June 2012 Counterterrorism Intelligence...Intelligence: Fusion Center Perspectives June 2012 Frank J. Cilluffo Joseph R. Clark Michael P. Downing Keith D. Squires Founded in 2003,

Counterterrorism Intelligence:Fusion Center Perspectives

June 2012

Frank J. CilluffoJoseph R. Clark

Michael P. DowningKeith D. Squires

Founded in 2003, The George Washington University Homeland Security Policy Institute (HSPI) is a nonpartisan “think and do” tank whose mission is to build bridges between theory and practice to advance homeland security through an interdisciplinary approach. By convening domestic and international policymakers and practitioners at all levels of government, the private and non-profit sectors, and academia, HSPI creates innovative strategies and solutions to current and future threats to the nation.

Frank J. Cilluffo has served as Director of the Homeland Security Policy Institute since joining The George Washington University in April 2003. He is also an Associate Vice President and leads GW's homeland security efforts on policy, research, education, and training. The Institute’s recent policy and research agenda covers a wide range of national and homeland security matters, including counterterrorism, counter-radicalization & counter-narrative efforts, cyber threats & deterrence, transportation security, CBRN terrorism, intelligence, national resilience, emergency management, and the nexus of crime and terrorism. Prior to founding HSPI, Cilluffo served as Special Assistant to the President for Homeland Security at the White House.

Dr. Joseph R. Clark is a policy analyst at HSPI. His primary research interests include military doctrine, national security strategy, counterterrorism policy, and organizational learning. He serves as the research director for HSPI's Counterterrorism and Intelligence Task Force. In addition, he leads HSPI's Counterterrorism Intelligence Survey Research (CTISR) program. Clark has written on counterinsurgency doctrine, the need to engage moderate members of the Taliban in political dialogue, piracy, and the US Army's ability to innovate doctrine in the face of strategic failure in Vietnam and Iraq.

Deputy Chief Michael P. Downing is the Commanding Officer of the Los Angeles Police Department’s Counter-Terrorism and Special Operations Bureau where he leads five operational divisions: Major Crimes Division, Emergency Services Division, Metropolitan Division, Air Support Division, and Emergency Operations Division. These divisions include the Anti-Terrorism Intelligence Section, Criminal Investigative Section, Organized Crime, Surveillance Section, Hazardous Devices Section, Operation Archangel, LAX Bomb K-9 Section, Special Weapons and Tactics (SWAT), Mounted Unit, Underwater Dive Team, and Emergency Preparedness and Response. Downing is also a member of the Executive Board of the Los Angeles Joint Regional Intelligence Center (JRIC) and a Senior Fellow at HSPI.

Colonel Keith D. Squires is the Deputy Commissioner of the Utah Department of Public Safety. He also serves as the Governor's Homeland Security Advisor responsible for Utah’s Homeland Security and Emergency Management Division. He provides additional oversight for the State Bureau of Investigation, the Statewide Information and Analysis Center and the State Crime Lab. In 2007, he was tasked with designing and establishing Utah's fusion center. Col. Squires began his career with the Utah Department of Public Safety in November of 1989 as a Utah Highway Patrol trooper and promoted through all ranks of the agency. He has previously served as the director of the State Bureau of Investigation, deputy director of the Utah Division of Homeland Security and assistant superintendent of the Utah Highway Patrol.

This research was made possible by the generous support ofThe George Washington University and the Ahmanson Foundation.

The authors would like to thank the National Fusion Centers Association for its help with this survey,especially Ross Ashley and Mike Sena for their advice and feedback. They would also like to thank HSPI intern Anna

Mae Gibson for her exceptional editing and support.

Research Brief Volume 2, Number 1. Washington, DC; Homeland Security Policy Institute.

This brief carries a Creative Commons license, which permits re-use of Homeland Security Policy Institute (HSPI) content when proper attribution is provided. This means you are free to copy, display and distribute HSPI’s work, or include our content in derivative works provided that a standard source credit line is included. For more information about citation, please see the final page of this document. For more information about HSPI’s research, please email [email protected].

For current and past publications of the Homeland Security Policy Institute,please visit HSPI’s website at www.homelandsecurity.gwu.edu.

ISBN: 978-0-9839904-4-4

http://www.homelandsecurity.gwu.edu

mailto:[email protected]

mailto:[email protected]


2001On September 9th, shortly after midnight, Maryland State Police Trooper Joseph Catalano pulls over a red Mitsubishi. The car was traveling 90 miles per hour in a 65 mile per hour northbound stretch of Interstate 95. The trooper’s dashboard mounted camera and microphone record the eight minute traffic stop.

Trooper Catalano takes the driver’s Virginia license and the rental car’s registration information and walks back to his cruiser. He asks dispatchers to check whether the car has been reported as stolen. It has not. There is no reason to hold the driver. The incident appears to be nothing but a routine traffic stop. The driver is calm and polite.

Trooper Catalano walks back to the red Mitsubishi. He hands the driver a ticket for $270 and tells him he needs to sign it. The driver signs the ticket and hands it back. “You’re free to go” Catalano tells the driver before returning to his patrol car.

As he returns to his cruiser, Catalano is unaware that the driver, Ziad Jarrah, is on a Central Intelligence Agency watchlist. Fifteen seconds later he watches the red car and its driver disappear into the night.

Two days later, Ziad Jarrah boards United Flight 93 and takes his position in seat 1B — the closest to the cockpit.!

2011On June 25th, around 6:00pm, officers from the Colorado State Patrol arrest the driver of a green Toyota pickup truck who had been driving erratically. When the police

attempted to pull him over the driver fled. He eventually crashes his truck on Highway 103 in Clear Creek County.

Colorado State Police arrest the driver for reckless driving, driving drunk, having an open alcohol container in the vehicle, and felony

menacing. As they process the driver, and input information about his pickup, they learn from the Colorado Information Analysis

Center that the green Toyota matches one used in the attempted bombing of a bookstore in Lakewood, Colorado.

A week later, federal authorities charge the driver — David Lawless — with planting a series of explosives around the

Colorado Mills Mall in Lakewood.

The arrest and prosecution of Lawless for the attempted bombings has been directly supported by the Colorado Information Analysis Center. The fusion center successfully

gathered and disseminated information from private businesses, local police, state authorities, and the Federal Bureau of Investigation.

Lawless is scheduled to stand trial in 2012."

Counterterrorism Intelligence: Fusion Center Perspectives

Homeland Security Policy Institute | Research Brief | June 2012 | Page 1 of 35

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Critical Operational Capabilities (COCs)

COC 1: Receive — Ability to receive classified and unclassified information from federal partners.

COC 2: Analyze — Ability to assess local implications of threat information through the use of a formal risk assessment process.

COC 3: Disseminate — Ability to further disseminate threat information to other state, local, tribal, and territorial entities and private sector entities within their jurisdictions.

COC 4: Gather — Ability to gather locally generated information, aggregate it, analyze it, and share it with federal partners as appropriate.



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“Lone offenders and other small groups inspired by writing, web blogs, websites

and other social media.” — Survey Respondent’s answer to the question:

Who Poses the Greatest Threat in Your Jurisdiction?

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1 2 3 4 5 6 7 8 9 10

4.3%

11.6%

11.6%

23.2%

18.8%

13.0%

13.0%1.4%2.9%

Increase Stay the Same Decrease

0

15

30

45

60

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Multiple Groups / UnclassifiedDrug Trafficking Organizations / Organized CrimeHomegrown Jihadi Groups & IndividualsHomegrown Non-Jihadi Groups & IndividualsForeign Jihadi Organizations & Individuals

10.0% 5.0%

65.0%

11.7%

8.3%

Likelihood Consequence

0%

25%

50%

75%

100%

LOW! ! ! ! HIGH



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Recruit/Radicalize Propaganda/NarrativeSmall Attack Raise Money/Train

0%

12%

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36%

48%

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Disturbance Small AttackLarge Attack Crime-FundraisingFundraising Recruit/RadicalizeTrain Propaganda

12.2%

28.6%

14.3%10.2%

12.2%

6.1%

6.1%10.2%



“A Mumbai-style attack is always of high concern.” — Survey Respondent

#$0*+-,0% 3(2&% ,-20.% F2()*$+% *$% ,-.% 3A0*2$% 8.$,.(0%

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0

2

4

6

8

10

1 2 3 4 5 6 7 8 9 10

Every 3-6 monthsEvery 7-9 monthsEvery 10-12 monthsEvery 13-18 monthsEvery 19-24 monthsEvery 25-36 monthsMy Center Does Not Conduct Regional Assessments

0%

10%

20%

30%

40%

50%

HOME- ! ! FOREIGNGROWN BASED



_'0.@%2$%>;`#Y0%0A(/.1%@','9%*,%'==.'(0%,-',%&'$1%23%

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]2A$,.(,.((2(*0&%b.0,u

Fusion Center PerspectivesLaw Enforcement Perspectives

10%

20%

30%

40%

50%

1 2 3 4 5 6 7 8 9 10

<8#+=.2#;;-4#.&#+>.2#"0"-9#+?+159-(.+@#.2#"9

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“...to assist fusion centers in becoming centers of analytic excellence.”

— DHS on “The Path Ahead”

LOCAL! ! FEDERALAUTHORITIES AUTHORITIES



9,:;3<+ =FB%O-.(.% <2.0% `(*&'(1% b.0=2$0*H*?*,1% 32(%

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“Most of our intelligence functions still deal with every-day criminal activity.”

— Survey Respondent

Analysis Collection

8%

16%

24%

32%

40%

1 2 3 4 5 6 7 8 9 10

9,:;3<+ ==B% O-2% >'0% ^(.',.(% ]'='H*?*,1% 32(% ,-.%

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'$0F.(.@%.'8-%EA.0J2$L%%

“ There is no other state level agency which focuses on

Counterterrorism or provides a POC for federal agencies

responsible for Counterterrorism” — Survey Respondent

Analysis Collection

4%

8%

12%

16%

20%

1 2 3 4 5 6 7 8 9 10LOCAL! ! FEDERALAUTHORITIES AUTHORITIES

LOCAL! ! FEDERALAUTHORITIES AUTHORITIES



9,:;3<+ =>B% <2.0% P2A(% ].$,.(% >'/.% '% `(28.00% 32(%

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[D#^:bn% 6y\L % % D2(,1G$*$.% *$@*/*@A'?0% '$0F.(.@% ,-*0%

EA.0J2$L

Yes Don’t Know No

73.5%

8.2%

18.4%

Yes Don’t Know No

67.3%

16.3%

16.3%

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Yes Don’t Know No

61.2%8.2%

30.6%



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32(% 82A$,.(,.((2(*0&% *$32(&'J2$L% % Q% ('$)%2(@.(% 23%

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82?A&$L% % [D#^:bn% 6|\% % >;`#Y0% 0A(/.1% 0A==?*.@% ,-.%

?*0,.@%8',.+2(*.0L

[We] “do not have the needed access to HSDN sites.” — Survey Respondent

Yes Don’t Know No

0% 50% 100%

Information

Capabilities

Intentions

9 ,:;3<+ =A B% W20,% #&=2( ,'$,% ;2A(8.0% 2 3%

]2A$,.(,.((2(*0&%#$,.??*+.$8.

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0% 10% 20% 30% 40% 50%

LAW ENFORCEMENT

JOINT TERRORISM TASK FORCES

LOCAL CITIZENS/GROUPS

YOUR CENTER’S EFFORTS

YOUR CENTER’S ANALYSTS

COMMUNITY LEADERS

DEPARTMENT OF HOMELAND SECURITY

NATIONAL COUNTERTERRORISM CENTER

OTHER FUSION CENTERS

PRIVATE SECTOR PARTNERS



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Criminal History State LicensingMotor Vehicle Local Records Systems

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Relevant counterterrorism information products are not shared proactively.

“General products like ‘watch out for people stealing propane tanks’ are shared,

but not ‘a group of Somali refugees are attempting to purchase small arms.’” —

Survey Respondent

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HSDN FBINet SIPERNet

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1 2 3 4 5 6NO! ! ! COMPLETEACCESS! ! ! ACCESS

NO! ! ! COMPLETEACCESS! ! ! ACCESS



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Information

Capabilities

Intentions



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“I am designated as Homeland Security Coordinator for our Fusion Center, but am excluded from briefings given to top level

officials including the Governor.” — Survey Respondent

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“NTAS is an improvement over the old system.” — Survey Respondent

“NTAS is very flat — preferred old system.” — Survey Respondent

“NTAS is new and I am not sure of its adequacy.” — Survey Respondent

VULNERABLE! ! SECURE



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Local Officials/Agencies State Officials/AgenciesFederal Officials/Agencies Other Fusion CentersProfessional Organizations None of the Above

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http://www.9news.com/news/article/205496/207/Suspect-in-mall-devices-set-off-dry-ice-bomb-before



http://www.baltimoresun.com/bal-md.video09jan09,0,7362620.story




http://www.denverpost.com/news/ci_18373551




http://www.thedenverchannel.com/news/28385153/detail.html











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http://www.gao.gov/assets/320/310268.pdf

http://www.dhs.gov/files/programs/gc_1301685827335.shtm




http://www.fbi.gov/stats-services/publications/law-enforcement-bulletin/Dec2010/intelligence_feature






http://www.foxnews.com/politics/2012/02/17/tensions-with-iran-raise-us-concern-possible-terror-attack/






http://www.mysanantonio.com/opinion/commentary/article/We-need-lots-more-cyber-patriots-3492256.php






http://homeland.house.gov/sites/homeland.house.gov/files/Testimony%20-%20Cilluffo.pdf






http://www.armytimes.com/news/2012/02/ap-counterterrorism-officials-lookout-iranian-operatives-021712/






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http://www.nfcausa.org/.%5D

http://www.surveymonkey.com/mp/aboutus/

http://www.surveymonkey.com/mp/aboutus/

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