s):

Research Area: Military and defense

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Abstract:

For well over a decade international terrorism has been a major concern of the U.S. Intelligence Community. Collection assets of all kinds have long been focused on Al Qaeda and other terrorist groups. Intensive analytical expertise has been devoted to determining such groups' memberships, locations, and plans. Intelligence agencies had been acutely aware of the danger for years. In February 2001, Director of Central Intelligence (DCI) George Tenet publicly testified to Congress that "the threat from terrorism is real, it is immediate, and it is evolving." Furthermore, "[Osama] bin Ladin and his global network of lieutenants and associates remain the most immediate and serious threat."

Nevertheless, the Intelligence Community gave no specific warning of the September 11, 2001 attacks. Although all observers grant that terrorist groups are very difficult targets and that undetected movements of small numbers of their members in an open society cannot realistically be prevented, serious questions remain. An extensive investigation by the two intelligence committees of the September 11 attacks was undertaken in 2002. Although the final report is not yet public, the committee members found that the Intelligence Community, prior to 9/11, was neither well organized nor equipped to meet the challenge posed by global terrorists focused on targets within the U.S. A separate independent commission was established in early 2003 to take another look at the events preceding September 11.

Counterterrorism is highly dependent upon human intelligence (humint), the use of agents to acquire information (and, in certain circumstances, to carry out covert actions). Humint is one of the least expensive intelligence disciplines, but it can be the most difficult and is undoubtedly the most dangerous for practitioners. Mistakes can be fatal, embarrass the whole country, and undermine important policy goals. Congress makes decisions regarding the extent to which the importance of humint outweighs the inherent risks.

Countering terrorism requires close cooperation between law enforcement and intelligence agencies; some terrorists will need to be brought to justice in courts, but others are dealt with by military forces or covert actions. In recent years, important steps have been taken to encourage closer cooperation between the two communities, but some believe terrorist acts may have been facilitated by continuing poor information exchanges between intelligence and law enforcement agencies and by blurred lines of organizational responsibility. Congress will oversee the implementation of the evolving relationship that affects important principles of law and administration, and may choose to modify the roles and missions of intelligence and law enforcement agencies.

Military operations to counter terrorism are dependent on the availability of precise, real-time intelligence to support bombing campaigns using precision guided munitions. The linkage between sensor and "shooters" will be crucial as will access to global geospatial databases. As defense transformation progresses, Congress will also oversee the development of increased intelligence support to military operations including, especially, counterterrorist missions.