JP 3 07.2 JTTP For Antiterrorism Jp3_07_2 Jp3 07 2

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Joint Pub 3-07.2

Joint Tactics,
Techniques, and Procedures
for Antiterrorism

17 March 1998

T

his second edition of Joint
Pub 3-07.2, "Joint Tactics,
Techniques, and Procedures for
Antiterrorism," represents a
significant improvement in the key
area of force protection.
Joint Pub 3-07.2 provides tactics,
techniques, and procedures for the
conduct of US antiterrorism
operations in joint operations. It
discusses US national policy,
explains key responsibilities for
antiterrorism actions, and covers key
command and control relationships.
The guidance contained herein provides joint force commanders with the knowledge
needed to organize, plan, train for, and conduct antiterrorism operations.
Experience has shown that force protection must be a high priority for
any commander. Antiterrorism is essential to a force protection program.
Commanders must understand the content of this publication and bring it
to bear during joint and multinational operations. Please ensure the widest
distribution of this and other joint publications, and promote their use at
every opportunity.

HENRY H. SHELTON
Chairman
of the Joint Chiefs of Staff

PREFACE
1. Scope

in a manner the JFC deems most appropriate to
ensure unity of effort in the accomplishment of
This publication sets forth the tactics, the overall mission.
techniques, and procedures governing the
joint conduct of US antiterrorism operations. 3. Application
It provides a basis for understanding US
national policy and general objectives relating
a . Doctrine and selected tactics,
to antiterrorism and explains important techniques, and procedures and guidance
Department of Defense and US Government established in this publication apply to the
agency command and control relationships. commanders of combatant commands,
In addition, it outlines basic US military subunified commands, joint task forces, and
antiterrorism capabilities and provides subordinate components of these commands.
commanders with guidance on how to These principles and guidance also may apply
organize, plan, and train for the employment when significant forces of one Service are
of US forces in interagency and multinational attached to forces of another Service or when
antiterrorism operations.
significant forces of one Service support
forces of another Service.

2. Purpose
This publication has been prepared under
the direction of the Chairman of the Joint
Chiefs of Staff. It sets forth doctrine and
selected joint tactics, techniques, and
procedures (JTTP) to govern the joint
activities and performance of the Armed
Forces of the United States in joint operations
and provides the doctrinal basis for US
military involvement in multinational and
interagency operations. It provides military
guidance for the exercise of authority by
combatant commanders and other joint
force commanders and prescribes doctrine and
selected tactics, techniques, and procedures for
joint operations and training. It provides military
guidance for use by the Armed Forces in
preparing their appropriate plans. It is not the
intent of this publication to restrict the authority
of the joint force commander (JFC) from
organizing the force and executing the mission

b. The guidance in this publication is
authoritative; as such, this doctrine (or JTTP)
will be followed except when, in the judgment
of the commander, exceptional circumstances
dictate otherwise. If conflicts arise between
the contents of this publication and the
contents of Service publications, this
publication will take precedence for the
activities of joint forces unless the Chairman
of the Joint Chiefs of Staff, normally in
coordination with the other members of the
Joint Chiefs of Staff, has provided more
current and specific guidance. Commanders
of forces operating as part of a multinational
(alliance or coalition) military command
should follow multinational doctrine and
procedures ratified by the United States. For
doctrine and procedures not ratified by the
United States, commanders should evaluate
and follow the multinational command’s
doctrine and procedures, where applicable.

i

Preface

Intentionally Blank

ii

Joint Pub 3-07.2

TABLE OF CONTENTS
PAGE
EXECUTIVE SUMMARY .......................................................................................... vii
CHAPTER I
INTRODUCTION
•
•
•
•
•

General .....................................................................................................................
Purpose .....................................................................................................................
Force Protection and Antiterrorism Relationship .......................................................
Overview of DOD Responsibility .............................................................................
DOD Role .................................................................................................................

I-1
I-1
I-2
I-2
I-3

CHAPTER II
TERRORIST THREAT
•
•
•
•
•
•
•

Overview ................................................................................................................. II-1
Terrorist Tactics........................................................................................................ II-1
Terrorist Groups ....................................................................................................... II-5
Terrorist Organization .............................................................................................. II-6
Terrorist Targets — Americans................................................................................. II-9
Domestic Terrorism ................................................................................................ II-10
Terrorism Against the US Military ......................................................................... II-10

CHAPTER III
LEGAL CONSIDERATIONS
• General .................................................................................................................. III-1
• US Policy ............................................................................................................... III-1
• Lead Agencies ....................................................................................................... III-2
SECTION A. LEGAL CONSIDERATIONS: AUTHORITY ..................................
• Criminal Actions ....................................................................................................
• Jurisdiction ............................................................................................................
• Commander’s Authority .........................................................................................

III-3
III-3
III-4
III-4

SECTION B. LEGAL CONSIDERATIONS: PERMISSIBLE LIMITS OF
MILITARY SUPPORT TO CIVIL AUTHORITIES .............................................. III-4
• General .................................................................................................................. III-4
• Statutory Authorizations Allowing the Use of the Military ...................................... III-4

iii

Table of Contents
SECTION C. LEGAL CONSIDERATIONS: JURISDICTION AND AUTHORITY
FOR HANDLING TERRORIST INCIDENTS ...................................................... III-6
• Jurisdictional Status of Federal Property in the United States, Its Territories,
and Its Possessions .............................................................................................. III-6
• Federal Authority in the United States, Its Territories, and Its Possessions .............. III-8
• Federal and State Concurrent Authority ................................................................. III-8
• Jurisdictional Authority .......................................................................................... III-8
SECTION D. LEGAL CONSIDERATIONS: FEDERAL AGENCIES AND THE
MILITARY ............................................................................................................ III-8
• Overview ............................................................................................................... III-8
• The National Security Council ............................................................................... III-8
• The Committee to Combat Acts of Terrorism ......................................................... III-9
• Department of Justice ............................................................................................. III-9
• Federal Bureau of Investigation .............................................................................. III-9
• Department of Defense........................................................................................... III-9
• Military Authority .................................................................................................. III-9
• Military Installation Commander’s Responsibilities .............................................. III-11
CHAPTER IV
ANTITERRORISM PROGRAM; INSTALLATION, BASE, SHIP, UNIT, AND PORT
•
•
•
•

Overview of Program Concept ...............................................................................
Implementing the Concept .....................................................................................
Threat Conditions ..................................................................................................
Combatant Commander’s Responsibility................................................................

IV-1
IV-7
IV-9
IV-9

CHAPTER V
INTELLIGENCE, COUNTERINTELLIGENCE, AND THREAT ANALYSIS
SECTION A. INTELLIGENCE AND COUNTERINTELLIGENCE .......................
• Intelligence and Counterintelligence Support ..........................................................
• Sources ...................................................................................................................
• Responsibilities of US Government Lead Agencies .................................................
• Information Requirements .......................................................................................

V-1
V-1
V-1
V-2
V-5

SECTION B. THREAT ASSESSMENT ...................................................................
• Preparation of Threat Analysis ................................................................................
• Preparation of Criticality and Vulnerability Assessments..........................................
• Drills and Exercises ................................................................................................

V-5
V-5
V-8
V-9

CHAPTER VI
CRISIS MANAGEMENT EXECUTION
•
•
•
•

General ..................................................................................................................
Initial Response......................................................................................................
Response ................................................................................................................
Special Considerations ...........................................................................................

iv

VI-1
VI-1
VI-2
VI-5

Joint Pub 3-07.2

Table of Contents
CHAPTER VII
PREVENTIVE MEASURES AND CONSIDERATIONS
• Commander’s Responsibility ................................................................................ VII-1
• AT Force Protection in High-Risk Areas ............................................................... VII-1
• Tactical Force Protection ........................................................................................ VII-9
APPENDIX
A
B
C
D
E
F
G
H
J
K
L
M
N
O
P

Vulnerability Assessment .................................................................................. A-1
Personal Protective Measures Against Terrorism ................................................ B-1
Very Important Person and Senior Officer Security Measures ............................ C-1
Building Security Procedures ............................................................................ D-1
Lock Security .................................................................................................... E-1
Telephone Call Procedures ................................................................................. F-1
Crisis Management Plan Format ....................................................................... G-1
Crisis Management Plan Checklist .................................................................... H-1
THREATCON System ........................................................................................ J-1
Explosive Device Procedures ............................................................................ K-1
Jurisdictional Authority for Handling Terrorist Incidents.................................... L-1
Public Affairs Checklist .................................................................................... M-1
Military Working Dogs ..................................................................................... N-1
References ........................................................................................................ O-1
Administrative Instructions ................................................................................ P-1

GLOSSARY
Part I Abbreviations and Acronyms ................................................................... GL-1
Part II Terms and Definitions .............................................................................. GL-3
FIGURE
I-1
II-1
II-2
II-3
II-4
III-1
III-2
III-3
IV-1
IV-2
IV-3
IV-4
IV-5
V-1
V-2
V-3

Antiterrorism & Counterterrorism ................................................................. I-1
Examples of Terrorist Objectives .................................................................. II-1
Common Terrorist Tactics ............................................................................ II-2
Categories of Terrorist Groups...................................................................... II-6
Structure Pyramid of a Typical Terrorist Organization .................................. II-7
Lead Agencies for Terrorist Incidents ......................................................... III-2
Federal Territorial Jurisdiction Categories .................................................. III-7
Approval for Use of Military Force ........................................................... III-10
Antiterrorism Program Concept .................................................................. IV-2
Operations Security Antiterrorism Objectives ............................................. IV-4
Antiterrorism Program Functions for Installation Commanders .................. IV-8
Crisis Management Participants.................................................................. IV-9
On-Site Operational Response Structure ................................................... IV-10
Sources of Intelligence and Counterintelligence .......................................... V-1
Information Requirements ........................................................................... V-6
Threat Level ................................................................................................ V-8

v

Table of Contents
VI-1
VI-2
VI-3
VI-4
VII-1
VII-2
VII-3
L-1

vi

Crisis Management Execution Considerations ............................................ VI-2
Terrorist Incident Phases ............................................................................. VI-3
Response to a Terrorist Incident .................................................................. VI-4
Special Considerations ............................................................................... VI-5
Fortification Materials ............................................................................... VII-3
Security Force Equipment ......................................................................... VII-4
Principles of Riot Control .......................................................................... VII-9
Jurisdictional Authority for Handling Terrorist Incidents .............................. L-2

Joint Pub 3-07.2

EXECUTIVE SUMMARY
COMMANDER’S OVERVIEW
•

Discusses US National Policy and General Objectives

•

Explains Important Department of Defense and US
Government Agency Command and Control Relationships

•

Outlines Basic US Military Antiterrorism Capabilities

•

Provides Guidance for the Employment of US Forces in
Antiterrorism Operations

•

Explains Legal Considerations Affecting the Implementation
of Successful Programs

•

Describes Sources of Intelligence and Counterintelligence

Combatting Terrorism
Combatting terrorism
involves actions taken to
oppose terrorism
throughout the entire
threat spectrum.

Specific tactics, techniques, and procedures govern the joint
conduct of US antiterrorism operations. Combatting
terrorism is an element of force protection — a security
program designed to protect Service members, civilian
employees, family members, facilities, and equipment in
all locations and situations. Combatting terrorism involves
actions (including antiterrorism and counterterrorism)
taken to oppose terrorism throughout the entire threat
spectrum. Antiterrorism involves defensive measures used
to reduce the vulnerability to terrorist acts, as opposed to
counterterrorism which consists of offensive measures taken
to prevent, deter, and respond to terrorism.

Department of Defense Roles and Responsibilities
The Department of
Defense is responsible
for protecting its own
personnel, bases,
deployed forces,
equipment, and
installations.

Every commander, regardless of echelon of command or
branch of Service, has an inherent responsibility for
planning, resourcing, training, exercising, and executing
antiterrorism measures to provide for the security of the
command. Likewise, every military Service member,
Department of Defense (DOD) employee, DOD
independent contractor, and local national hired by the
Department of Defense, regardless of rank, has an inherent
responsibility to maintain vigilance for possible terrorist

vii

Executive Summary
actions and to ensure that, where applicable, family
members understand and employ antiterrorism tactics,
techniques, and procedures. Specific DOD offices and
agencies have been assigned specific responsibilities
pertaining to combatting terrorism.
The Department of
Defense assists lead
agencies in combatting
terrorism.

The Department of Defense is not the lead agency for
combatting terrorism. The Department of Defense is
responsible for protecting its own personnel, bases,
ships, deployed forces, equipment, and installations.
The Department of Defense is also responsible for
providing technical assistance or forces when requested
by the National Command Authorities. The lead agency
is the Department of State for incidents outside the United
States, the Department of Justice for incidents within the
United States, and the Department of Transportation
and/or Federal Aviation Administration for certain
aviation incidents. The US Coast Guard is responsible for
reducing the risk of maritime terrorist incidents and for
manning the National Terrorism Hotline (1-800-424-8802)
for reports of actual and/or potential domestic terrorism.
All other Federal agencies possessing resources for
responding to terrorism are linked together through agency
command centers and crisis management groups to ensure
effective coordination of the US response.

Terrorist Objectives and Tactics
Understanding the
terrorist threat enables
the commander to
properly create and
employ antiterrorism
programs.

Terrorists frequently claim affiliation with causes or
political organizations to give their actions a claim to
respectability. News media coverage is important to
terrorists who are attempting to incite public fear or gain
attention for their cause. A determinant of tactics and
target selection is the role the terrorist group perceives
itself as playing. Terrorism can also be used as either an
overt or a covert aspect of a political movement engaged
in a power struggle within an existing political system. A
terrorist group’s selection of targets and tactics is also a
function of the group’s affiliation, level of training,
organization, and sophistication.

Terrorists have a variety
of objectives and tactics.

Examples of objectives of a terrorist attack are: to attract
publicity for its cause, demonstrate the group’s power, show
the existing government’s lack of power, extract revenge,
obtain logistic support, or cause a government to overreact.
Just as a terrorist incident may have several objectives, the
tactics used may also be combined. The more common

viii

Joint Pub 3-07.2

Executive Summary
tactics employed by terrorist groups are assassination,
arson, bombing, hostage taking, kidnapping, hijacking,
seizure, raids, sabotage, hoaxes, use of special weapons,
and environmental destruction. Information systems and
information infrastructures may also become targets of
terrorist sabotage.

Legal Considerations
There are policy and
jurisdictional
responsibilities that apply
to the Armed Forces.

A command judge advocate participates at all levels of
foreign and domestic antiterrorism program planning and
implementation. The commander of a combatant
command, subunified command, joint task force, or
component command must coordinate with the command
judge advocate to determine the commander’s authority in
combatting terrorism and to provide a basic understanding
of the legal considerations affecting the implementation
of an effective antiterrorism program. In addition, statutory
and regulatory restrictions may limit the type of assistance
installation commanders may provide to civilian law
enforcement officials investigating terrorist incidents and
other crimes. Commanders should coordinate all proposed
assistance with the Staff Judge Advocate to ensure
compliance with such restrictions.

The Antiterrorism Program
The antiterrorism
program stresses
deterrence of terrorist
incidents through
preventive measures
common to all combatant
commands and Services.

The antiterrorism program concept represents an
integrated, comprehensive approach within combatant
commands and the Services to counter the terrorist threat
to military installations, bases, facilities, equipment, and
personnel. The concept has two phases; proactive and
reactive. The proactive phase encompasses the planning,
resourcing, preventive measures, preparation, awareness
education, and training that take place before a terrorist
incident. The reactive phase includes the crisis management
actions taken to resolve a terrorist incident.

Counterterrorism
Counterterrorism (CT) is a highly specialized, resourceintensive mission. Certain special operations forces units
maintain a high state of readiness to conduct CT operations
and possess a full range of CT capabilities. Combatant
commanders maintain designated CT contingency forces
to respond to CT situations when national assets are not
immediately available.

ix

Executive Summary
Intelligence and Counterintelligence
Intelligence and
counterintelligence are
the first line of defense in
an antiterrorism
program.

An effective intelligence and counterintelligence
program is essential in order to identify the terrorist threat.
Additionally, counterintelligence provides warning of
potential terrorist attacks and provides information for
counterterrorism operations. Effective intelligence and
counterintelligence support requires effort, planning and
direction, collection and analysis, production,
investigations, and dissemination. The entire process is
necessary to provide decision makers with information
and timely warning upon which to take antiterrorism
actions. The primary sources of intelligence and
counterintelligence for the antiterrorism program are opensource information, criminal records, government
intelligence, and local information.

Prevention
Preventive and protective
security measures should
be taken by military units
and individual Service
members.

The installation, base, ship, unit, or port antiterrorism plan
provides the mechanism to ensure readiness against
terrorist attacks. The degree of the protection required
depends on the threat in a given location. Commanders
must constantly evaluate security against the terrorist
threat in order to effectively evaluate security requirements.

CONCLUSION
This publication sets forth the tactics, techniques, and
procedures governing the joint conduct of US antiterrorism
operations. It provides a basis for understanding US
national policy and general objectives relating to
antiterrorism and explains important DOD and US
Government agency command and control relationships.
In addition, it outlines basic US military antiterrorism
capabilities and provides commanders with guidance on
how to organize, plan, and train for the employment of US
forces in interagency and multinational antiterrorism
operations.

x

Joint Pub 3-07.2

CHAPTER I
INTRODUCTION
“There is another type of warfare — new in its intensity, ancient in its origin
— war by guerrillas, subversives, insurgents, assassins; war by ambush
instead of by combat, by infiltration instead of aggression, seeking victory by
eroding and exhausting the enemy instead of engaging him . . . It preys on
unrest . . . ”
John F. Kennedy
Address to the Graduating Class,
US Naval Academy, 6 June 1962

1. General

spectrum. This publication addresses only
AT. The following definitions, also shown in
The term “terrorism” is defined as “the Figure I-1, are provided to assist in
calculated use of violence or threat of understanding the difference between AT and
violence to inculcate fear; intended to CT:
coerce or to intimidate governments or
societies in the pursuit of goals that are
a. Antiterrorism is defensive measures
g e n e r a l l y p o l i t i c a l , r e l i g i o u s , o r used to reduce the vulnerability of individuals
ideological.” This definition is the foundation and property to terrorist acts, to include limited
throughout this publication for the guidance response and containment by local military
to combatant commanders, subunified forces.
commanders, joint task force (JTF)
commanders, and component commanders.
ANTITERRORISM &
Specific policy, directive guidance, standards,
and procedures for the Department of Defense
COUNTERTERRORISM
(DOD) combatting terrorism program is
contained in DOD Directive (DODD)
ANTITERRORISM
2000.12, “DoD Combating Terrorism
Program,” DOD Instruction (DODI) 2000.14,
DEFENSIVE MEASURES
“DoD Combating Terrorism Program
used to reduce the
Procedures,” DODD O-2000.12-H,
vulnerability to terrorist
“Protection of DoD Personnel and Activities
attacks
Against Acts of Terrorism and Political
Turbulence,” and DODI O-2000.16, “DoD
Combating Terrorism Program Standards.”

2. Purpose

COUNTERTERRORISM
OFFENSIVE MEASURES

Combatting terrorism involves actions
including antiterrorism (AT) (defensive
measures used to reduce the vulnerability to
terrorist acts) and counterterrorism (CT)
(offensive measures taken to prevent, deter,
and respond to terrorism) taken to oppose
terrorism throughout the entire threat

taken to prevent, deter, and
respond to terrorism

Figure I-1. Antiterrorism &
Counterterrorism

I-1

Chapter I
b. Counterterrorism is offensive 4. Overview of DOD
measures taken to prevent, deter, and respond
Responsibility
to terrorism. Sensitive and compartmented
CT programs are addressed in relevant
Every commander, regardless of echelon
National Security Decision Directives, of command or branch of Service, has an
National Security Directives, contingency inherent responsibility for planning,
plans, and other relevant classified documents. resourcing, training, exercising, and
executing AT measures to provide for the
security of the command. The importance
3. Force Protection and
of this responsibility is obvious in view of the
Antiterrorism Relationship
varying levels and types of terrorist threats
As discussed throughout this publication, faced by US forces worldwide. Likewise,
AT is a sub-element of combatting terrorism every military Service member, DOD
which is one of the four pillars of a broader employee, DOD independent contractor, and
concept called force protection (FP). FP is a local national hired by the Department of
security program designed to protect Service Defense, regardless of rank, has an inherent
members, civilian employees, family responsibility to maintain vigilance for
members, facilities, and equipment in all possible terrorist actions and to ensure that,
locations and situations, accomplished where applicable, family members understand
through planned and integrated and employ AT tactics, techniques, and
application of combatting terrorism, procedures. The Department of State (DOS)
physical security, operations security has also created a $2 million reward program
(OPSEC), and personal protective services to encourage this vigilance and the reporting
a n d s u p p o r t e d b y i n t e l l i g e n c e , of possible terrorist actions. Information on
counterintelligence, law enforcement, and this program can be obtained through each
Service’s respective law enforcement agency.
other security programs.

Every commander has a responsibility for the security of the command
against varying levels and types of terrorist threat.

I-2

Joint Pub 3-07.2

Introduction
5. DOD Role

b. The Under Secretary of Defense
(Comptroller) shall:

The Department of Defense is not the
lead agency for combatting terrorism;
• Provide a member to the DOD ATCC
however, the Department of Defense is
(and subcommittees as required).
responsible for protecting its own personnel,
bases, ships, deployed forces, equipment, and
• Provide information and guidance to
installations. At times, the Department of
DOD components on displaying AT and
Defense is responsible for providing technical
FP resources within Planning,
assistance or forces when requested by the
Programming, and Budgeting System
National Command Authorities. Normally,
(PPBS) program and budget
the DOS is the lead agency for incidents
submissions.
outside the United States. However, on the
Arabian Peninsula, the Department of Defense
• Provide reports on AT and FP funds as
has been established as the lead agent in a
requested by the Secretary of Defense
memorandum of understanding (MOU)
and the Chairman of the Joint Chiefs of
between the DOS and Department of Defense
Staff (CJCS).
on the security of the Arabian Peninsula. The
Department of Justice (DOJ) is the lead agency
c. The Under Secretary of Defense for
for incidents within the United States, and the Policy shall:
Department of Transportation (DOT) and/or
Federal Aviation Administration (FAA) serve
• Provide appropriate members to the
as lead agency for certain aviation incidents.
DOD ATCC (and subcommittees as
The following DOD offices and agencies have
required), the DOD Worldwide AT
been assigned specific responsibilities
Conference, and an observer to the
pertaining to combatting terrorism:
Overseas Security Policy Group
(OSPG).
a. The Under Secretary of Defense for
Acquisition and Technology (USDA&T)
• Ensure that the Assistant Secretary of
shall:
Defense (Special Operations and LowIntensity Conflict) (ASD[SO/LIC]) is
• Provide a member to the DOD AT
supported in issuing the travel security
Coordinating Committee (ATCC) (and
advisory (TSA) message.
subcommittees as required), and a
representative to the DOD Worldwide AT
d. The Assistant Secretary of Defense
Conference.
for Command, Control, Communications
and Intelligence (ASD[C3I]) shall:
• Ensure that the Defense Federal
Acquisition Regulation (current edition)
• Provide policy and guidance for physical
reflects current DOD AT and FP policy
security programs, security and
and addresses AT and FP security
investigative matters, counterintelligence,
requirements for Defense contractors.
DOD foreign counterintelligence, and
information operations programs and
• Be the DOD official responsible for AT
work in conjunction with the ASD(SO/
and FP technology development and
LIC) on matters pertaining to other
expedite the application of new
elements of combatting terrorism
technology to meet AT and FP needs.
programs.

I-3

Chapter I
• Review the DOD intelligence,
counterintelligence, security, and
information operations support provided
in DODD 2000.12, “DoD Combating
Terrorism Program,” for compliance with
DODD 5240.1, “DoD Intelligence
Activities,” and DODD 5240.1-R,
“Procedures Governing the Activities of
DoD Intelligence Components that
Affect United States Persons.”

establishing tour lengths and determine
whether restrictions should be placed on
accompanying family members for
personnel assigned to overseas activities.
• With the USDA&T, establish policy for
inclusion in the Defense Federal
Acquisition Regulation to require that
Defense contractors who operate
overseas or whose employees travel
overseas shall:

• Monitor Defense Intelligence Agency
(DIA) execution of AT and FP
responsibilities listed in DODD 2000.12,
“DoD Combating Terrorism Program.”

•• If the contractors are US companies,
affiliate with the Overseas Security
Advisory Committee;

• Promulgate policy and provide oversight
to DOD intelligence, counterintelligence,
security, and information operations in
support of AT and FP intelligence
standards.

•• Ensure their personnel who are US
nationals register with the US embassy
and third country nationals comply with
the requirements of the embassy of their
nationality;

• Provide appropriate members to the
DOD ATCC (and subcommittees as
required), the DOD Worldwide AT
Conference, and an observer to the
OSPG.

•• Prior to their travel outside the United
States, provide AT and FP awareness
information to personnel commensurate
with that which the Department of
Defense provides to the military, DOD
civilian personnel, and their families to
the extent such information can be made
available; and

e. The Assistant Secretary of Defense for
Force Management Policy (ASD[FMP]),
under the Under Secretary of Defense for
Personnel and Readiness, shall:
• Provide a member to the DOD ATCC
(and subcommittees as required), and a
representative to the DOD Worldwide AT
conference.
• Establish an AT and/or FP program for
the Department of Defense Dependent
Schools System.
• In coordination with Service Secretaries,
commanders of the combatant commands
with geographic responsibility, and the
Chairman of the Joint Chiefs of Staff,
address AT and FP considerations in

I-4

•• Receive the most current AT and FP
guidance for personnel, and comply with
the Foreign Clearance Guide (FCG), as
appropriate.
f. The ASD(SO/LIC) shall:
• Serve as ATCC - Senior Steering Group
co-chair.
• Provide a Deputy Assistant Secretarylevel co-chair for the ATCC.
• Monitor programs to reduce the
vulnerability of DOD personnel and their
family members, facilities, and other

Joint Pub 3-07.2

Introduction
DOD material resources to terrorist attack
with the Chairman of the Joint Chiefs of
Staff and other DOD components.
• Ensure compliance with DODD 2000.12,
“DoD Combating Terrorism Program,”
by having all DOD activities (other than
combatant commands) report directly to
the Secretary of Defense.
• Provide an Office of the Secretary of
Defense (OSD) representative to the
Interagency Working Group on
Terrorism and an observer to the OSPG.
• Provide membership on ATCC
subcommittees, as required.

Group, and other relevant security boards
and committees.
• Coordinate with the USDA&T on AT
and FP technology development and the
application of new technology to meet
AT and FP needs.
• Coordinate on Combatting Terrorism
Readiness Initiative Fund (CTRIF)
requests.
• Identify DOD-designated high and
potential physical threat countries in
support of DOD travel security policy
and issue the TSA message in
coordination with the Assistant Secretary
of Defense (International Security
Affairs), and the Assistant Secretary of
Defense (International Security Policy),
as appropriate.

• Provide policy oversight and guidance
to the DOD components in support of
respective counterterrorism program
efforts and work in conjunction with
command, control, communications, and
g. The Secretaries of the Military
intelligence on matters pertaining to other Departments shall:
combatting terrorism program elements.
• Institute combatting terrorism programs
• Develop, publish, and maintain DODD
and support them with adequate
O-2000.12-H, “Protection of DoD
programming, planning, and funding.
Personnel and Activities Against Acts of
Terrorism and Political Turbulence,” and
• Incorporate AT and FP into Service
DODD 5025.1-M, “DoD Directives
doctrine.
System Procedures,” consistent with
Public Law 99-399, “Omnibus
• Institute AT and FP training programs in
Diplomatic Security and Antiterrorism
accordance with DODD O-2000.12-H,
Act of 1986,” to provide standards and
“Protection of DoD Personnel and
guidance on protective measures that
Activities Against Acts of Terrorism and
serve to reduce the vulnerability of DOD
Political Turbulence.” Ensure that AT
personnel and their family members to
and FP and information on current
terrorist acts.
security technology is incorporated in
appropriate Service schools and training
• Sponsor the DOD Worldwide AT and FP
commensurate with the level of
Conference.
responsibility or command for which the
school is designed.
• Coordinate DOD combatting terrorism
program issues before the DOD Physical
• Provide AT resident training to personnel
Security Review Board, the DOD
assigned to high-risk billets and others,
Physical Security Equipment Steering
as appropriate.

I-5

Chapter I
• Provide prompt dissemination of
intelligence information on terrorist
threats, including specific warning of
threats against DOD personnel and their
family members, facilities, and other
DOD material resources, in accordance
with DODD 5240.1, “DoD Intelligence
Activities,” DODD 5240.1-R,
“Procedures Governing the Activities of
DoD Intelligence Components that
Affect United States Persons,” and
DODD 5240.6, “Counterintelligence
Awareness and Briefing Program.”
• In coordination with the Chairman of the
Joint Chiefs of Staff, commanders of the
combatant commands with geographic
responsibility, and the ASD(FMP),
address AT and FP considerations in
recommending tour lengths and
determine whether restrictions should be
placed on accompanying family
members for personnel assigned to
overseas activities.
• Ensure that current AT and FP
technology is incorporated into all
acquisition of new facilities, systems, and
equipment, where appropriate.
• Establish military construction
programming policies to ensure that AT
and FP protective features for facilities
and installations are included in the
planning, design, and execution of
military and minor construction projects.

• Identify the resources programmed to
implement and maintain AT and FP for
the Services as part of the PPBS process.
• Ensure that Service personnel and their
family members comply with the DOD
FCG. Ensure that personnel are aware
of any TSAs in effect at the time of travel.
Ensure that all DOD personnel and
family members scheduled for
permanent change of station to foreign
countries receive appropriate and
required training in accordance with
DODD O-2000.12-H, “Protection of
DoD Personnel and Activities Against
Acts of Terrorism and Political
Turbulence.”
• Ensure that existing physical security,
base defense, and law enforcement
programs address terrorism as a potential
threat to Service personnel and their
family members, facilities, and other
DOD material resources.
• Provide a Military Service representative
as a member to the DOD ATCC (and
subcommittees as required), and a
representative to the DOD Worldwide AT
Conference.
• Ensure that Service component
capabilities exist to collect, receive,
evaluate, and disseminate all relevant
data on terrorist activities, trends, and
indicators of imminent attack.

• Ensure that all Service installations and
h. The Chairman of the Joint Chiefs of
activities are assessed in accordance with Staff shall:
(IAW) DODD O-2000.12-H, “Protection
of DoD Personnel and Activities Against
• Serve as the principal advisor to the
Acts of Terrorism and Political
Secretary of Defense for all DOD AT and
Turbulence.” Ensure that installations
FP issues.
develop, maintain, and implement AT
and FP Service-specific standards in
• Prepare joint doctrine and assist the
concert with Service, commander of a
ASD(SO/LIC) in development and
combatant command (CINC), and DOD
maintenance of AT and FP standards.
standards as appropriate.
Review Service doctrine and CINC and

I-6

Joint Pub 3-07.2

Introduction
Service standards. Review, coordinate,
and oversee (on behalf of the Secretary
of Defense and in conjunction with the
DOD components) AT and FP training
for all DOD personnel and their family
members.
• Direct the Joint Requirements Oversight
Council (JROC) to address AT and FP
requirements. Include in the Chairman’s
program review and the Chairman’s
program analysis a summary of AT and
FP requirements, determined by the
JROC and derived in the CINCintegrated priority lists.
• Assess AT and FP as an element of any
force deployment decision. Periodically
reassess AT and FP of deployed forces.
• Assess with the DOD components their
policies and programs for the protection
of DOD personnel, their families,
facilities, and other material DOD
resources in compliance with DODD
2000.12, “DoD Combating Terrorism
P r o g r a m , ” a n d I AW D O D D
O-2000.12-H, “Protection of DoD
Personnel and Activities Against Acts of
Terrorism and Political Turbulence.”
• Annually (as part of the budget cycle)
review the adequacy of resources
proposed by the Services to determine
whether they meet DOD AT and FP
objectives. Advise the Secretary of
Defense of any changes that are needed
to meet AT and FP requirements.
• In coordination with the Service
Secretaries, the ASD(FMP), and the
combatant commanders, address AT and
FP considerations and recommend
appropriate tour lengths. Advise the
Secretary of Defense as to whether
restrictions should be placed on
accompanying family members for

personnel assigned to overseas
activities.
• Review the impact of DODD 2000.12,
“DoD Combating Terrorism Program,”
on the Unified Command Plan, issued by
the President, and the Secretary’s “Forces
for Unified Commands” Memorandum
(current edition). Recommend revisions
to these plans or DODD 2000.12, “DoD
Combating Terrorism Program,” as
required.
• Assess the implementation of terrorist
threat conditions (THREATCONs) for
uniform
implementation
and
dissemination as specified by DODD
O-2000.12-H, “Protection of DoD
Personnel and Activities Against Acts of
Terrorism and Political Turbulence,”
DODD 5025.1-M, “DoD Directives
System Procedures,” and DODD
2000.12, “DoD Combating Terrorism
Program.”
• Provide flag and/or general officers as
co-chairs for the ATCC Senior Steering
Group and ATCC, and provide
representatives to the Interagency
Working Group on Terrorism, the DOD
Worldwide AT Conference, and an
observer to the OSPG.
• Coordinate with ASD(C3I) and
ASD(SO/LIC) on sharing of terrorism
intelligence and counterintelligence data
and information on AT and FP. This
includes threats posed to DOD personnel
and assets by domestic and foreign
terrorists.
• Assess the Services’, CINCs’, and
Defense intelligence organizations’
capability to collect, evaluate, and
disseminate all relevant data on terrorist
activities, trends, and indicators of
imminent attack.

I-7

Chapter I
• Manage and administer the DOD
CTRIF.
• Review the CINCs’ information
operations and psychological operations
(PSYOP) programs for antiterrorism
content.
i. CINCs with geographic responsibilities
shall:
• Establish command policies and a
combatting terrorism program for the
protection of all assigned forces and for
those DOD elements and personnel under
the FP responsibility of the CINC as
established by MOU. This includes
family members, resources, and facilities.
This program shall include specific
prescriptive standards derived from
DODD O-2000.12-H, “Protection of
DoD Personnel and Activities Against
Acts of Terrorism and Political
Turbulence,” that address various
geographic settings and specific terrorist
threat capabilities.
• Assess and review all CINC-assigned
military forces and/or activities within,
and DOD forces and/or activities
deployed into, their geographic areas of
responsibility (AOR), including DOD
field activities and agencies that conclude
contracts within their AOR and not under
the security responsibility of the DOS.
This review may be conducted by Service
component commands or other
subordinate commands reporting to the
CINC. Relocate forces as necessary and
report pertinent actions taken for FP to
the Secretary of Defense via the
Chairman of the Joint Chiefs of Staff.
• Coordinate with the Department of State
Chiefs of Mission (COMs) in the AOR
to ensure security of all non-CINC
assigned forces by way of an MOU as
necessary.

I-8

• Provide updates to the DOD FCG stating
command travel requirements and theater
entry requirements.
• Provide AT and FP training in accordance
with DODD O-2000.12-H, “Protection
of DoD Personnel and Activities Against
Acts of Terrorism and Political
Turbulence.” Ensure that: personnel
traveling comply with the FCG;
personnel are aware of any TSAs in effect
at the time of travel; and all DOD
personnel and family members scheduled
for permanent change of station to
foreign countries receive appropriate and
required training IAW DODD
O-2000.12-H, “Protection of DoD
Personnel and Activities Against Acts of
Terrorism and Political Turbulence.”
• In coordination with Service Secretaries,
ASD(FMP), and the Chairman of the
Joint Chiefs of Staff, address AT and FP
considerations in establishing tour
lengths and determine whether
restrictions should be placed on
accompanying family members for
personnel assigned to overseas activities.
• In accordance with PPBS procedures,
identify the requirements necessary to
achieve the AT and/or FP for each activity
under the CINC’s combatant command
(command authority) or for which the
CINC otherwise has AT and/or FP
responsibility. These requirements will
be identified in such a way as to permit
their identification as the AT and/or FP
resource requirements.
• Establish command relationships and
policies for each subordinate command
to ensure effective mechanisms are in
place to protect and defend against
terrorist attack. For JTFs, report to the
Secretary of Defense via the Chairman
of the Joint Chiefs of Staff any decision
to vest operational control for AT and

Joint Pub 3-07.2

Introduction
FP matters outside the JTF commander,
and detail the reasons for the decision.
Periodically, as directed by the Chairman
of the Joint Chiefs of Staff, reassess the
appropriateness of command relationships
of existing JTFs to ensure that adequate
AT and FP measures are in place.
• Identify and disseminate to the force
providers specific area pre-deployment
training requirements that all personnel
must complete prior to arrival in theater.
Provide training requirements to Services
and agencies for all DOD personnel and
family members scheduled for
permanent change of station to the
theater. Ensure that all personnel assigned
to the headquarters receive appropriate
AT and FP training.
• Assess the terrorist threat for the theater
according to DODD 2000.12, “DoD
Combating Terrorism Program,” and
provide threat assessment information to
the Service components and Defense
agencies in theater. On the basis of the
threat assessment, identify and
recommend to the appropriate authority
those incumbents of high-risk billets and
spouses requiring AT resident training.
• Keep subordinate commanders and
COMs informed of the nature and degree
of the threat. Ensure that commanders
are prepared to respond to threat changes.

programs developed under DODD
2000.12, “DoD Combating Terrorism
Program.”
• Ensure that THREATCONs are uniformly
implemented and disseminated as
specified by DODD 2000.12, “DoD
Combating Terrorism Program,” DODD
5025.1-M, DoD Directives System
Procedures,” and DODD O-2000.12-H,
“Protection of DoD Personnel and
Activities Against Acts of Terrorism and
Political Turbulence.”
• Within the theater, through the United
States Defense Representatives and
COMs, serve as the DOD point of contact
with host-nation officials on matters
involving AT and FP policies and
measures.
• Provide a representative to the DOD
ATCC (and subcommittees, as required)
and to the DOD Worldwide AT
Conference.
• Ensure that a capability exists to collect,
evaluate, and disseminate all relevant
data on terrorist activities, trends, and
indicators of imminent attack.
• For unanticipated emergency AT and FP
requirements that Services cannot fund,
forward requirements for submission to
the CJCS CTRIF.

• Ensure that AT and FP countermeasures
• Use information operations and PSYOP
are coordinated with host-country
to support antiterrorism programs.
agencies at all levels. Ensure that the
COMs are fully and currently informed
j. CINCs with functional responsibilities
of any liaison activities relating to the shall:
security of those DOD elements and
personnel under the security
• Establish command policies and a
responsibility, but not the command, of
combatting terrorism program for the
the CINC.
protection of all assigned forces. This
includes family members, facilities, and
• Assist DOD elements, within their
other material resources. Coordinate this
geographic regions, in implementing
program with the appropriate CINC for

I-9

Chapter I
the geographic area. The geographic
CINCs’ programs shall take precedence
when a conflict in policy or programs
exist.
• Ensure all facilities are assessed in
coordination with the geographic CINCs
and Services in accordance with DODD
O-2000.12-H, “Protection of DoD
Personnel and Activities Against Acts of
Terrorism and Political Turbulence.”
• Ensure that all personnel assigned to the
headquarters receive appropriate AT and/
or FP training.
• For unanticipated emergency AT and/or
FP requirements that Services cannot
fund, ensure subordinate commands
forward requirements for potential
submission to the CJCS CTRIF.

execution for their headquarters and all
activities under their cognizance:
Consider mission, characteristics of the
activity, geographic location, and threat
condition. Establish prescriptive
standards for installations and facilities
not located on Service installations. As
appropriate, coordinate with the
applicable CINC or Service.
• Ensure that all assigned personnel
comply with the DOD FCG. Ensure that
personnel are aware of any TSAs in effect
at the time of travel. Ensure that all DOD
personnel and family members scheduled
for permanent change of station to
foreign countries receive appropriate and
required training in accordance with
DODD O-2000.12-H, “Protection of
DoD Personnel and Activities Against
Acts of Terrorism and Political
Turbulence.”

k. Directors of other Defense Agencies
and Field Activities, OSD Principal Staff
Assistants, and those that report directly
to the Secretary or Deputy Secretary of
Defense, shall:

• Provide members to the DOD ATCC
(and subcommittees as required), and
representatives to the DOD Worldwide
AT Conference.

• Utilize DODD O-2000.12-H, “Protection
of DoD Personnel and Activities Against
Acts of Terrorism and Political
Turbulence,” and DODD 5025.1-M,
“DoD Directives System Procedures,”
for the AT and FP planning and

• Identify to the Secretary of Defense, with
an information copy to the Chairman of
the Joint Chiefs of Staff, the resources
required to implement and maintain AT
and FP for their respective offices and
personnel.

I-10

Joint Pub 3-07.2

Introduction
COMBATTING TERRORISM
From the beginning of Operation DESERT SHIELD, the United States was
concerned about possible terrorist attack. Consultations and exchanges of
information among Coalition partners and other members of the UN led to the
expulsion of over 200 Iraqi diplomatic personnel, embassy staff, and
intelligence personnel from their posts throughout the world. This undoubtedly
had a disruptive effort on Iraqi terrorist operations.
Within the US Government, the National Security Council took the lead in
producing a well-founded, coordinated policy. Throughout the conflict the
Office of the Secretary of Defense met frequently in the interagency arena to
consult and formulate policy options, including employment of special
operations forces. These policy determinations involved both components of
combatting terrorism: antiterrorism, which involves defensive measures to
reduce vulnerability or individuals and property to terrorist acts; and
counterterrorism, which involves offensive measures taken to prevent, deter,
and respond to terrorism.
SOURCE: Final Report to Congress,
Conduct of the Persian Gulf War, April 1992

I-11

Chapter I

Intentionally Blank

I-12

Joint Pub 3-07.2

CHAPTER II
TERRORIST THREAT
“This country swarms with vile outrageous men / That live by rapine and by
lawless spoil.”
Christopher Marlowe
Tamburlaine the Great, ii, 2, 1587

1. Overview

Examples of objectives with which a
terrorist attack may be associated, but not
limited to, are shown in Figure II-1. Just as a
terrorist incident may have several objectives,
the tactics used may also be combined. The
more common tactics employed by
contemporary terrorist groups are listed in
Figure II-2 and discussed below.

A critical factor in understanding
terrorism is the importance of the
emotional impact of the terrorist act on an
audience other than the victim. This chapter
provides background information concerning
the terrorist threat to enable the commander
at any echelon to create and employ AT tactics,
techniques, and procedures outlined in this
a. Assassination. A term generally applied
publication. Terrorism has become a media to the killing of prominent persons and
event and, as such, a phenomenon of our symbolic enemies as well as traitors who
time. The terrorist of today will exploit defect from the group.
information operations against the United
States as much as the media will allow. News
media coverage is important to terrorists who
EXAMPLES OF
are attempting to incite public fear or gain
TERRORIST
attention for their cause. Another determinant
of tactics and target selection is the role the
OBJECTIVES
terrorist group perceives itself as playing.
Attract publicity for the
Terrorism can also be used as either an overt
group's cause
or a covert aspect of a political movement
engaged in a power struggle within an existing
Demonstrate the group's
political system. Terrorists frequently claim
power
affiliation with causes or political
organizations to give their actions a claim to
Show the existing
respectability. Operations to meet the threat
government's lack of power
may fall in both the CT and AT arenas.

2. Terrorist Tactics
Terrorist tactics vary in sophistication
according to the level of training the individual
or group has received. Categories of training
are trained (entire group has had formal
training), semi-trained (a few members have
been trained and have passed that training on
to the rest of the group), and untrained (no
members have had formal training).

Extract revenge
Obtain logistic support
Cause a government to
overreact
Figure II-1. Examples of
Terrorist Objectives

II-1

Chapter II

COMMON TERRORIST
TACTICS
Assassination
Arson
Bombing
Hostage Taking
Kidnapping
Hijacking or Skyjacking
Seizure
Raids or Attacks on Facilities
Sabotage

incidents worldwide involved the use of
explosives.
d. Hostage Taking. This usually is an
overt seizure of one or more individuals
with the intent of gaining publicity or other
concessions in return for release of the
hostage. While dramatic, hostage and hostage
barricade situations are risky for the
perpetrator.
e. Kidnapping. While similar to hostage
taking, kidnapping has significant differences.
Kidnapping is usually a covert seizure of
one or more specific persons in order to
extract specific demands. The perpetrators
of the action may not be known for a long
time. News media attention is initially intense
but decreases over time. Because of the time
involved, successful kidnapping requires
elaborate planning and logistics. The risk to
the terrorist is less than in the hostage situation.

Hoaxes

f. Hijacking or Skyjacking. Sometimes
employed as a means for escape, hijacking is
Use of Technology
normally carried out to produce a
spectacular hostage situation. Although
Figure II-2. Common Terrorist Tactics
trains, buses, and ships have been hijacked,
b. Arson. Less dramatic than most tactics, aircraft are the preferred target because of their
arson has the advantage of low risk to the greater mobility and vulnerability.
perpetrator and requires only a low level of
g. Seizure. Seizure usually involves a
technical knowledge.
building or object that has value in the eyes
c. Bombing. The improvised explosive of the audience. There is some risk to the
device (IED) is the terrorist’s weapon of terrorist because security forces have time to
choice. IEDs can be inexpensive to produce react and may opt to use force to resolve the
and, because of the various detonation incident, especially if few or no innocent lives
techniques available, may be a low risk to the are involved.
perpetrator. (However, suicidal bombing
h. Raids or Attacks on Facilities. Armed
cannot be overlooked as an employment
attacks
on facilities are usually undertaken for
method.) Other advantages include their
one
of
three
purposes: to gain access to radio
attention-getting capacity and the ability to
or
television
broadcast capabilities in order
control casualties through time of detonation
to
make
a
statement;
to demonstrate the
and placement of the device. It is also easily
government’s
inability
to secure critical
deniable should the action produce
facilities
or
national
symbols;
or to acquire
undesirable results. From 1983 through 1996,
resources
(e.g.,
robbery
of
a
bank
or armory).
approximately half of all recorded terrorist

II-2

Joint Pub 3-07.2

Terrorist Threat

Port facilities are particularly vulnerable to terrorist sabotage.

i. Sabotage. The objective in most
sabotage incidents is to demonstrate how
vulnerable society is to terrorist actions.
Industrialized societies are more vulnerable
to sabotage than less highly developed
societies. Utilities, communications, and
transportation systems are so interdependent
that a serious disruption of any one affects all
of them and gains immediate public attention.
Sabotage of industrial or commercial facilities
is one means of identifying the target while
making a statement of future intent. Military
facilities and installations, information
systems, and information infrastructures may
become targets of terrorist sabotage.
j. Hoaxes. Any terrorist group that has
established credibility can employ a hoax
with considerable success. A threat against
a person’s life causes that person and those
associated with that individual to devote time
and effort to security measures. A bomb threat
can close a commercial building, empty a
theater, or delay an aircraft flight at no cost to
the terrorist. False alarms dull the analytical
and operational efficiency of key security
personnel, thus degrading readiness.

and there is potential for the use of both
chemical and biological weapons in the future.
These types of weapons, relatively cheap and
easy to make, could be used in place of
conventional explosives in many situations.
The potential for mass destruction and the
deep-seated fear most people have of
chemical and biological weapons could be
attractive to a group wishing to make the
world take notice. Although an explosive
nuclear device is acknowledged to be beyond
the reach of most terrorist groups, a chemical
or biological weapon or a radiological
dispersion device using nuclear contaminants
is not. The technology is simple and the cost
per casualty (for biological weapons in
particular) is extremely low — much lower
than for conventional or nuclear explosives.
This situation could change as the competition
for headlines increases.

l. Environmental Destruction. Although
this tactic has not been widely used, the
increasing accessibility of sophisticated
weapons and explosives to terrorists has
the potential to threaten damage to the
environment. Examples would be
intentional dumping of hazardous
k. Use of Special Weapons. Chemical chemicals into a city’s water supply or the
weapons have been used by terrorists to date destruction of an oil tanker.

II-3

Chapter II
m. Use of Technology. Technology has
important implications for the terrorist threat
faced by DOD personnel. Infrastructure
technologies provide attractive targets for
terrorists who can apply a range of
rudimentary and advanced attack techniques
to disrupt or undermine confidence in a range
of systems. Key elements of the national
infrastructure, such as transportation,
telecommunications, energy, banking, public
health, and water supply are becoming
increasingly dependent on computerized
systems and linkages.
• These systems provide targeting
opportunities for adversaries who possess
even limited technological capabilities,
and who have the ability to identify
critical system choke points. Terrorists
can apply computer generated attacks or
more traditional means such as bombs
or physical destruction to cause systemwide malfunctions. Interdependencies
of systems, such as power and
transportation, exacerbate this
vulnerability. Significant disruption of
power grids can have a devastating
impact on air traffic control, railway
operations, port operations, and
emergency services such as fire and/or
rescue and police. Attacks such as power
outages also impact a wide segment of
the population, command significant
media attention and consequently
provide an effective means for the
terrorist to reach a “captive” audience.
• A range of technologies can also be
employed effectively by terrorists to
conduct operations. Although terrorists
to date have not demonstrated significant
technological innovation and have
largely relied on traditional attack
methods such as bombing, hostage
taking, and assaults, several factors point
to an increased likelihood of greater use
of more sophisticated technologies. First,
the wide scale proliferation of military

II-4

weapons and technologies that has
followed the collapse of the former
Soviet Union has increased the range of
weapons available on international arms
markets. Stand-off weapons such as
shoulder-fired anti-aircraft weapons,
light anti-tank weapons which have been
used in attacks against US targets in the
past, are attractive means of attack for a
terrorist since they reduce vulnerability
and increase chance of escape. Increased
availability of more powerful explosives
(such as the plastic explosive Semtex,
which is easily concealed and difficult
to detect), when combined with more
sophisticated timing devices, detonators,
and fuses, have provided the terrorist with
much more lethal bombing capabilities.
• Increasing availability of nuclear,
biological, and chemical (NBC) material,
components, and weapons raises the
specter of terrorists using these weapons
in an attack against civilian populations
or military facilities. The 1995 Tokyo
subway Sarin nerve gas attack by the
Aum Shinrikyo cult, resulting in the
death of 12 and injury of 5,500 people,
is the most vivid example of the threat
from NBC weapons. Many chemicalbiological (C-B) weapons ingredients are
commercially available, and there are
numerous reports throughout Europe of
fissile material availability on the black
market. This raises the possibility not
only of terrorist use of nuclear weapons,
but of radiological bombs that use fissile
material to contaminate targets.
• A range of commercially available
technologies can dramatically enhance
terrorist operational capability. These
include communications equipment,
encryption capabilities, surveillance
equipment, weapons, a range of
computer and information management
technologies, weapons components, and
the Internet. The ability to acquire or

Joint Pub 3-07.2

Terrorist Threat
adapt technologies can give terrorists an
edge in choosing targets and conducting
attacks as well as significantly expanding
their range of attack options.
• Technological advances also enhance
antiterrorism capabilities. Recent
research and development efforts have
focused on the following areas:
•• detection of explosives and other
weapons;
•• detection of, and defense against, C-B
agents;
•• physical protection (e.g., alarms,
barriers, access control);
•• incident response; and
•• data analysis and dissemination.
• Explosive detection technologies can be
applied for both airline security and for
fixed facilities. They detect physical,
chemical, or mechanical properties of
bombs using a variety of technologies,
from x-rays and radio waves to dogs and
“sniffer” technologies.
• Detection of C-B agents poses a
significant challenge, since almost
anyone that can brew beer can
manufacture a biological agent, and toxic
chemicals are widely available on the
commercial market. Laser technologies
have shown promise in detection of C-B
agents, and research and development
work on personnel protective equipment
and vaccines is being pursued
aggressively.
• A range of technologies is currently being
investigated to enhance physical
protection capabilities. Access control
technologies, which include a range of
personnel identification systems, metal

detectors, and closed circuit surveillance
devices are being researched and fielded
on a regular basis. Barrier technologies
are also being fielded, and enhancements
in building design to enhance bomb
resistance are being incorporated into
new and existing DOD buildings in high
threat areas.
• Incident response technologies are
developed to assist in responding to
assaults on facilities, hostage taking, or
criminal activities. Incident response
activities include disrupting the attack,
defending targets, aiding persons injured
in an attack, rescuing hostages, and
apprehending attackers. A broad range
of technologies are included in this
category such as fiber-optic and low-light
camera technologies, highly accurate
sensors, nonlethal weapons,
incapacitating agents, and software tools
for profiling terrorists and supporting
response planning.
• Effective data dissemination is a key
measure to improving antiterrorism
awareness and preparedness. The rapid
evolution of information technology has
facilitated the transfer of accurate terrorist
profiles (to include photographs) and the
ability to transfer the information
anywhere in the world quickly. Other
key AT data, such as protection
technologies and procedures, can also be
transmitted to field locations quickly and
effectively. Recent efforts have reduced
barriers between agencies on the fusion
and dissemination of AT data.

3. Terrorist Groups
A terrorist group’s selection of targets and
tactics is also a function of the group’s
affiliation, level of training, organization, and
sophistication. For several years, security
forces categorized terrorist groups
according to their operational traditions —

II-5

Chapter II
national, transnational, and international.
National groups operated within the
boundaries of a single nation. Transnational
groups operated across international borders.
International groups operated in two or more
nations and were usually assumed to receive
direction and support from a foreign
government.
Terrorist groups are
categorized by government affiliation to
help security planners anticipate terrorist
targets and their sophistication of intelligence
and weaponry. Three general terrorism
categories are shown in Figure II-3.
While the three categories broadly indicate
the degrees of sophistication that may be
expected, it is important to examine each
terrorist group on its own terms. The vast
funds available to some narco-terrorists afford
them the armaments and technology rivaling
some nation-states. Messianic religious cults
or organizations have features from all three
of the listed categories. They may be “nonstate-supported” (e.g., Japan’s Aum Shinrikyo
cult or the Abdul-Ramman group that

CATEGORIES OF
TERRORIST GROUPS

perpetrated the World Trade Center bombing),
“state-supported” (e.g., extremist factions of
HAMAS who believe violence serves their
concept of religious servitude), or “statedirected” (e.g., Hizballah is both the “Party
of God” and a religious cult organization that
employs violence in support of both religion
and politics).

4. Terrorist Organization
As with any organization, terrorist groups
develop organizational structures that are
functional for the environment in which they
operate. Because terrorists usually operate in
a hostile environment, security is the
primary consideration. As a result, the
organization of terrorist groups is usually
cellular, with each cell relatively isolated
and performing specific functions such as
intelligence gathering or logistic
operations. This type of organization protects
members of the group. In the event of
defection or capture, no one member can
identify more than a few of the others. Some
groups have multifunctional cells that
combine several skills in one operational
entity, while others create cells of specialists
that come together for an operation on an ad
hoc basis. The latter procedure is similar to
tailoring or task organizing military forces.

Non-State-Supported
A terrorist group that operates
autonomously, receiving no significant
support from any government

State-Supported
A terrorist group that generally operates
independently but receives support from
one or more governments; e.g., Popular
Front for the Liberation of Palestine

State-Directed
A terrorist group that operates as an
agent of a government, receiving
substantial intelligence, logistic, and
operational support from the sponsoring
government; e.g., Abu Nidal organization

Figure II-3. Categories of Terrorist Groups

II-6

a. Larger terrorist groups (100 or more
members) normally have a central
command and control element with one or
more subordinate elements based on
geographical regions. The regional
commands direct the actions of the operational
and support cells in their region. Smaller
groups (50 or fewer members) may have a
single command element that directly
controls all of the operational and support cells
regardless of where they are established.
b. Terrorist groups often structure
themselves in a manner similar to military
organizations, but groups vary as to the
degree of discipline and lines of authority and

Joint Pub 3-07.2

Terrorist Threat
function. Such organizations have historically
had well-defined, organized structures that
made penetration difficult. In other instances,
group dynamics, egos, and philosophical
differences override organizational principles
and create opportunities for security forces to
identify members, penetrate the organization,
and/or prevent terrorist actions. These
personal factors often cause such terrorist
groups to splinter into new faction(s) (e.g.,
Popular Front for the Liberation of Palestine,
Popular Front for the Liberation of PalestineGeneral Command, and Democratic Front for
the Liberation of Palestine), adding to the
growing list of organizational titles in world
terrorism. Along with the commonly used
deception technique of claiming credit for an
action in the name of a previously unknown
group, splintering complicates security
force intelligence efforts and creates
confusion in determining the decision
makers, thus making the organizations
generally hard to break.

c. In a broader context, terrorist
organizations, especially those with little or
no access to government resources, need a
support structure. As shown in Figure II-4,
a typical organization consists of operational
members who are functionally organized as
outlined above and have several categories
of supporters.
• At the top is the leadership that defines
policy and directs action. Typically,
leaders are completely committed to the
cause that the group purports to serve and
may be charismatic figures. If the group
is state-supported or state-directed, the
leadership will include one or more
members who have had extensive
training or education by the sponsoring
state.
• The active, operational cadre are the
doers — the men and women who carry
out terrorist attacks and train others. As

STRUCTURE PYRAMID OF A TYPICAL
TERRORIST ORGANIZATION

Hardcore
hip
Leaders

adre

Active C

upport

Active S

upport

S
Passive

Figure II-4. Structure Pyramid of a Typical Terrorist Organization

II-7

Chapter II
in the planning and leadership elements,
politically-motivated terrorist who relies
many doers are deeply committed to the
on popular support to survive.
group’s cause. The professionals who
may or may not be ideologically
d. Membership in terrorist organizations
motivated are also part of the active cadre. brings together people who commit terrorist
acts for different motivations. Not all
• Active supporters do not actually terrorists are committed to their cause by
commit violent acts but assist the ideology. Many terrorist groups are
terrorists by providing money, augmented by criminals (professionals) who
intelligence, legal or medical services, are opportunists seeking personal rather than
and/or safe houses or forged political gain or by individuals who are
documents. This includes supporters mentally disturbed. Many individuals
both within the country and in other responsible for terrorist acts could fit into
countries. Active supporters are one of three categories; crusaders,
frequently ideologically in agreement criminals, or emotionally disturbed.
with all or some of the terrorist group’s Although the criminal or emotionally
goals but may be ambivalent concerning disturbed person may not fit the strict
the use of violence. Terrorist groups definition of a terrorist, the varied motivations
recruit most of their cadre from the ranks and ambiguities of terrorism necessitate their
of the active supporters because those inclusion in the same context with the
people have proven their loyalty and, to crusader. A specific individual may exhibit
some extent, their skills over a period of traits from more than one category. Terrorists
time.
look like ordinary citizens and come from all
walks of life.
• Passive supporters are the most
difficult to define and identify. Most of
• Crusaders are ideologically inspired
these people are sympathetic to the
individuals or groups (e.g., political
terrorist group’s cause, but will not
terrorists). They believe that their cause
assume an active role due to fear of
is so noble or worthy that it may be
reprisal if exposed or identified. Family
promoted by any means, including the
and acquaintances of activists sometimes
use of terror.
fall into this category, especially in
cultural environments where family and
• Criminals or professionals commit
regional loyalties are strong. Often,
terrorist acts for personal gain rather than
passive supporters are not sympathetic
ideology. Although they often mimic the
to the terrorist cause but do not believe
crusader’s ideological conviction, their
that the government can or will protect
devotion to the cause is not the primary
them. Thus, fear rather than sympathy
motivation. Crusaders often recruit
generates support for the terrorist.
criminals for their knowledge,
Passive supporters may be ignorant to the
background, and criminal skills.
cause’s intent and use of their support;
consequently, they may unwittingly
• Emotionally or mentally disturbed
provide anonymous funding. The
people who commit terrorist acts often
terrorist group relies on passive
believe that they have some special
supporters for financial assistance,
mandate from a deity. They can range in
displays of public support, and minor
character from compulsive, minute
logistic or operational tasks. Passive
planners to impulsive, unpredictable
support is extremely important to the
doers. Additionally, emotionally

II-8

Joint Pub 3-07.2

Terrorist Threat
disturbed people often obtain some level
of enjoyment in the terrorist act. The
emotionally and mentally disturbed are
often used by terrorist organizations as
throwaway or disposable terrorists. They
usually drive the truck bomb or become
martyrs for a cause.

animosity of some groups that are committed
to different social systems.

b. Of greater importance is the
perception that the US Government can
dictate courses of action to other
governments. Terrorists think that by
pressuring the United States through acts of
terror, the US Government will bring pressure
5. Terrorist Targets —
to bear on the targeted government to comply
Americans
with terrorists’ demands. Although US
It is sometimes difficult for Americans to influence is substantial in the world
understand why terrorism seems to thrive community, this is not a policy of the US
in the environment that offers the least Government.
justification for political violence (e.g.,
democracies and ineffective authoritarian
c. Mere presence is another factor.
regimes). Equally puzzling is the relative Americans are all over the world in capacities
absence of terrorism in those societies with ranging from diplomatic service to tourists.
totalitarian and effective authoritarian This availability makes targeting Americans
governments. The reasons for this apparent easy even for relatively poorly trained nonparadox can be summarized as being a matter state-supported groups. It also adds to the
of social control. The terrorist operates chances of Americans being killed or injured
covertly. In societies where little is done
without the knowledge of internal security
agencies, covert activity for any appreciable
period of time is difficult. The same
principle applies to acquisition of weapons,
communications equipment, and explosives.
Another factor is public information. Because
the terrorist’s objectives usually include
gaining the attention of a target audience
through a violent act, the terrorist can easily
be denied that objective in an environment
where information media are tightly
controlled. Finally, in controlled societies, the
ability of terrorist organizations to create
functional networks or to move funds within
the financial system are severely hindered.
a. The reasons US interests are a target for
so many terrorist groups around the world are
complex and must be understood in order to
effectively combat terrorism in the long term.
One reason some terrorist groups target the
United States and its citizens is ideological
differences. The United States is a leading The American soldier is a symbol of US power
industrial power and the leading capitalist and presence and is consequently an inviting
state. These reasons are enough to incite the target for terrorists.

II-9

Chapter II
unintentionally. These same considerations
apply to members of the US military forces
with the added factor of “symbolic value.”
The Armed Forces are clearly visible symbols
of US projection of power and presence; thus,
terrorists find military personnel and
installations appealing targets.

6. Domestic Terrorism
a. Despite recent bombings in New York,
Oklahoma, and Atlanta, the United States has
a low rate of terrorism compared to Europe,
Latin America, Africa, or the Middle East. A
tradition of violence for political purposes
has not been a dominating means of
achieving political power. There is no
history of deep ideological commitment
justifying the taking or sacrificing of life.
Although there have been limited exceptions
to this observation — such as some Puerto
Rican independence groups — they have not
gained political acceptance at the national
level. The relatively open US political system
allows minority groups to voice concerns
legitimately through the political process.
Recently, however, groups of domestic
separatists have targeted federal institutions
for violence. These attacks indicate a growing
willingness to attack symbols of the US
Government, despite the relatively open US
political system which allows minority groups
to voice concerns legitimately through the
political process.

b. Caution must be exercised in drawing
conclusions exclusively from past
experiences. Although low levels of
domestic terrorism have occurred in the
United States to date, terrorism is still a
threat here. Radicals and religious extremist
organizations and the rise of militias constitute
a growing threat to public order. Racial
supremacists as well as the violent fringe of
environmental and antiabortion movements
have also attempted to use terrorism. Agents
of external causes and foreign powers pose a
potential threat that needs only a transoceanic
flight or border crossing to become active.
Additionally, computer hackers anywhere in
the world can send viruses via the Internet.

7. Terrorism Against the US
Military
a. Terrorism is a major factor across the
range of military operations. In the context
of peacetime military operations, terrorism
attracts a great deal of attention and few
question its actual and potential capacity to
kill and destroy. The same can be said of
terrorism as an aspect of military operations
other than war (MOOTW); however, in war
the threat of terrorism is only one of many FP
issues the commander must consider. The
same types of acts that gain attention in
peacetime military operations can hinder
military operations in war (e.g., espionage,
sabotage, vandalism, or theft).

TERRORISTS AND TOURISM
The most effective fear that the terrorist can generate for the tourist is that he
will never arrive at his destination — or will never return home alive. Convinced
of this, a supply of tourist visitors could suddenly dry up. Expensive tourist
infrastructures, depending on a constant flow of customers — margins in the
tourist industry are often surprisingly slender — then lie idle. The industry is
very labor intensive so a considerable unemployment problem is created . . . A
pistol pointed at a hostage in an aircraft, then, could be a pistol pointed at a
country’s economic heart.
SOURCE: G. Norton, quoted in Chris Ryan, Tourism, Terrorism and Violence
Research Institute for the Study of Conflict and Terrorism, September 1991

II-10

Joint Pub 3-07.2

Terrorist Threat
b. All acts of violence against the US
military are not necessarily terrorist
actions (e.g., murder or robbery). The
measures contained within this publication
provide guidance that will help protect the
military unit and Service member from these
acts of violence as well as those committed
by terrorists. In peacetime military
operations, there is no definitive method of
differentiating terrorist acts from other violent
crimes because the perpetrator’s intent may
be the only discriminator. A rule of thumb
that can be applied is if the act is obviously
related to personal gain (robbery of money

or high-value items) or personal motivation
(hatred, love, revenge) it is a crime, but
probably not terrorist-related. On the other
hand, if the act appears to adversely affect
military operations (communications
facilities, fuel storage areas) or has a high
symbolic value (headquarters, particular
individuals), the crime probably has
terrorist implications even when no claim
is forthcoming. Recognizing the difference
between acts of violence and terrorist acts is
vital in order to properly understand the
threat’s intent and determine required
defensive measures.

II-11

Chapter II

Intentionally Blank

II-12

Joint Pub 3-07.2

CHAPTER III
LEGAL CONSIDERATIONS
“US forces will act unilaterally and in concert with security partners, using all
means authorized by the President and the Congress to counter international
terrorism at home and abroad.”
National Military Strategy of the United States of America, 1997

1. General
This chapter explains the importance and
necessity for participation of a command
judge advocate at all levels of foreign and
domestic antiterrorism program planning and
implementation. It is designed to provide to
the commander of a combatant command,
subunified command, JTF, or component
command a basic understanding of relevant
legal considerations in implementing an
antiterrorism program. The policy and
jurisdictional responsibilities generally
applicable to the Armed Forces of the United
States are outlined below.

at home and abroad.
summarized as follows.

The policy is

a. All terrorist actions are criminal and
intolerable, whatever their motivation, and
should be condemned.
b. All lawful measures to prevent such
acts and to bring to justice those who
commit them will be taken.
c. No concessions to terrorist extortion
will be made, because to do so will merely
invite more terrorist actions.

d. When Americans are abducted
overseas, the United States will look to the
host government to exercise its
Over the last decade, the US Government responsibility under international law to
has developed a policy regarding terrorism protect all persons within its territories, to
that encompasses acts against Americans both include effecting the safe release of hostages.

2. US Policy

Joint forces must take lawful measures to prevent terrorist attacks.

III-1

Chapter III
The United States has made the services of
the Federal Bureau of Investigation (FBI)
available to assist in these situations.

3. Lead Agencies
See Figure III-1.

e. Close and continuous contact with
host governments will be maintained
during an incident. Intelligence and
technical support will be offered to the
maximum extent practicable.

a. The DOS is the lead agency for
response to terrorism outside the United
States, other than incidents on US flag
vessels in international waters. The
exception to this is on the Arabian Peninsula
where the DOS and Department of Defense
f. International cooperation to combat signed an MOU transferring responsibility for
terrorism remains a fundamental aspect security of forces on the Arabian Peninsula
of US policy because all governments, to the Department of Defense.
regardless of structure or philosophy, are
vulnerable; all avenues to strengthen such
b. The DOJ is the lead agency for
cooperation will be pursued.
domestic terrorism; the FBI is the lead

LEAD AGENCIES FOR TERRORIST INCIDENTS

Department of State

Outside the United States

Department of Justice
and/or Federal Bureau
of Investigation

Within the United States

Department of
Transportation and/or
Federal Aviation
Administration

US Coast Guard

Aboard aircraft in flight

Antiterrorism planning in
US ports

Figure III-1. Lead Agencies for Terrorist Incidents

III-2

Joint Pub 3-07.2

Legal Considerations
agency within the DOJ for operational to initiate the federal response actions. The
response to terrorist incidents.
NRC also provides reports and notifications
to other federal agencies as necessary.
c. The DOT and/or FAA serve as the Additionally, the USCG and FBI have
lead agency for terrorist incidents that interagency agreements to cooperate with
occur aboard an aircraft in flight within each other when coordinating CT activities
US jurisdiction. They are also responsible and general law enforcement activities.
for investigating and preventing aircraft piracy Guidance regarding the USCG’s roles can be
and for informing commercial air carriers and found in Commandant Instruction 16000.12,
their passengers regarding any terrorist threat “Marine Safety Manual,” Volume VII - “Port
information.
Security,” and Volume X - “Interagency
Agreements and Acronyms.”
d. By public law, the DOJ (specifically the
FBI) is responsible for all search and recovery
f. All other Federal agencies possessing
operations involving nuclear weapons resources for responding to terrorism are
conducted in the United States, District of linked together through agency command
Columbia, Commonwealth of Puerto Rico, centers and crisis management groups to
and US possessions and territories, including ensure effective coordination of the US
those conducted on military installations. The response.
DOS is the lead agency for acts not under FBI
responsibility.
SECTION A. LEGAL
e. The US Coast Guard (USCG) is
responsible, within the limits of US
territorial seas, for reducing the risk of a
maritime terrorist incident by diminishing
the vulnerability of ships and facilities through
implementation of security measures and
procedures. The FBI is the lead agent for
responding to terrorist actions that occur in
maritime areas subject to US jurisdiction.
Further, the USCG is responsible for AT
planning in US ports and the implementation
of a foreign port assessment program to
determine the vulnerability to terrorist attack
in certain high and medium risk ports. The
USCG is a provider of port security units
which can be employed by the CINC as AT
and FP assets. The National Terrorism Hotline
is manned by the USCG’s National Response
Center (NRC) 24 hours a day. NRC operators
take reports of actual and/or potential domestic
terrorism and link emergency calls with the
Chemical and Biological Defense Command
for technical advice on dealing with weapons
of mass destruction (WMD) and with the FBI

CONSIDERATIONS:
AUTHORITY
4. Criminal Actions
Terrorist acts are criminal acts, whether
committed during MOOTW or war; however,
jurisdiction varies in wartime. By definition,
terrorists do not meet the four
requirements necessary for combatant
status (wear uniforms or other distinctive
insignia, carry arms openly, be under
command of a person responsible for group
actions, and conduct their operations in
accordance with the laws of war). Only
combatants can legitimately attack proper
military targets. For this reason, captured
terrorists are not afforded the protection
from criminal prosecution attendant to
prisoner of war status. However, Article
III of the 1949 Geneva Conventions, which
requires that noncombatants be treated in a
humane manner, also applies to captured
terrorists.

III-3

Chapter III
5. Jurisdiction
In peacetime, terrorist acts are normally
punishable only under domestic (local) law.
However, in an internationally recognized
war or MOOTW involving the use of force
(regional or global), terrorists can be tried
under local criminal law or under military
jurisdiction by either a courts-martial or
military tribunal.

6. Commander’s Authority
A commander’s authority to enforce
security measures and to protect persons and
property is paramount during any level of
conflict. Commanders must coordinate with
their judge advocates to determine the extent
of their authority to combat terrorism.

SECTION B. LEGAL
CONSIDERATIONS:
PERMISSIBLE LIMITS OF
MILITARY SUPPORT TO
CIVIL AUTHORITIES

in carrying out their duties. The same
prohibitions apply to the use of troops to
execute Federal laws (See 41 Op. Atty. Gen.
330[1957]; 16 Op. Atty. Gen. 162[1878]).
The purpose of this restrictive legislation
is to maintain congressional control over
the manner and circumstances under
which military power could be used in
domestic affairs. Although statutory
exceptions allow the use of military forces in
some contexts, prior to committing their forces
for these purposes commanders shall consult
with their judge advocates and refer to
applicable DOD and Service Directives,
including DODD 3025.1, “Military Support
to Civil Authorities (MSCA),” DODD
3025.12, “Military Assistance for Civil
Disturbances (MACDIS),” DODD 3015.15,
“Military Assistance to Civil Authorities,” and
DODD 5525.5, “DoD Cooperation with
Civilian Law Enforcement Officials.” The
USCG is also a law enforcement agency. The
USCG is authorized to enforce or assist in the
enforcement of all Federal laws applicable on,
over, and under the high seas and waterways
subject to US jurisdiction (14 USC 2).

7. General

8. Statutory Authorizations
Allowing the Use of the
Legal and policy restrictions on the use
Military

of active duty DOD military personnel, DOD
civilian employees, and contractors such as
DOD security police for direct enforcement
of civil laws in the United States or its
possessions are contained in the Posse
Comitatus Act (18 USC 1385), other federal
statutes (10 USC 371-382), DODDs (DODD
5525.5, “DoD Cooperation with Civilian Law
Enforcement Officials”), and applicable
Service Directives (such as SECNAVINST
5820.7 series for the Navy and Marine Corps
and AFI 10-801 and AFI 10-802 for the Air
Force). These laws and policies provide a
general prohibition against the use of the
uniformed Services of the Department of
Defense, either as part of a Posse Comitatus
or in a military role other than as provided by
statute, to assist local law enforcement officers

III-4

Congress, pursuant to its constitutional
authority, has provided a broad range of
legislation authorizing the President to use
regular and National Guard forces called into
federal service to enforce the laws. To
illustrate, the President is currently
empowered to use military forces for the
following purposes:
a. To restore and maintain public order.
• To respond to requests for aid from
state governments (10 USC 331).
Whenever the President considers that
unlawful obstructions, combinations,
assemblages, or rebellion against the
authority of the United States make it

Joint Pub 3-07.2

Legal Considerations
impracticable to enforce the laws of the
United States in a state or territory by
the ordinary course of judicial
proceedings, Federal armed forces may
be used as deemed necessary to enforce
those laws or to suppress the rebellion
under the statute (10 USC 332).
• To protect constitutional rights under
certain conditions (10 USC 333). The
Fourteenth Amendment to the
Constitution forbids any state to deny
equal protection of the laws to any person
within its jurisdiction. Congress has
implemented this provision by providing
that a state will be deemed to deny equal
protection of the laws if the authorities
of the state are unable, fail, or refuse to
provide such protection whenever
insurrection, civil violence, unlawful
combinations, or conspiracies in the state
oppose, obstruct, or hinder the execution
of state and US laws so that any of the
population of the state are deprived of
rights, privileges, and immunities named
in the Constitution and secured by laws.
Thereupon, it becomes the duty of the
President to take such measures, by
intervention with Federal armed forces
or by other means necessary, to suppress
such disturbances.

• To protect Federal property and
functions (18 USC 231 and 1361 and
50 USC 797).
b. To meet specified contingencies.
• To assist the US Secret Service in
protecting the President, Vice
President, major political candidates,
and foreign dignitaries (Section 6 of the
Presidential Protection Assistance Act of
1976, Public Law No. 94-524, 90 Stat.
2475 [18 USC 3056 note 1988]).
• To assist Federal magistrates in
carrying out magisterial orders relating
to civil rights violations (42 USC 1989).
• To assist the Attorney General in
enforcing drug abuse prevention and
control (21 USC 873[b]).
• To assist the administrator of the
Environmental Protection Agency in
water pollution control functions (33
USC 1314[k][1]).
• To assist the FBI in investigations of
congressional assassination, kidnapping,
and assault (18 USC 351[g]).

c. To cope with domestic emergencies
• Whenever the President considers it and to protect public safety.
necessary to use the National Guard or
Federal armed forces under the authority
• Emergency Rule. When immediate
of the intervention statutes discussed above,
action is necessary to save lives, prevent
the President must immediately issue a
human suffering or mitigate great
proclamation ordering the insurgents to
property damage and when conditions
disperse and retire peaceably to their abodes
and time do not permit awaiting prior
within a limited time (10 USC 334). If the
approval from higher headquarters, a
proclamation is not obeyed, an executive
commander may take whatever action the
order is then issued directing the Secretary
circumstances reasonably justify.
of Defense to employ the Federal military
However, the commander must comply
forces necessary to restore law and order.
with the following:
(DODD 3025.12, “Military Assistance for
Civil Disturbances [MACDIS],” paragraph
•• Report the military response to higher
V.C.2a, as amended).
headquarters;

III-5

Chapter III
•• Document all the facts and
surrounding circumstances to meet any
subsequent challenge of impropriety (i.e.,
who, what, when, where, how, and why);
•• Retain military response under the
military chain of command; and

SECTION C. LEGAL
CONSIDERATIONS:
JURISDICTION AND
AUTHORITY FOR
HANDLING TERRORIST
INCIDENTS

9. Jurisdictional Status of
Federal Property in the
United States, Its Territories,
• Emergency situations include, but are not
and Its Possessions
•• Limit military involvement to the
minimum demanded by necessity.

limited to, the following:

In determining whether a Federal or state
law is violated, it is necessary to look not
only to the substance of the offense but to
where the offense occurs. In many cases,
the location of the offense will determine
whether the state or Federal Government will
have jurisdiction to investigate and prosecute
•• Providing emergency explosive violations. There are four categories of
ordnance disposal (EOD) service Federal territorial jurisdiction: exclusive,
(DODD 3025.15, “Military Assistance concurrent, partial, and proprietorial.
to Civil Authorities”; and
These are shown in Figure III-2 and
discussed below:
•• Using military working dog (MWD)
teams in an emergency to aid in locating
a. Exclusive jurisdiction means that the
lost persons (humanitarian acts) or Federal Government has received, by
e x p l o s i v e d e v i c e s ( d o m e s t i c whatever method, all of the authority of the
state, with no reservations made to the state
emergencies).
except the right to serve criminal and civil
• To assist the Attorney General in process. In territory that is under the exclusive
emergency situations involving chemical jurisdiction of the United States, a state has
or biological WMD (10 USC 382, 18 no authority to investigate or prosecute
violations of state law. However, the
USC 175, and 18 USC 2332c).
•• Providing civilian or mixed civilian
and military firefighting assistance where
base fire departments have mutual aid
agreements with nearby civilian
communities;

III-6

Joint Pub 3-07.2

Legal Considerations

FEDERAL TERRITORIAL JURISDICTION
CATEGORIES
Exclusive Jurisdiction
The Federal Government has received all of the authority of the state

Concurrent Jurisdiction
The Federal Government and the state each have the same authority

Partial Jurisdiction
The Federal Government exercises some authority and the state
exercises some authority

Proprietorial Jurisdiction
The Federal Government has acquired an interest in, or title to,
property but has no legislative jurisdiction over it
Figure III-2. Federal Territorial Jurisdiction Categories

Assimilative Crimes Act (18 USC 13) allows
the Federal Government to investigate and
prosecute violations of state law that occur
within the special maritime and territorial
jurisdiction of the United States.
b. Concurrent jurisdiction means that the
Federal Government and the state each have
the right to exercise the same authority over
the land, including the right to prosecute for
crimes. In territory that is under the concurrent
jurisdiction of the United States and a state,
both sovereigns have the authority to
investigate or prosecute violations of Federal
and state law respectively. In addition, the
Federal Government may prosecute violations
of state law under the Assimilative Crimes
Act.
c. Partial jurisdiction refers to territory
where the Federal Government exercises
some authority, and the state exercises some
authority beyond the right to serve criminal
and civil processes, usually the right to tax

private parties. In territory that is under the
partial jurisdiction of the United States, a state
has no authority to investigate or prosecute
violations of state law, unless that authority is
expressly reserved. Unless the state has
reserved the right to exercise criminal
jurisdiction over the property concerned, the
Federal Government may prosecute violations
of state law under the Assimilative Crimes
Act.
d. Proprietorial jurisdiction means that
the Federal Government has acquired an
interest in or title to property, but has no
legislative jurisdiction over it. In territory that
is under the proprietary jurisdiction of the
United States, the United States has the
authority to investigate and prosecute nonterritory-based federal offenses committed on
such property, such as assault on a federal
officer. This authority does not extend to
investigations and prosecution of violations
of state laws under the Assimilative Crimes
Act and Federal Crimes Act of 1970. The

III-7

Chapter III
state has the authority to investigate and Government defers to state authorities, it can
prosecute violations of state law that occur provide law enforcement assistance and
on such territory.
support to local authorities on request. The
choice between Federal or state action is
made by the prosecuting authority.
10. Federal Authority in the
However, successive prosecutions are
United States, Its
possible even where Federal and state law
Territories, and Its
proscribe essentially the same offense, without
Possessions
contravening the Fifth Amendment
There are several Federal criminal statutes prohibition against double jeopardy. Two
that may apply to terrorist activities. Some relevant factors regarding law enforcement
deal with conduct that is peculiar to terrorism, responsibility for a given incident are:
and others prescribe conduct that is criminal
for anyone but in which the terrorist may
a. The capability and willingness of state
engage to accomplish his or her purposes. The or Federal authorities to act; and
Federal law contains no special prohibition
against terrorist acts or threats, as do some
b. The importance of the state or Federal
state codes. However, the Assimilative interest sought to be protected under the
Crimes Act will allow the Federal criminal statute.
Government to investigate and prosecute
violations of state law regarding terrorist acts 12. Jurisdictional Authority
or threats that occur within the exclusive,
concurrent, or partial jurisdiction of the United
The matrix in Appendix L, “Jurisdictional
States, thereby giving the Federal Government Authority for Handling Terrorist Incidents,”
investigative and prosecutorial jurisdiction provides a summary of FBI, host-nation, and
over a wide range of criminal acts. Once a commanding officer authority and jurisdiction
violation of Federal law occurs, the in investigating or resolving terrorist incidents.
investigative and law enforcement resources
of the FBI and other Federal enforcement
SECTION D. LEGAL
agencies become available, and prosecution
CONSIDERATIONS:
for the offense may proceed through the Office
FEDERAL AGENCIES AND
of the United States Attorney General.

THE MILITARY
11.

Federal and State
Concurrent Authority

In some cases, terrorist acts may be
violations of state law as well as Federal
law. In this situation, both state and Federal
enforcement authorities have power under
their respective criminal codes to investigate
the offense and to institute criminal
proceedings. If a terrorist act is a violation of
both Federal and state law, then the Federal
Government can either act or defer to the state
authorities depending on the nature of the
incident and the capabilities of local
authorities. Even where the Federal

III-8

13.

Overview

The primary Federal organizations
dealing with terrorism management are the
National Security Council (NSC), DOS,
and DOJ.

14.

The National Security
Council

The NSC assists the President in
formulating US policy for dealing with
terrorist acts and advises the President on
terrorist threats that endanger US interests.

Joint Pub 3-07.2

Legal Considerations
15.

The Committee to Combat
Acts of Terrorism

This committee was reorganized in 1977
to coordinate, through its working group
executive committee, the activities of 31
Federal organizations. The working group
focuses primarily on the protection of
foreign diplomatic personnel in the United
States as well as American officials working
and traveling abroad. The 31 member
agencies, including the Department of
Defense, may provide assistance in the form
of terrorist incident information, technical
assistance about security precautions, public
information, and participation in education
seminars. Because the DOS has the primary
responsibility for dealing with terrorism
involving Americans abroad, it chairs this
committee. Although a foreign nation has
responsibility for responding to incidents
occurring on its territory, the Department of
Defense or other US agencies may be invited
to provide assistance if American interests are
involved. In such cases, the US COM
oversees the activities of US agencies.

16.

FBI maintains liaison with each governor’s
office. Because of the presence of concurrent
jurisdiction in many cases, the FBI cooperates
with state and local law enforcement
authorities on a continuing basis. In
accordance with the Atomic Energy Act of
1954, the FBI is the agency responsible for
investigating a threat involving the misuse of
a nuclear weapon, special nuclear material,
or dangerous radioactive material. In this
effort, the FBI cooperates with the
Departments of Energy and Defense, the
Nuclear Regulatory Commission, and the
Environmental Protection Agency as well as
several states that have established nuclear
threat emergency response plans.

18.

DODD 2000.12, “DoD Combating
Terrorism Program” prescribes that the
ASD(SO/LIC) has the lead role within the
Department of Defense in countering
domestic terrorist incidents where US forces
may be used. However the Attorney General,
through the FBI, will remain responsible for
coordinating:

Department of Justice

The DOJ is responsible for overseeing the
Federal response to acts of terrorism within
the United States. The US Attorney General,
through an appointed Deputy Attorney
General, makes major policy decisions and
legal judgments related to each terrorist
incident as it occurs.

• The activities of all Federal agencies
assisting in the resolution of the incident
and in the administration of justice in the
affected area; and
• These activities with those state and local
agencies similarly engaged.

19.
17.

Department of Defense

Federal Bureau of
Investigation

The FBI has been designated the primary
operational agency for the management of
terrorist incidents occurring within the
United States. When a terrorist incident
occurs, the lead official is generally the special
agent in charge (SAC) of the field office
nearest the incident and is under the
supervision of the Director of the FBI. The

Military Authority

See Figure III-3.
Upon notification of Presidential approval
to use military force, the Attorney General
will advise the Director of the FBI, who will
notify the SAC at the terrorist incident scene.
The Attorney General will also notify the
Secretary of Defense, who will advise the
military commander.
The military
commander and the SAC will coordinate the

III-9

Chapter III

APPROVAL FOR USE OF MILITARY FORCE

Presidential Approval

Attorney General

Director of the
Federal Bureau of
Investigation

Secretary of
Defense

Special
Agent in
Charge

Military
Commander

Jointly coordinate
transfer of control
for the operation

Figure III-3. Approval for Use of Military Force

transfer of operational control to the military
commander. Responsibility for the tactical
phase of the operation is transferred to
military authority when the SAC
relinquishes command and control of the
operation and it is accepted by the on-site
military commander. However, the SAC
may revoke the military force commitment
at any time before the assault phase if the
SAC determines that military intervention is
no longer required and the military
commander agrees that a withdrawal can be
accomplished without seriously endangering
the safety of military personnel or others
involved in the operation. When the military
commander determines that the operation

III-10

is complete and military personnel are no
longer in danger, command and control will
be promptly returned to the SAC.
For the military planner in the United States,
its territories, and its possessions, this
relationship between the DOJ and
Department of Defense requires the
development of local memorandums of
agreement or understanding between the
installation, base, unit, or port and the
appropriate local FBI office to preclude
confusion in the event of an incident. Because
of military turnover and reorganization, these
local agreements should be reviewed and
tested annually.

Joint Pub 3-07.2

Legal Considerations
20.

Military Installation
Commander’s
Responsibilities

a. Domestic Incidents. Although the FBI
has primary law enforcement responsibility
for terrorist incidents in the United States
(including its possessions and territories),
installation commanders are responsible
for maintaining law and order on military
installations. Plans should address the use
of security forces to isolate, contain, and
neutralize a terrorist incident within the
capability of installation resources. In the
United States, installation commanders will
provide the initial and immediate response
to any incident occurring on military
installations to isolate and contain the
incident. The FBI takes the following steps.

responsibility for coordinating the
Federal law enforcement response.
• If the FBI declines jurisdiction, the senior
military commander will take action to
resolve the incident.
• Even if the FBI assumes jurisdiction, the
military commander will take immediate
actions as dictated by the situation to
prevent loss of life or to mitigate property
damage before the FBI response force
arrives.
• In all cases, command of military
elements remains within military
channels.
• Response plans with the FBI and Service
agencies should be exercised annually at
the installation and base level to ensure
that the plans remain appropriate.

• The senior FBI official will establish
liaison with the command center at the
installation. If the FBI assumes
b. Foreign Incidents. For foreign
jurisdiction, the FBI official will
coordinate the use of FBI assets to assist incidents, the installation commander’s
in resolving the situation (e.g., hostage responsibilities are the same as for domestic
incidents — with the added requirement
rescue team, public affairs assets).
to notify the host nation and DOS.
• If the FBI assumes jurisdiction, the Notification to the DOS is made at the
Attorney General will assume primary geographic combatant commander level. In

Department of State embassies have the primary responsibility for
dealing with terrorism against Americans abroad.

III-11

Chapter III
all theaters, existing plans provide guidance
to the installation commander regarding
notification procedures. The DOS has the
primary responsibility for dealing with
terrorism involving Americans abroad. The
installation’s response is subject to
agreements established with the host
nation. In addition, under standing rules of
engagement, the inherent right of self-defense
still applies in situations off-base in foreign
areas. If US forces (or members thereof) are
actually under attack, they retain the inherent
right to respond with proportionate, necessary
force until the threat is neutralized. This is
providing that the host nation is unwilling or
unable to respond to the threat in sufficient
time or with the appropriate means.
• The response to off-installation foreign
incidents is the sole responsibility of
the host nation. US military assistance,
if any, depends on the applicable statusof-forces agreement (SOFA) or MOUs
and is coordinated through the US
Embassy in that country. Military forces
will not be provided to host-nation
authorities without a directive from the
Department of Defense that has been
coordinated with the DOS. The degree
of DOS interest and the involvement of
US military forces depend on the incident
site, nature of the incident, extent of
foreign government involvement, and the
overall threat to US security.

Procedures,” DODI O-2000.16, “DoD
Combating Terrorism Program
Standards,” and DODD O-2000.12-H,
“Protection of DoD Personnel and
Activities Against Acts of Terrorism and
Political Turbulence;”
•• Be coordinated with and approved by
the geographic combatant commander or
a designated representative;
•• Address the use of installation security
forces, other military forces, and hostnation resources (In many situations
through agreement with host-nation
authorities, the plan will probably evolve
into the installation having responsibility
“inside the wire or installation perimeter”
and the host nation having responsibility
“outside the wire or installation
perimeter.” The wide dispersal of work
areas, housing, support (medical, child
care, exchange, morale, welfare, and
recreation), and utility nodes (power
grids, water plants) may require US
responsibility for certain fixed-site
security outside the wire. This could be
accomplished by a quick reaction force);
•• Be coordinated by the CINC with both
host-nation and DOS officials; and
•• Be exercised annually with hostnation resources to ensure that the plan
remains appropriate.

• AT plans will:
•• Be implemented by geographic
combatant commands, subunified
commands, JTFs, and component
commands, IAW responsibilities and
procedures established in DODD
2000.12, “DoD Combating Terrorism
Program,” DODI 2000.14, “DoD
Combating Terrorism Program

III-12

• Although the installation commander may
not have security responsibility “outside the
wire,” he still maintains a security interest.
The installation commander must include
exterior terrain, avenues of approach, and
host nation security processes when
developing security plans for the
installation, regardless of who provides
exterior defense.

Joint Pub 3-07.2

CHAPTER IV
ANTITERRORISM PROGRAM; INSTALLATION,
BASE, SHIP, UNIT, AND PORT
“Night and day we chased an enemy who never awaited our approach but to
harm us, was never found sleeping. Each tree, each hole, each piece of
rock hid from our unseeing eyes a cowardly assassin, who, if undiscovered,
came to pierce our breasts; but who fled or begged for mercy if we found
him face to face.”
Unknown Creole during the Haitian War for Independence, 1793

1. Overview of Program
Concept
To meet the terrorist threat, an integrated
and comprehensive AT program must be
developed and implemented at every
echelon of command. The program is
designed to foster a protective posture in
peacetime (i.e., units performing normal
duties and serving in security assistance
organizations, peacekeeping missions, or
mobile training teams) that will carry over to
a wartime environment. Antiterrorist
measures are intended to identify and reduce
the risk of loss or damage of potential targets
and to develop procedures to detect and deter
planned terrorist actions before they take
place, thereby reducing the probability of a
terrorist event. The measures also encompass
the reactive or tactical stage of an incident,
including direct contact with terrorists to end
the incident with minimum loss of life and
property. Antiterrorism programs should be
incorporated and integrated with DODD
5160.54, “DoD Key Asset Protection Plan
(KAPP),” planning, coordination, community
cooperation, and synchronization, which is
required for every Service, installation, base,
ship, unit, and port.
a. Command and Control. When
terrorists attack DOD property or
personnel, the National Military
Command Center becomes the operations
center for the Joint Staff and the Secretary

of Defense. The command, control, and
reporting responsibilities for foreign terrorist
attacks on DOD property or personnel belong
to the geographic combatant commander
within whose AOR the attack has occurred.
For assets under the control of a functional
combatant commander (e.g., Commander in
Chief, United States Special Operations
Command) the functional combatant
commander will coordinate with the affected
geographic combatant commander for an
appropriate division of responsibilities.
Combatant command reporting will use the
National Military Command System.
Domestic terrorist attacks on DOD property
or personnel will be reported by the Service
or agency in command of the targeted
installation.
b. AT Program Elements. The AT
program stresses deterrence of terrorist
incidents through preventive measures
common to all combatant commands and
Services. The program addresses:
• Threat analysis;
• Installation or unit criticality and
vulnerability assessments;
• Creation of a threat assessment based on
the threat analysis and friendly
vulnerabilities;
• Information security;

IV-1

Chapter IV
• OPSEC;
• Personnel security;
• Physical security;
• Crisis management planning;
• Employment of tactical measures to
contain or resolve terrorist incidents;
• Continuous training and education of
personnel; and
• Public affairs planning.
c. AT Program Concept. The AT
program concept represents an integrated,
comprehensive approach within combatant

commands and the Services to counter the
terrorist threat to military installations, bases,
ships, facilities, equipment, and personnel.
Figure IV-1 illustrates this concept as it
generically applies in the Services. The
concept has two phases; proactive and
reactive (crisis management). The
proactive phase encompasses the planning,
resourcing, preventive measures,
preparation, awareness education, and
training that take place before a terrorist
incident. During this phase, consideration is
given to research (information and
intelligence gathering), development, and
implementation of preventive measures; indepth installation or facility planning (to
include consideration of installation,
infrastructure, and industrial targets,
integration of their physical assets, force

ANTITERRORISM PROGRAM CONCEPT
Planning & Training

Action

(Proactive)

(Reactive)

THREAT
ASSESSMENT
Threat
Analysis

Criticality &
Vulnerability
Assessments
Key Asset
Protection
Program

P
R
E
V
E
N
T
I
O
N

Operations
Security

Personal
Security

Authority &
Jurisdiction

Planning
Crisis
Management

Physical
Security

I
n
c
i
d
e
n
t

Performing
Crisis
Management

Awareness
Education
& Training
ADJUSTMENT
& TRAINING
After-Action Report

Figure IV-1. Antiterrorism Program Concept

IV-2

Joint Pub 3-07.2

Antiterrorism Program; Installation, Base, Ship, Unit, and Port
protection funding requirements, and security
forces to detect, assess, delay, and respond to
a threat); and awareness education and
training (specialized skills, proficiency
training, and exercising plans). The reactive
phase includes the crisis management
actions taken to resolve a terrorist incident.
d. Six-Step Concept. The following is a
brief description of the six steps in the concept.
Proactive steps are discussed in more
detail in Chapter V, “Intelligence,
Counterintelligence, and Threat Analysis.”
The crisis management phase is discussed in
Chapter VI, “Crisis Management Execution.”
• Step 1. Threat Assessment (Threat
Analysis). A threat analysis must be
current; as data for the estimation
changes, so does the risk. Of critical
importance in the threat assessment
process is the analysis of criminal
information and intelligence
simultaneously. Considering this
information within the context of the
social, economic, and political climate of
an area provides a basis to determine the
terrorist threat to an installation or unit.
Following are the basic steps in the
criminal information and intelligence
process:
•• In consonance with DODD 5240.1-R,
“Procedures Governing the Activities of
DoD Intelligence Components that
Affect United States Persons,” collecting,
evaluating, processing, and disseminating
law enforcement information,
intelligence, and counterintelligence
from all sources, including open literature
and local personnel. This is a continuous
process.
•• Formulating plans that include
preparing for on-site collection and
dissemination during an incident.

• Step 2. Threat Assessment (Criticality
and Vulnerability Assessments). The
threat assessment brings together the
threat analysis and the criticality and
vulnerability assessments. The threat
assessment concerns people or items
essential to the mission or function of the
installation, base, ship, unit, or port. It
also applies to people or facilities that,
by virtue of their symbolic value to a
terrorist group (as determined by the
threat assessment), are probable targets.
The threat assessment is provided by
the supporting counterintelligence
staff element or Service
counterintelligence analytical element
pertaining to international terrorism.
Based on the threat assessment, the
commander and staff should identify and
prioritize critical personnel, facilities, and
equipment, and should conduct a
vulnerability assessment (VA) for each
(see Appendix A, “Vulnerability
Assessment”). Assessing the
vulnerability of a unit, installation, base,
facility, material, or personnel to the
terrorist threat helps uncover and isolate
security weakness. Steps can then be
taken to reduce or eliminate the
weakness. Once the VA is completed,
steps should be taken (planning,
training and, if necessary, design or
redesign of construction projects) to
correct or reduce these vulnerabilities.
The installation commander and staff
should review this VA at least annually
to ensure that it remains accurate in view
of the changing threat, installation
makeup, and unit missions.
• Step 3. Prevention. The prevention
portion of the concept consists of four
separate but related elements that
together provide a synergistic effect in
reducing the vulnerability of an
installation, base, facility, unit, or

IV-3

Chapter IV
personnel to terrorist attack. The
elements are OPSEC, personal
security (including travel), physical
security, and awareness education and
training.
•• Operations Security. A threat
assessment may reveal security
weaknesses in day-to-day operations.
The security of communications systems,
information activities, and personnel
must be examined and weakness
corrected to include countersurveillance
techniques when necessary. Information
gleaned from communications can
provide terrorists with detailed
knowledge about potential targets.
Communications security is an integral
part of OPSEC. Terrorists are not
hampered by regulations and fully exploit
opportunities presented to them. The
objectives of OPSEC as they pertain
to AT are shown in Figure IV-2.
•• Personal Security. All military
personnel and family members, as well
as civilians connected with the military
or US Government (including contract
personnel) are potential victims of
terrorist attacks and should take the
basic security precautions outlined in
Appendix B, “Personal Protective
Measures Against Terrorism.” A VA
may identify specific personnel who, by
virtue of their rank, position, travel
itinerary, or symbolic value, may become
particularly attractive or accessible
targets. Prevention of such attacks
depends on the planning and the use of
the personal protection measures outlined
in Appendix C, “Very Important Person
and Senior Officer Security Measures.”
The most important measure is in
educating persons who are likely
targets in recognition of threat and
taking appropriate actions to reduce
their risk. Personal protection,
education, and training must emphasize

IV-4

OPERATIONS
SECURITY
ANTITERRORISM
OBJECTIVES
Deny intelligence and
information to terrorists
Avoid rigid operational routines
Be familiar with techniques used
by terrorists to collect
information
Integrate operations security
into physical security and
personal protection programs
Develop essential elements of
friendly information to facilitate
and focus efforts to deny
information to terrorists
Figure IV-2. Operations Security
Antiterrorism Objectives

how to deny the opportunity for an attack
or to elevate the risk to the attacker. The
objective of personal protection is to use
personal protection measures tailored to
the level of the threat.
•• Physical Security. Physical security
measures for an installation, base, ship,
unit, or port reduce the probability for
terrorist attack by making an attack more
difficult and increasing the risk to the
terrorist. The installation, base, ship,
unit, or port should be assessed in
terms of defensive capability. The
integrated use of intrusion detection
systems, barriers, structural hardening,
access control, and response forces are
critical to the detection of a threat,
assessment of the threat, and delaying the
threat until arrival of the security forces.
These measures are designed to prevent

Joint Pub 3-07.2

Antiterrorism Program; Installation, Base, Ship, Unit, and Port
unauthorized access to installations,
bases, facilities, equipment, materiel,
and information as well as to safeguard
against espionage, terrorism, sabotage,
vandalism, and theft. The more an
area’s physical security is enhanced,
the greater the delay to the terrorist
trying to reach the objective and the
more time security forces have to
detect, deter and/or intercept the
terrorist. Measures that enhance
physical security include intrusion
detection systems; proper use of
lighting and fences; restricting access
to an installation, base, ship, unit, port,
or facility; secure sensitive storage
locations; structural hardening; and
well-trained security personnel.
Appendix D, “Building Security
Procedures,” Appendix E, “Lock
Security,” and Appendix F, “Telephone
Call Procedures,” provide detailed
suggestions for physical security
measures. The objective of physical
security as it pertains to antiterrorism
is to identify physical vulnerabilities
of installations, personnel, and materiel
to terrorist attacks and to take
appropriate actions to reduce or
eliminate those vulnerabilities.

•• Awareness Education and Training.
(See DODI O-2000.16, “DoD
Combating Terrorism Program
Standards,” for specific guidance on AT
training standards.) The key to an
effective AT program is to develop an
awareness that is both sustained and
reinforced as the Service member
progresses from initial entry to
termination of a military career.
Appendix B, “Personal Protective
Measures Against Terrorism,” lists
personal protective measures that should
be widely disseminated periodically
throughout the Services. To complement
this, the member must be trained in the
techniques of personal protection and
security commensurate with the threat in
his or her locale. (1) Functional
Training. Personnel whose duties
require special security skills must also
be trained. For example, the following
personnel cannot perform their mission
without specialized training: members
of the reaction force; hostage negotiators;
members of the protective services
(especially those assigned to the closein protective service detail and team
leaders); drivers for high-risk personnel;
installation, base, or unit AT planners;

Physical security forces are designed to intercept terrorists
before they are able to reach their objective.

IV-5

Chapter IV
and personnel responsible for the terrorist
analysis input to the installation, base, or
unit threat analysis. In addition,
appropriate members of the installation
planning team should be trained in
installation and facility physical security
planning; such training is offered by the
US Army Corps of Engineers and the US
Army Military Police School
(USAMPS). (2) High-Risk Positions.
These are key and essential positions
that, because of grade, assignment,
travel itinerary, or symbolic value,
may make them especially attractive
or assessable terrorist targets.
Reporting to higher headquarters is an
important element in any threat or
terrorist situation. High-risk positions are
identified and so designated by the
combatant commander based on the
following considerations: (a) Location;
and (b) Security situation with respect
to work area, housing, areas of travel,
assessment of criminal threat, evaluation
of host-nation security, position
sensitivity and visibility, and anticipated
political environment. Combatant
commanders annually aggregate the list
of high-risk positions, forwarding them
through the appropriate Service
personnel channels to enable each
Service to input training requirements by
30 June. All personnel and adult family
members en route to high-risk positions
should attend the Individual Terrorism
Awareness Course conducted by US
Army John F. Kennedy Special Warfare
Center, Fort Bragg, North Carolina.
During this 1-week course, personnel
will receive instruction in defensive
driving techniques and survival shooting
as well as individual protective measures
and hostage survival. These individuals
should also attend the appropriate
Regional Orientation Course (Middle
East, Asia-Pacific, Latin America, or
Africa) offered at the US Air Force

IV-6

Special Operations School, Hurlburt
Field, Florida. Before assuming duties,
the Service member who will be required
to frequently operate a vehicle should
attend the Evasive Driving for Senior
Officers Course conducted by USAMPS,
Fort McClellan, Alabama, or (for Air
Force members) the Senior Officer
Security Seminar, Air Force Special
Investigations Academy, Bolling AFB,
Washington, DC. (3) Protective
Training. Personnel en route to potential
high threat areas should attend one of the
following courses: (a) The Dynamics of
International Terrorism Course
conducted at the US Air Force Special
Operations School at Hurlburt Field,
Florida. During this 1-week course,
personnel will receive lectures on threats
by region (Europe, Middle East, Latin
America, Asia-Pacific, and Africa), the
history and psychology of terrorism,
personnel AT measures (vehicle,
personal, airline, and physical security),
and hostage survival. (b) A Regional
Orientation Course (Middle East, Latin
America, Africa, Asia-Pacific) at the US
Air Force Special Operations School at
Hurlburt Field, Florida. These courses
provide instruction in cultural, politicalmilitary, and individual security factors
associated within the specific region. (c)
Training may also be given by
installation security personnel who have
been trained at the Antiterrorism
Instructor Qualification Course at Fort
Bragg, North Carolina, or the Force
Protection Unit Advisors Course at Fort
McClellan, Alabama.
• Step 4. Authority and Jurisdiction.
Because an understanding of who has
authority and responsibility is an essential
part of any plan, this publication includes
authority and jurisdiction as a program
element. Chapter III, “Legal Considerations,”
outlines the responsibilities of the

Joint Pub 3-07.2

Antiterrorism Program; Installation, Base, Ship, Unit, and Port
Department of Defense, DOJ, DOT, commander directs functions to be performed
USCG, and DOS in terrorist incidents. as shown in Figure IV-3.
• Step 5. Planning Crisis Management.
The establishment of a mechanism to
respond to a terrorist incident is an
essential element of the AT program.
Normally, the installation, base, or unit
commander identifies an office or section
or designates personnel from various
sections who act as the principal planning
agency for special threats, and who
comprise the operations center during an
actual crisis. This office creates a crisis
management plan to meet the threat (see
Appendix G, “Crisis Management Plan
Format”). Crisis management planning
must address the activation and
responsibilities of local resources and
provide mechanisms to obtain the support
of resources not under local control (e.g.,
public affairs officer [PAO], legal,
medical, and aviation resources, and
EOD). A detailed checklist is provided
in Appendix H, “Crisis Management
Plan Checklist.”
• Step 6. Performing Crisis Management
Operations. As the threat increases,
a series of graduated DOD
THREATCONs dictate prescribed
actions (DODD 2000.12, “DoD
Combating Terrorism Program”).

b. Preventive Planning. Installation
commanders with tenant command
representation form a preventive planning
organization. The planning organization is
normally composed of those individuals who
compose the operations center during crisis
management, as well as additional staff
representation from special offices such as the
budget or civilian personnel offices. The
planning organization will establish a threat
committee to assess current threat information.
A threat assessment should be conducted at
least annually. These individuals are
responsible for the security and protection of
the installation, and an effective AT program
is a critical element of this effort. The
preventive planning organization should
include staff from operations, intelligence,
counterintelligence, law enforcement and/or
security forces, engineers, legal, public affairs,
and an NBC representative to the preventive
and crisis management committee. This
organization should consider the installation
from an AT perspective to assess the threat,
integrate the installation’s physical features
with its security force capabilities, develop
plans to compensate for weaknesses, and
recommend enhancements (including
education and awareness programs) that
reduce installation vulnerabilities and improve
detection and assessment capabilities.

2. Implementing the Concept
a. Installation Commanders. Commanders
directly responsible for operating bases, ships,
ports, stations, facilities, and centers in the
United States and foreign areas are termed
installation commanders. These individuals
are responsible for the overall security and
protection of the installation and personnel
by establishing AT programs. This
responsibility includes the security of
personnel, equipment, materiel, and facilities.
To implement the AT program, the installation

c. Crisis Management Planning.
Installation commanders designate a specific
office or selected staff members (often the
military law enforcement authority or
operations staff agency) to form an
organization to plan and coordinate the
command’s AT efforts during training and
to serve as the operations center during
training exercises and actual crises. Because
the members of this organization are also
members of the preventive planning
organization, the organization knows the key

IV-7

Chapter IV

ANTITERRORISM PROGRAM FUNCTIONS
FOR INSTALLATION COMMANDERS
Command
Preventive Planning

Crisis Management Planning

Awareness
Training

Communications

Awareness
Drills and
Exercises
Training

Operations
Security

Awareness
Personal
Protection
Training

Physical
Security

Awareness
Operational
Training
Control

Awareness
Logistics
Training

Command

Awarenes
Post-Incident
sProcedures
Training

Special
Response
Force
Commitment

Initial
Awarenes
sResponse
Training
Force

Special
Response
Force
Augmentation

Figure IV-3. Antiterrorism Program Functions for Installation Commanders

infrastructures and assets critical to the
installation’s operation. To be successful,
members must be predesignated, train
together, and be prepared to perform
individual and collective crisis management
missions under the control of the installation
commander or the designated representative.
Tenant commanders may also serve or have
staff representation in this organization. The
most common participants in the crisis
management organization are listed in Figure
IV-4.
• Operational
Control
and
Coordination Center (Operations
Center). A predesignated location for

IV-8

the operations center must be readily
available. The operations center
functions by predetermined standing
operating procedures (SOPs). As
dictated by these SOPs, predetermined
and adequate communications systems
must be made available at the location.
Operational SOPs can be stressed and
validated during normally scheduled AT
evaluation exercises.
• Operational Response Forces. The
installation commander predesignates
and trains personnel to serve as a
response force at the incident location.
This force is trained and equipped to

Joint Pub 3-07.2

Antiterrorism Program; Installation, Base, Ship, Unit, and Port

CRISIS MANAGEMENT
PARTICIPANTS
-Personnel
-Intelligence and/or Security
-Operations
-Counterintelligence
-Logistics
-Civil Affairs
-Special Staff Sections:
--Military Law Enforcement
Authorities
--Legal
--Public Affairs
--Transportation
--Aviation
--Communications
--Engineers and/or Utilities
--Medical Activity and/or Red
Cross
--Chaplain
--Psychologist
--Explosive Ordnance
Disposal
-Major Tenant Commands
-Local Investigative Field
Office (e.g., Criminal
Investigation Division,
Naval Criminal Investigative
Service Command
-Civilian Authorities and/or
Representatives
-Federal, State, Local,
or Host-Nation Police
-Host-Nation Military
and Intelligence
Activities at Overseas
Locations
Figure IV-4. Crisis Management
Participants

Respective Service resource
management offices will provide points
of contact for coordinating access to these
funds. Figure IV-5 illustrates normal
functions performed by the operational
response force.
d. Tenant and Transient Commanders.
Commanders who are not under the control
of the installation commander but are assigned
or attached to the installation are tenant
commanders. If all forces are from one
Service, then Service doctrine for base defense
will apply. If the installation has tenants from
more than one Service, the provisions of Joint
Pub 3-10, “Doctrine for Joint Rear Area
Operations,” Chapter II, Paragraph 3b apply.
Tenant commanders are still responsible for
their command’s physical security and for
terrorism planning not provided by the
installation or base commander. If the forces
concerned meet the definition of transient
forces, the provisions of Joint Pub 0-2,
“Unified Action Armed Forces (UNAAF),”
Chapter IV, Paragraph 1b apply.

3. Threat Conditions
The mechanism by which the AT program
operationally increases or decreases protective
measures is the DOD THREATCON
System (Appendix J, “THREATCON
System”). As a DOD-approved system, the
terms, definitions, and prescribed security
measures are intended to facilitate interService coordination, reporting, and support
of US military AT activities. Selection of the
appropriate response to terrorist threats
remains the responsibility of the commander
having jurisdiction or control over threatened
facilities or personnel.

isolate and contain the incident until
representatives from the FBI or host- 4. Combatant Commander’s
nation forces arrive at the scene and, if
Responsibility
necessary, resolve the incident. Force
protection funds are available within the
The geographic combatant commander
Department of Defense for installations designates a staff office, usually in the
to train and equip these response forces. Operations Division, law enforcement, or

IV-9

Chapter IV
ON-SITE OPERATIONAL RESPONSE STRUCTURE
SECURITY

REACTION/
MANAGEMENT

SUPPORT

Military Police/Security Control Staff
Forces (on duty/on call)

Logistics
Personnel
Intelligence
Counterintelligence

Police Reaction/Assault Negotiations Personnel
Force

Fire Department

Guard Forces

Liaison Personnel

Explosive Ordnance
Disposal

Auxiliary Security
Forces

Public Affairs

Medical Personnel

Staff Judge Advocate

Communications
Personnel

Figure IV-5. On-Site Operational Response Structure

security section, to supervise, inspect,
test, and report on the base AT programs
within the theater. This staff section also
coordinates with host-nation authorities and
US embassies. Simultaneously, the
Intelligence Directorate of a joint staff (J-2),
under the combatant commander’s authority,

IV-10

disseminates intelligence on terrorist activities
to the subordinate commands to ensure that
the AT measures are appropriate to the threat.
The manner in which the geographic
combatant commander places importance on
these staff functions usually has a direct affect
on the AT readiness of subordinate commands.

Joint Pub 3-07.2

CHAPTER V
INTELLIGENCE, COUNTERINTELLIGENCE,
AND THREAT ANALYSIS
“. . .we must recognize the appearance of a new and particularly dangerous
form of attack. I refer to subversive insurgency, supported from the outside
against legitimate free governments.”
General Maxwell Taylor

SECTION A.
INTELLIGENCE AND
COUNTERINTELLIGENCE
1. Intelligence and
Counterintelligence Support
Intelligence and counterintelligence are the
first line of defense in an AT program. A
well-planned, systematic, all-source
intelligence and counterintelligence program
is essential. The role of intelligence and
counterintelligence is to identify the threat,
provide advance warning, and disseminate
critical intelligence in a usable form for the
commander. Additionally, counterintelligence
provides warning of potential terrorist
attacks and provides information for CT
operations. This chapter provides the
reader with the elements of the intelligence
cycle that have particular importance in a
viable AT program. Effective intelligence
and counterintelligence support requires
effort, planning and direction, collection
and analysis, production, investigations,
and dissemination. The entire process is
important in providing decision makers
with information and timely warnings upon
which to recommend AT actions.

2. Sources

SOURCES OF
INTELLIGENCE AND
COUNTERINTELLIGENCE
OPEN-SOURCE
INFORMATION
News media, hearings,
publications, reference
services, private data services,
Internet
CRIMINAL
RECORDS
Collection, retention, and
dissemination regulated by law
enforcement channels
GOVERNMENT
INTELLIGENCE
Distributed on a need-to-know
basis throughout the Services
LOCAL
INFORMATION
Service member, civil servant,
family member, individuals with
regional knowledge

The primary sources of intelligence and
Figure V-1. Sources of Intelligence
and Counterintelligence
counterintelligence for the AT program are
open-source information, criminal records,
a. Open-Source Information. This
government intelligence, and local information is publicly available and can be
information. (See Figure V-1.)
collected, retained, and stored without

V-1

Chapter V
special authorization. The news media are
excellent open sources of information on
terrorism. The news media report many major
terrorist incidents and often include in-depth
reports on individuals, groups, or various
government counterstrategies. Government
sources include congressional hearings;
publications by DIA, FBI, the Central
Intelligence Agency (CIA), and DOS; and the
national criminal justice reference services.
Additionally, there are private data services
that offer timely information on terrorist
activities worldwide. Terrorist groups and
their affiliates may also have manuals,
pamphlets, and newsletters that reveal their
objectives, tactics, and possible targets. Open
sources are not a substitute for classified
capabilities, but they can provide a valuable
foundation and context for rapid orientation
of the analyst and the consumer and for the
establishment of collection requirements
which take full advantage of the unique access
provided by classified sources.
b. Criminal Records. Both military and
civil law enforcement agencies collect
criminal records. Because terrorist acts are
criminal acts, criminal records are a major
source for terrorist intelligence. Commanders
must work through established law
enforcement liaison channels because the
collection, retention, and dissemination of
criminal records are regulated. Local military
criminal investigative offices of the US Army
Criminal Investigations Command
(USACIDC), Naval Criminal Investigative
Service (NCIS), Air Force Office of Special
Investigations (AFOSI), and Headquarters,
US Marine Corps, Criminal Investigations
Division, maintain current information that
will assist in determining the local terrorist
threat.
c. Government Intelligence. The
Community Counterterrorism Board is
responsible for coordinating the national
intelligence agencies concerned with
combatting international terrorism. These

V-2

agencies include the CIA (lead agency), DIA,
National Security Agency, DOS, DOJ, FBI,
the Department of Energy, the DOT, USCG,
FAA, Federal Communications Commission,
and the Department of Defense. Service
intelligence and counterintelligence
production organizations that compile
comprehensive intelligence and
counterintelligence from these agencies for
distribution on a need-to-know basis
throughout the Services include: the Army
Counterintelligence Center; the Navy
Antiterrorism Alert Center; Headquarters, US
Marine Corps, Counterintelligence; and
Headquarters, AFOSI. In combatant
commands, the J-2 is responsible for the
integration of intelligence policy issues across
the command staff. The counterintelligence
support officer (CISO) provides
counterintelligence interface between the
combatant command, the component
commands, and the Joint Staff.
d. Local Information. Other valuable
sources of information are the individual
Service member, civil servant, family member,
and individuals with regional knowledge such
as college faculty or members of cultural
organizations. Local crime or neighborhood
watch programs can also be valuable sources
of information and can serve as a means to
keep individuals informed in dispersed and
remote areas. Intelligence exchanges with
local government agencies through
cooperative arrangements can also augment
regional information.

3. Responsibilities of US
Government Lead Agencies
a. General. The FBI is responsible for
collecting and processing domestic
terrorist information. Overseas, terrorist
intelligence is principally a CIA
responsibility, but the DOS, DIA, and host
nation are also active players. Military
intelligence activities are conducted in
accordance with Presidential Executive

Joint Pub 3-07.2

Intelligence, Counterintelligence, and Threat Analysis
SHINING PATH
Shining Path (in Spanish, Sendero Luminoso) sprung up in the isolated Andean
department of Ayacucho, one of the poorest regions of Peru. Its roots were
embedded in the Sino-Soviet split of 1963, when a small circle of university
lecturers led by Abimael Guzman formed a core group within the break-away,
pro-China faction of the Peruvian Communist Party.
The faction’s ideology is an idiosyncratic mixture of the theories of Marx, Lenin
and Mao, mainly Mao, knotted together by Guzman in accordance with his
analysis of the history and social realities of Peru. In claiming to be the “fourth
sword” of communism, Guzman conceives himself as carrying on where Marx,
Lenin and Mao left off, partly intellectually, but mainly in being at the vanguard
of international communist revolution, which he regards as a scientifichistorical inevitability temporarily betrayed by revisionists in the hands of
reactionary imperialists. Guzman’s achievement rests in molding a cohesive
body of thought sufficiently relevant to Peru for it to have inflamed university
lecturers, industrial workers and illiterate peasants alike.
Shining Path divides combat into four forms: “armed” propaganda such as
slogan painting, enforced radio broadcasts and street rallies; sabotage aimed
at suffocating the state economy; “selective” killings, targeting people in key
positions opposed to them, whether state authorities, political leaders, priests,
businessmen or, in their context of being “government collaborators,” foreign
and local aid workers; and guerrilla warfare to take on the security forces and
army-backed peasant militia.
SOURCE: Simon Strong
Shining Path: A Case Study in Ideological Terrorism
Research Institute for the Study of Conflict and Terrorism, April 1993

b. Responsibilities of Intelligence
Activities.

command’s AOR. This network is the
backbone
for
communicating
intelligence and counterintelligence
information, advisories, and warning of
terrorist threats throughout the region.

• The
geographic
combatant
commander, through the commander’s
J-2 Joint Intelligence Center and the
CISO and in consultation with DIA,
CIA, embassy staff, country team, and
applicable host-nation authorities,
obtains intelligence and
counterintelligence specific to the
operational area and issues intelligence
and counterintelligence reports,
advisories, and assessments to the units
within the combatant command’s control
or operating within the combatant

• DODD 2000.12, “DoD Combating
Terrorism Program,” tasked the
Secretaries of the Military
Departments to ensure that a
capability exists to collect, receive,
evaluate from a Service perspective,
and disseminate all relevant data on
terrorist activities, trends, and
indicators of imminent attack. To
accomplish this task, each Secretary
appoints a military intelligence or
counterintelligence agency (US Army
Intelligence and Security Command,

orders, Federal law, SOFAs, MOUs, and
applicable Service regulations.

V-3

Chapter V
NCIS, AFOSI) to conduct intelligence
and counterintelligence activities directed
against terrorists and to detect, neutralize,
or deter terrorist acts. To accomplish this
mission, the Military Department
intelligence agency establishes, as
needed, counterintelligence offices on an
area basis to collect and disseminate
information to combatant commanders.
Each Military Department intelligence
agency is responsible for the following:
•• Provides overall direction and
coordination of the Service
counterintelligence effort.
•• Operates a 24-hour operations center
to receive and disseminate worldwide
terrorist threat information to and from
the combatant command J-2s, applicable
Service staff elements, subordinate
commands, and national agencies.
•• Provides Service commanders with
information on terrorist threats
concerning their personnel, facilities, and
operations.
•• With the FBI or host-nation
authorities, investigates terrorist incidents

for intelligence, counterintelligence, and
force protection aspects.
•• Provides terrorist threat information
in threat briefings.
•• Conducts liaison with representatives
from Federal, state, and local agencies
as well as host-nation agencies to
exchange information on terrorists.
•• Provides international terrorism
summaries and other threat information
to supported commanders. On request,
provides current intelligence and
counterintelligence data on terrorist
groups and disseminates time-sensitive
and specific threat warnings to
appropriate commands.
• Investigative Agencies. Service
criminal investigative services (e.g.,
USACIDC, NCIS, AFOSI) collect and
evaluate criminal information and
disseminate terrorist-related information
to supported installation and activity
commanders as well as to the Service
lead agency. As appropriate, criminal
investigative elements also conduct
liaison with local military police or

Success in thwarting terrorist activities requires a coordinated
intelligence effort from several US government agencies.

V-4

Joint Pub 3-07.2

Intelligence, Counterintelligence, and Threat Analysis
security forces and civilian law
enforcement agencies.
• Intelligence staff elements of
commanders at all echelons will:
•• Promptly report all actual or
suspected terrorist incidents, activities,
and early warnings of terrorist attack to
supported and supporting activities, the
local counterintelligence office, and
through the chain of command to the
Service lead agency.
•• Initiate and maintain liaison with the
security forces or provost marshal’s office,
local military criminal investigative offices,
local counterintelligence offices, security
offices, host-nation agencies, and (as
required or allowed by law or policy) other
organizations, elements, and individuals.
•• In cooperation with the local
counterintelligence offices, develop and
present terrorism threat awareness briefings
to all personnel within their commands.

•• Report all actual or suspected terrorist
incidents or activities to their immediate
commander, supporting military law
enforcement office, other supported
activities, local counterintelligence
office, and local military criminal
investigation office.
•• Conduct regular liaison visits with the
supporting military law enforcement
office, counterintelligence office, and
local criminal investigation office.
•• Coordinate with the supporting
military law enforcement office and
counterintelligence offices on their
preparation and continual updating of the
threat assessments.
•• Assist in providing terrorism threat
awareness training and briefings to all
personnel and family members as
required by local situations.

4. Information Requirements

To focus the threat analysis, intelligence
• Law enforcement staff elements will and counterintelligence officers develop
be responsible for the following:
information requirements (IRs) for
identifying potential terrorist targets based
•• Report all actual or suspected terrorist on existing knowledge of an organization.
incidents or activities to their immediate Terrorist group IRs are shown in Figure V-2.
commander, supported activities, and
Service lead agency through established
SECTION B. THREAT
reporting channels.

ASSESSMENT

•• Initiate and maintain liaison with local
counterintelligence offices and military
criminal investigative offices.

5. Preparation of Threat
Analysis

•• Maintain liaison with Federal, hostTerrorist threat analysis is a continual
nation, and local law enforcement process of compiling and examining all
agencies or other civil and military AT available information in order to identify
terrorist targeting of US interests. A
agencies as appropriate.
vulnerability analysis is a continual process
• Installation, base, ship, unit, and port of compiling and examining information on
security officers will be responsible for the security posture of a facility. The threat
analysis is then paired with the facility’s
the following:

V-5

Chapter V

INFORMATION REQUIREMENTS
Organization, size, and composition of group
Motivation
Organization's long- and short-range goals
Religious, political, and ethnic affiliations
International and national support; e.g., moral, physical, financial
Recruiting methods, locations, and targets; e.g., students
Identity of group leaders, opportunists, and idealists
Group intelligence capabilities and connections with other terrorist
groups
Sources of supply and support
Important dates
Planning ability
Internal discipline
Preferred tactics and operations
Willingness to kill
Willingness for self-sacrifice
Group skills (demonstrated or perceived); e.g., sniping, demolitions,
masquerade, industrial sabotage, airplane or boat operations,
tunneling, underwater, electronic surveillance, poisons or
contaminants
Equipment and weapons (on-hand and required)
Transportation (on-hand and required)
Medical support availability
Means and methods of command and control
Means and methods of communicating to the public
Figure V-2. Information Requirements

V-6

Joint Pub 3-07.2

Intelligence, Counterintelligence, and Threat Analysis
vulnerability analysis to create the threat and
vulnerability assessment. Threat analysis is
an essential step in identifying probability
of terrorist attack. To enhance this capability
to collect and analyze information from many
sources, DIA maintains a terrorism data base
on the Migration Defense Intelligence Threat
Data System and the combatant command’s
J-2; the CISO, in consultation with DIA,
focuses this data base information and
regional information toward the intelligence
and counterintelligence needs specific to the
security of the command. Country threat
assessments and information about terrorist
organizations, biographies, and incidents in
the data base are disseminated to the
commands and Services. Commands at all
echelons then augment or refine the DIA’s
analyses to focus on their area of interest. This
process is operative across the range of
military operations, promotes coordination
between all levels of the intelligence,
counterintelligence, and law enforcement
communities, broadens acquisition channels,
and enhances timely distribution of
information to the supported commander.

to the user depends not only on efficient
collection and processing, but also on the
ability to organize, store, and rapidly
retrieve this information. This capability,
coupled with early warning, careful
observation, and assessment of threat activity,
enhances the probability of accurately
predicting the types and timing of terrorist
attacks.
c. Commanders must carefully exercise
judgment in estimating both the existing
terrorist threat and the need for changes
in antiterrorism measures. Commanders
should consider the following key questions:
• What has changed (mission, political
climate, installation and unit personnel
or equipment, terrorist capabilities)?
• What affect will the changes have on the
security posture?
Extraordinary security measures, unless
part of a deliberate deception during critical
or high-threat situations, draw attention and
detract from mission accomplishment.
Sound physical security, personnel who are
aware, an accurate threat assessment, and
well-rehearsed response plans reduce the
probability of a successful terrorist venture.
The aim is to make an attack too difficult or
the level of risk unacceptable to the terrorist.
However, the ability of the terrorists to react
quickly and adapt swiftly in modifying their
own tactics, techniques, and procedures
cannot be overlooked.

a. Several factors complicate intelligence
and counterintelligence collection and
operations. The small size of terrorist groups,
coupled with their mobility and cellular
organization, make it difficult to identify the
members. Unlike other criminals, terrorist
cadres often receive training in
counterintelligence and security measures
from foreign intelligence agencies or other
terrorists. Additionally, the traditional
orientation of police organizations is toward
individual criminals, while military
d. A threat analysis should be written to
intelligence organizations focus on the factors below:
conventional forces. Terrorist activity,
therefore, requires some degree of
• Factor 1, Existence: A terrorist group
reorientation for police and military
is present, assessed to be present, or able
intelligence and counterintelligence
to gain access to a given locale.
collection and operations.
• Factor 2, Capability: The acquired,
b. The ability of an intelligence system
assessed, or demonstrated level of
to provide critical and timely information
capability to conduct terrorist attacks.

V-7

Chapter V
• Factor 3, Intentions:
Recent
demonstrated anti-US terrorist activity,
or stated and/or assessed intent to
conduct such activity.

THREAT LEVEL
CRITICAL

• Factor 4, History: Demonstrated
terrorist activity over time.
• Factor 5, Targeting: Current credible
information on activity indicative of
preparations for specific terrorist
operations and/or specific intelligence
which shows that an attack is imminent.
• Factor 6, Security Environment: The
internal political and security
considerations that impact on the
capability of terrorist elements to carry
out their operations.
e. To determine the level of threat, see
Figure V-3.

6. Preparation of Criticality and
Vulnerability Assessments
Having obtained a threat analysis, the
commander and staff proceed to complete the
threat assessment by conducting the
criticality and vulnerability assessments.
This process considers the following:
a. Mission. A review and analysis of the
mission of the installation, base, ship, unit,
or port in relation to the terrorist threat. The
review should assess the cost of AT measures
in terms of lost or reduced mission
effectiveness. Often the best operational
method and routine may be the worst to
counter potential terrorist activities. It should
then assess the level of acceptable risk to
facilities and personnel given the estimated
erosion of mission effectiveness. This review
and analysis is performed routinely and
particularly for deployment.
b. Installation, Base, Ship, Unit, or
Port Assessment. This step combines the

V-8

Factors 1, 2, and 5 are present. Factors
3 or 4 may or may not be present

HIGH
Factors 1, 2, 3, and 4 are present

MEDIUM
Factors 1, 2, and 4 are present. Factor 3
may or may not be present

LOW
Factors 1 and 2 are present. Factor 4
may or may not be present

NEGLIGIBLE
Factors 1 and 2 may or may not be
present
Figure V-3. Threat Level

results of the following considerations to
create the installation, base, ship, unit, or
port assessment. The assessment provides
the staff with the overall vulnerability to
terrorist attack. The staff then develops
the crisis management plan (see Appendix
G, “Crisis Management Plan Format”)
from this assessment. The crisis
management plan addresses all terrorist
threat levels regardless of the present level.
THREATCONs (see Appendix J,
“THREATCON System”) are then applied
in accordance with the local threat. The
considerations are as follows:
• Vulnerability. The VA is a self-assessment
tool. The installation, base, ship, unit, or
port uses the VA to evaluate its vulnerability
to terrorist attack. The more vulnerable an
installation, base, ship, unit, or port is, the
more attractive it becomes to terrorist attack.
Appendix A, “Vulnerability Assessment,”

Joint Pub 3-07.2

Intelligence, Counterintelligence, and Threat Analysis
provides a guide to developing an
assessment capability.

event of fire, multiple bombings, or
other terrorist acts.

• Criticality. The criticality assessment
identifies key assets and infrastructures
located on and adjacent to the
installation, base, ship, unit, or port, such
as the existence of symbolic targets that
traditionally appeal to a specific terrorist
group (e.g., headquarters, buildings and
monuments). It addresses the impact of
temporary or permanent loss of key
assets or infrastructures to the ability of
the installation, base, ship, unit, or port
to perform its mission. The staff
determines and prioritizes critical assets.
The commander approves the prioritized
list. The assessment:

• Damage. The damage assessment
determines the ability of the
installation, base, ship, unit, or port
to plan for and respond to a terrorist
attack against key assets and
infrastructures.
• Recovery Procedures. The recovery
procedures assessment determines the
capability to recover from the
temporary or permanent loss of key
assets and infrastructures. Based on
this assessment, the staff establishes
recovery procedures to ensure the
continued ability to perform the
mission.

•• Selects key assets;

7. Drills and Exercises
•• Determines whether critical functions
can be duplicated under various attack
Multi-echelon wargaming of possible
scenarios;
terrorist attacks is the best test, short
of an actual incident, to analyze the
•• Determines time required to duplicate ability of an installation, base, ship, unit,
key assets or infrastructure efforts if or port to respond. Drills and exercises
temporarily or permanently lost;
test suspected vulnerabilities and AT
measures. These exercises and drills also
•• Determines vulnerability of key assets train the staff as well as reaction force
or infrastructures to bombs, vehicle leadership and help maintain a valid
crashes, armed assault, and sabotage; and threat assessment by identifying and
adjusting to changing threat capabilities
•• Determines priority of response to as well as installation, base, ship, unit,
key assets and infrastructures in the or port vulnerabilities.

V-9

Chapter V

Intentionally Blank

V-10

Joint Pub 3-07.2

CHAPTER VI
CRISIS MANAGEMENT EXECUTION
“If historical experience teaches us anything about revolutionary guerrilla
war, it is that military measures alone will not suffice.”
BGen S.B. Griffith, USMC
Introduction to Mao Tse-tung on Guerrilla Warfare, 1961

1. General
Chapter IV, “Antiterrorism Program;
Installation, Base, Ship, Unit, and Port,”
structured the framework for an integrated AT
program. This chapter provides commanders
with a specific view of the program as an
incident occurs. When the program is
challenged, crisis management execution
requires special considerations, which are
shown in Figure VI-1.

2. Initial Response
Either on-duty military law enforcement
patrols or guard personnel usually provide
initial response to a terrorist attack. The
initial response force is under the control
of the on-scene senior officer or
noncommissioned officer or senior enlisted
person who has assumed responsibility. Once
the initial response force has responded to the
incident and determined the circumstances,
the installation commander activates required
forces and begins notification procedures to
military and civilian authorities.
a. Initial Response Force. The initial
response force immediately identifies and
reports the nature of the situation, isolates
the incident, and contains the situation until
relieved by the reaction force commander.
Initial response force actions are critical. Each
shift of the daily security force must have
trained personnel who are aware of the threat
and are capable of reacting promptly to any
new development. For example, if the attack
is a bombing, ambush, assassination, or
firebombing, the terrorists may escape before

additional forces arrive. In these cases, the
initial response force provides medical aid,
seals off the crime scene, and secures other
potential targets in case the initial attack was
a diversionary tactic. If the event is a hostage
or barricade situation, the initial response force
seals off and isolates the incident scene to
ensure that no one enters or leaves the area.
The initial response force must also be
prepared to locate witnesses and direct them
to a safe location for debriefing. For foreign
incidents, the initial response force must be
prepared to interface with host-nation police
or military forces that may also be responding
to the incident.
b. Installation, Base, Ship, Unit, or Port
Commander. The commander, depending
upon established SOPs, activates the
command center, notifies specialized
response forces, and immediately reports
the incident to the appropriate superior
military command operations centers, military
investigative agency, FBI, civilian authorities
and, if a foreign incident, to host-nation
authorities as required.
c. The Operations Center. The
operations center serves as the command
post at a predetermined location.
Communications are immediately established
with the initial response force containing the
situation, the specially trained operational
response force preparing to take over or
augment the initial response force, and other
critical participants as predesignated in the
operational center’s SOPs. There are usually
three standard secure communications
circuits: command net (administrative

VI-1

Chapter VI

CRISIS MANAGEMENT
EXECUTION
CONSIDERATIONS

Awareness of the possibility
of multiple incidents or
diversionary tactics
Activation of required
resources by combatant
commander and base under
attack
Notifications to the
combatant command,
appropriate military
investigative agency, FBI, and
host-nation officials
Exercise of the public affairs
officer's role with news
media
Negotiation, if the situation
requires it
Implementation of tactical
measures to contain or
defeat the threat
Preparation of after-action
measures to protect the
evidence, handle captured
personnel, identify and
process hostages, document
actions for use in
prosecution, and identify
needed changes to the
existing antiterrorism plan
Figure VI-1. Crisis Management
Execution Considerations

VI-2

matters, support, routine traffic), tactical net
(operations), and intelligence net. The tactical
net may be divided in order to accommodate
the myriad of security activities that transpire
on a large military installation during an
emergency situation. Ideally, static posts
should be on one tactical net, the mobile
patrols on another, and other patrols unique
to the installation on yet another frequency.
If necessary, a dedicated net for negotiations
may be necessary if a landline cannot be
established with the terrorists.
d. Confirmation. Because jurisdiction
depends on whether the crime is a terrorist
incident, the response force must identify
the type of incident as quickly as possible.
If the FBI or host nation assumes control, then
the response force must be prepared to
coordinate the operational handover and assist
as needed. For example, the initial or
specialized response forces may be required
to provide outer perimeter security while the
FBI or host-nation forces take over
responsibility for the inner perimeter security
and the handling of the situation. At the same
time, the operational coordination and control
center, as well as the response forces, must be
prepared to manage the entire event if the FBI
or host nation either does not assume control
or relinquishes control. The key here is for
the installation, base, ship, unit, or port
forces to always prepare for the worst
possible contingency. This level of readiness
requires considerable sustainment training.

3. Response
The response to a terrorist incident varies
depending on the nature and location of the
incident. Recognizing that many incidents do
not develop beyond the first phase, there are
generally three distinct phases (shown in
Figure VI-2) through which an incident may
evolve.
a. Phase I is the commitment of locally
available resources. This includes available

Joint Pub 3-07.2

Crisis Management Execution

TERRORIST INCIDENT
PHASES
PHASE ONE
The commitment of locally available
resources - military law enforcement
personnel, security force patrol or
guards, and available backup units

PHASE TWO
The augmentation of the initial
response force by additional law
enforcement and security personnel
and/or a specially trained response
force

PHASE THREE
The commitment of the specialized
Federal Bureau of Investigation,
Department of Defense, or hostnation counterterrorist force

Figure VI-2. Terrorist Incident Phases

military law enforcement personnel, security
force patrols or guards, and available backup
units. Ideally, all law enforcement or security
personnel are familiar with local SOPs for
terrorist incidents and have practiced these

procedures as part of their unit training
program. They must be prepared to secure,
contain, and gather information at the scene
until the beginning of Phase II. Because
terrorist incidents often include diversionary
tactics, response forces must be alert to this
fact while securing and containing the incident
scene. The evacuation of threatened areas is
a priority function.
b. Phase II is the augmentation of the
initial response force by additional law
enforcement and security personnel and/
or a specially trained response force —
special reaction team, emergency services
team, FBI regional special weapons and
tactics units or the hostage rescue teams,
or host-nation tactical units. This phase
begins when the operational center is
activated. During this phase, either the FBI
or the host nation may assume jurisdiction
over the incident. If that occurs, military
forces must be ready to support the operation.
The installation, base, ship, unit, or port
specially trained reaction force must be ready
for employment in this phase of the operation.
In any country in which a terrorist incident
against an American facility or unit occurs,
the DOS and the US Embassy will play the
key role in coordinating the US Government
and host country response to such an incident.

Joint forces must be prepared to play an active security role
throughout all three terrorist incident phases.

VI-3

Chapter VI
c. Phase III is the commitment of the
specialized FBI, DOD, or host-nation
counterterrorist force. This is the phase
in which steps are taken to terminate the
incident. Incident termination may be the
result of successful negotiations, assault,
or other actions including terrorist
surrender. Because identifying the

terrorists, as opposed to the hostages, may
be difficult, capturing forces must handle
and secure all initial captives as possible
terrorists.
d. Response Sequence. A typical response
sequence to a terrorist incident is shown in
Figure VI-3.

RESPONSE TO A TERRORIST INCIDENT
SAC Establishes Joint
Command Center with
Military (Coequal)

Terrorist Incident

Commander Activates
Command Center

SAC Determines Required
Assets

Mission-Essential
Personnel Arrive at
Designated Location

FBI Counterterrorism
Assets Arrive

Response Force
Isolates and Reports
Intelligence

FBI or Host Nation
Assumes Control

Commander Notifies
Military Chain of
Command

FBI Agents Reconnoiter
Terrorist Incident

Commander Retains
Authority

REFER
TO "A"

A
Force Actions
Considered

SP, MP, and/or SF
Provide Inner and Outer
Security

Military Force Utilized
Notify FBI, CID, NCIS, or
AFOSI Who Will Notify
Host Nation (if overseas)
or FBI (in the United
States)

REFER
TO "A"

SAC Forwarded to
Incident
YES
Will FBI or Host Nation
Assume Jurisdiction?
NO

FBI Determines if
Additional Forces are
Required and
Contacts Attorney
General

Terrorist Incident
Resolved

ACRONYMS
AFOSI
Air Force Office of Special Investigations
CID
Criminal Investigation Division
FBI
Federal Bureau of Investigation
NCIS
Naval Criminal Investigative Service
SAC
Special Agent in Charge
SF
Security Forces
SP/MP
Shore Patrol/Military Police

Figure VI-3. Response to a Terrorist Incident

VI-4

Joint Pub 3-07.2

Crisis Management Execution
4. Special Considerations
The following special considerations apply
in implementing crisis management (See
Figure VI-4).
a. Establishing and Controlling
Communications. A crucial aspect of
implementing the AT plan is establishing and
controlling secure communications among
the forces in the incident area, the
operations center, and the special response
force. The terrorists’ communications with
negotiators must also be established quickly
and access to these communications must be
limited. Once this is done, all other elements

of the communications plan are activated.
Communications personnel must be able to
respond to changing needs during the incident
and be able to maintain, over a prolonged
period, control of all incoming and outgoing
communications as well as the
communications channels included in the AT
plan.
b. Evidence. Witness testimony and
photographic evidence, for example, are
important in achieving a successful
prosecution. Maintaining a continuous chain
of custody on evidence obtained during an
incident requires documenting the location,
control, and possession of the evidence from

Establishing and
Controlling
Communications

ic
bl

Pu

D
is
po
Ap
pr o sitio
Pe eh f
n
rs en
on d
ne ed
l

Logistics

Immediate PostIncident
Actions

ce

en

id

Ev

Af
Re terpo Act
rti ion
ng

SPECIAL CONSIDERATIONS

irs

fa
Af
Reports

Figure VI-4. Special Considerations

VI-5

Chapter VI
the time custody is established until be consulted before releasing any individual
presenting the evidence in court. Failure to to host-nation authorities.
maintain the chain can result in exclusion of
the evidence. Types of evidence for which
e. Reports. Reporting to higher
the chain must be established include:
headquarters is an important element in
any special threat or terrorist situation.
• Photographs and videotapes taken during Each Service and command should have a
the incident;
reporting procedure that requires a timely
report of the incident to higher military
• Physical evidence, including any items authorities. The crisis management plan
used by the terrorists;
should dictate required reports and timelines
for notification. An after-action report should
• Tape recordings of conversations be prepared within 7 working days after
between terrorists and hostage termination of the event. This should include
negotiators;
all staff journals and other documentation with
detailed information concerning disposition
• Reports prepared by the military law of evidence and captured individuals. The
enforcement authorities who initially command legal authority and military law
responded to the incident scene;
enforcement personnel should ensure that this
report is in sufficient detail to meet
• Eyewitness testimony; and
prosecution requirements.
• Demand notes or other written messages
f. Public Affairs. Principal public affairs
prepared by the terrorists.
objectives of an AT plan are to ensure that
accurate information is provided to the
c. Logistics. An inherent responsibility for public (including news media) and to
command authorities is the consideration communicate a calm, measured, and
of logistics to support the special reasonable reaction to the ongoing event.
circumstances in a terrorist incident. Public affairs programs are designed to initiate
Shortages of communications equipment, the following:
photographic supplies, and vehicles, for
instance, will reduce the capability of response
• Identify terrorist activities as criminal
and response forces.
acts not justifying public support.
d. Disposition of Apprehended
Personnel.
Apprehended military
personnel must be handled according to
Service regulations and applicable
installation, base, ship, unit, or port SOPs.
In the United States, civilian detainees must
be released to the FBI or US Federal
Marshals for disposition. In foreign
incidents, civilian detainees will be
processed according to the SOFA,
international agreement, or other
arrangements with that particular country.
The command military legal authority should

VI-6

• Reiterate US policy on terrorism, which
identifies all terrorist acts as criminal acts,
mandates no concessions to terrorists,
refuses to pay ransom, and isolates those
nations identified as fostering terrorism.
• Support DOD public affairs strategy on
releasing information pertaining to AT
plans, operations, or forces involved in
antiterrorist operations.
•• The DOJ has public affairs
responsibility for incidents occurring on

Joint Pub 3-07.2

Crisis Management Execution
US territory if the FBI assumes
jurisdiction for resolving the incident.
•• When US military antiterrorist forces
are employed, the Department of Defense
provides a spokesman for dealing only
with antiterrorist military operational
matters. On military installations, the
DOJ may delegate the public affairs
responsibility to a designated DOD
representative.

PAO has cleared such contact with the
operations center. DOD experience with
media representatives has shown that
bringing them in early under reasonable
conditions
and
restrictions
commensurate with the risk and gravity
of the event and providing them
thorough briefings maintains DOD
credibility and preserves freedom of
information. Appendix M, “Public
Affairs Checklist,” provides additional
guidance.

•• The DOS coordinates public affairs
during terrorist incidents overseas. The
g. Immediate Post-Incident Actions.
DOS may delegate the public affairs During the immediate post-incident phase,
responsibility to a designated DOD medical and psychological attention (along
representative.
with other support services) should be
given to all personnel involved in the
•• The Office of the Assistant operation, including captured terrorists. A
Secretary of Defense (Public Affairs) final briefing should be given to media
is the single point of contact for all personnel; however, they should not be
public affairs aspects of US military permitted to visit the incident site. Because
antiterrorist actions. Although there is of the criminal nature of the terrorist event,
no mandatory requirement to release the site must be secured until the crime scene
information, installation commanders are investigation is completed by the appropriate
advised to exercise prudent judgment on investigative agency. It is also imperative that
such matters.
every action that occurred during the incident
be recorded.
•• When the operations center is
activated, operations include the
h. After-Action Reporting. In the
activities of the PAO and media center. aftermath of a terrorist incident, the
The media center is located in a separate operations center personnel review all the
location from the operations center. The events and actions to revise the threat
PAO is represented in both the estimate, if necessary, and to determine the
operations center and media center and effectiveness of the AT plan. All personnel
prepares media releases and conducts involved in the AT operation should be
briefings at the media center during the debriefed and the debriefings recorded. This
incident, using information obtained by information will be used to develop lessons
the PAO and cleared by the operations learned and after-action reports. It is the
center and the commander. The PAO responsibility of the commander to ensure that
must be fully apprised of the situation all required after-action reports are prepared
as it develops.
The media and subsequently reviewed with
representatives should not have direct representatives of the command legal office.
access to hostages, hostage takers, After-action reports should be submitted in
communications nets, or anyone directly accordance CJCSI 3150.25, “Joint Afterinvolved in a terrorist incident unless the Action Reporting System.”

VI-7

Chapter VI

Intentionally Blank

VI-8

Joint Pub 3-07.2

CHAPTER VII
PREVENTIVE MEASURES AND CONSIDERATIONS
“A general should direct his whole attention to the tranquillity of his
cantonments, in order that the soldier may be relieved from all anxiety, and
repose in security from his fatigues.”
Attributed to Frederick the Great

1. Commander’s Responsibility
Preventive and protective security measures
should be taken by military units and
individual Service members to protect
themselves and their ability to accomplish
their mission during deployment and
expeditionary operations. Additionally, rest
and recuperation (R&R) facilities also require
close consideration. These facilities are
frequently vulnerable due to their location and
generally easy access. Service personnel are
at risk of lowering their guard while using
these R&R facilities. The installation, base,
ship, unit, or port AT plan provides the
mechanism to ensure readiness against
terrorist attacks while the unit performs its
tactical and technical mission during
deployments. The degree of the protection
required depends on the threat in a given
location. Commanders must constantly
evaluate security against the terrorist
threat in order to effectively evaluate
security requirements. This responsibility
cannot be ignored in any situation.

2. AT Force Protection in
High-Risk Areas
The following are antiterrorism tactics,
techniques, and procedures for high risk
missions; they represent worst-case
procedures. Security for forces performing
security assistance, peacekeeping, mobile
training teams, and other small military
activities can be derived from these measures.
a. Installations, Bases, Ships, Sites, and
Non-Urban Facilities. Forces are

frequently employed for security
operations or other short-term,
conventional, combat-related tasks. Easily
defended locations are often rare in urban
areas because of building and population
density or lack of proper cover and
concealment and inability to create perimeter
stand-off. Political restrictions may also limit
the military’s ability to construct fortifications
or disrupt areas, but commanders must take
all practical means to ensure force protection
and identify shortcomings to appropriate
levels of command for resolution. Military
planners should adapt existing structures to
provide protection based on the mission,
potential for attack, and ability to use
surroundings effectively.
• Estimate of the Situation. The
commander and staff should complete a
thorough estimate of the situation using
mission, enemy, terrain, troops, time, and
political planning factors in developing
a security assessment. The following
questions aid in developing an estimate
of the terrorist situation:
•• Mission: (1) Who is being tasked? (2)
What is the task? (3) When and where is
this task to take place? (4) Why are we
performing this task?
•• Enemy: (1) Who are the potential
terrorists? (2) What is known about the
terrorists? (3) How do the terrorists
receive information? (4) How might the
terrorists attack? (Think like the
terrorists! Would you ambush or raid?
Would you use snipers, mortars, rockets,

VII-1

Chapter VII
air or ground attacks, suicide attacks,
firebombs, or bicycle, car, or truck
bombs?) (5) Does your unit have
routines? (6) What is the potential for
civil disturbances and could terrorists use
or influence these disturbances in an
attack? Local law enforcement personnel
(e.g., host-nation police) can at times be
a valuable source for this information.
•• Terrain: (1) What are the strengths
and weaknesses of the installation, base,
ship, port, and local surroundings? (2)
Are the avenues of approach above or
below the water or ground? (3) Are there
observation areas, dead spaces, fields of
fire, illumination, or no-fire areas (e.g.,
schools)? (4) Are there tall buildings,
water towers, or terrain either exterior or
adjacent to the perimeter that could
become critical terrain in the event of an
attack?
•• Troops: (1) Determine what is the
friendly situation. (2) Are other US
forces or equipment available? (3) Are
engineers and/or EOD in the area? Will
they be able to provide support? (4) Are
emergency reinforcements available? (5)
Are MWD teams available? (6) What
are the host-nation responsibilities,
capabilities, and attitudes toward
providing assistance? (7) What restraints
will be imposed by the US Government
on the show or use of force?
•• Time: (1) What is the duration of the
mission? (2) Are there time constraints?
(3) Will there be sufficient time to
construct force protection facilities such
as barriers, fences, and lights?
•• Political Planning Factors: (1) Are
there host-nation concerns or attitudes
that will impact on the situation? (2) Will
the situation be influenced by the
existence of any religious or racial
concerns?

VII-2

• Develop Plan. Defenses should include
a combination of law enforcement and
security assets, fortifications, sensors,
obstacles, local-hire security forces (if
applicable), unit guards, deception, and
on-call support from reaction forces.
Each situation requires its own
combination of abilities based on
available resources and perceived
need. Figure VII-1 provides general
guidance concerning fortification
materials.
•• Obstacles. Obstacles slow down or
disrupt vehicles and personnel
approaching an area. Constructing
vehicle barriers by using commercially
installed electronic barriers, trenches,
masonry barriers, concrete-filled oil
drums, or vehicles staggered across the
route creating a zigzag maze forces
vehicles to slow down and make sharp
turns and exposes the driver to capture
or direct fire. Scattering speed bumps or
sandbags on the route further slows
traffic. Designing entrance gates to allow
access to authorized personnel while
denying access to unauthorized personnel
by use of controlled turnstiles provides
time for observation and protection to
guards and slows down direct frontal
attacks. Fences, entrance gates, and
obstacles should be illuminated to
provide easy observation. Obstacles
must be covered by observation and fire.
•• Local Security. Local security must
be around-the-clock to provide
observation, early warning and, if
necessary, live fire capabilities. The
security should include guards at
entrances to check right of entry in
observation posts (OPs), around
perimeter, and on rooftops to view the
surrounding area. These guard positions
must also be integrated into the AT plan
to enable their use in augmenting
responding law enforcement personnel.

Joint Pub 3-07.2

Preventive Measures and Considerations
FORTIFICATION MATERIALS
FORTIFICATION
Wire fences

MATERIAL
Barbed wire
Concertina wire
Chain link/weld mesh

Screens

Canopies

Sandbags

Canvas

Plywood
Natural growth
Chain link/weld mesh
Corrugated iron

Sandbags

Sensors and Closed
Circuit TV

PURPOSE
Delay access
Channel movement
through manned points
Use as grenade, firebomb,
or high explosive antitank
rocket barriers
Deny observation inwards
(Note: may also prevent
observation outwards.
Additional sensors may
be required.)

Protect roofs
Detonate mortar projectiles
Absorb shrapnel
Cover machineguns
positioned on roofs
Absorb shrapnel
Protect personnel and
equipment
Provide early warning

Figure VII-1. Fortification Materials

Security forces should have available to
them and be trained in specialized
equipment for responding to terrorist
attacks and/or incidents (See Figure
VII-2). Local installations, with the
assistance of the parent Service, should
identify and procure this equipment
based on Service directives and the local
situation.
• Establish Defense. Measures taken to
establish the defense must be continually
reviewed and progressively updated to
counter the changing threat and add an

element of unpredictability to the
terrorist’s calculation. Defensive
measures include the following:
•• Determine priority of work (assign
sectors of observation and fire, construct
obstacles, fortify).
•• Improve obstacles, fortifications, and
the defense as a whole. Long-term
deployments should program engineer
assets and force protection or physical
security funds toward the construction of
permanent fixtures.

VII-3

Chapter VII
SECURITY FORCE EQUIPMENT
Pyrotechnic pistols
Riot shotguns
Tear gas launchers
Hand-held flashlights
Antiriot helmets
Shields 3'6"
Shields 6'
Side-handled or straight batons
Hand cuffs
NBC protective masks

Marshalling wands
Telescopes and tripods
Binoculars
Night vision devices
Loud speakers
Fire extinguishers
Cameras with flash and tripods
Telescopic sights
Photographic filter
Body Armor

Figure VII-2. Security Force Equipment

•• Establish inspections and immediate
action drills, exercises, and training to
implement the security plan.
•• Maintain, when possible, secure radio
or landline communications with the
military police, security guards, and
reaction force(s).
•• Keep abreast of current military and
host-nation police and intelligence
assessments.

to US personnel or specific property,
looting, or arson.
• Response to unauthorized photography
and surveillance activities.
• Steps necessary to obtain police, reaction
force(s), fire department, and ambulance.
• Guidelines for contact with host-nation
police.

• Guidelines for contact with press and
b. Guard Duties. Guard duties are detailed
media.
in Service regulations and in local, general,
and special orders. In a terrorist high-risk
c. Road Movement. Road movements are
environment, special orders should address as always vulnerable to terrorists attacks in higha minimum the following:
risk areas. Road reconnaissance should be
conducted periodically to identify high-threat
• Details of authorized passes; provide areas. If possible, alternate forms of
samples of passes.
transportation (e.g., helicopters) should be
used. If road movement is required:
• Procedures for searching people and
vehicles.
• Avoid establishing a regular pattern;
• Response to approach by unauthorized
personnel or hostile crowds.

• Vary routes and timing;
• Travel in groups, never single vehicles;

• Specific rules of engagement (ROE) or
use of force policy in the event of civil
disturbances, potential damage, or injury

VII-4

• Avoid traveling at night unless tactical
advantage can be gained through use of

Joint Pub 3-07.2

Preventive Measures and Considerations
night vision devices. Additional
precautions should be considered if travel
is required during periods of agitation
(e.g., religious or political holidays);
• When possible, keep a low profile (use
vehicles that do not stand out);
• Plan alternate routes and reactions to
various threatening scenarios;
• Plan communications requirements;
• Avoid dangerous areas (e.g., ambush
sites, areas known for violence);
• Provide adequate security;
• Plan in advance for maintenance and
evacuation; and
• Use countersurveillance.
d. Vehicle Protection. Take the following
precautions when using tactical and some
types of commercial vehicles, such as trucks,
in a high-risk area:
• Place sandbags on floorboards and
fenders.
• Cover sandbags with rubber or fiber
mats.
• If carrying personnel, sandbag the vehicle
bed as well as the driver’s compartment.
• Remove canvas so passengers can see
and shoot.
• Fold windshield in driver’s compartment
and fit high-wire cutter. Lower side
windows and place wire over all
openings to deflect grenades or IEDs.
• Normally, avoid large concentrations of
personnel in any one vehicle. If

necessary, assign convoys additional
vehicles to disperse personnel loads.
• Passengers riding in truck bed face
outboard and are assigned sectors of
observation and fire.
• Rig chicken wire or chain link screens
on front bumper frame to deflect rocks,
bottles, firebombs, and grenades.
• Carry pioneer tools (fire extinguishers in
particular), a line with grappling hook to
clear obstacles, and tow bars for disabled
vehicles.
• When the threat of hostile fire is constant,
plan for the use of vehicles with
additional armored protection.
e. Convoys. In extremely high-risk areas,
consider using armed escorts for convoy
protection.
• Develop and rehearse immediate action
drills before movement.
• Perform route clearance before
movement.
• Establish and maintain communications
throughout the route.
• Develop deception plans to conceal or
change movement timing and route.
• If possible, include host-nation police
and/or military personnel in the convoy.
• When selecting routes, avoid entering or
remaining in dangerous areas. If
ambushed, gauge response by enemy
strength. Counter ambushes by
accelerating through the ambush area,
counterattacking, withdrawing, or
withdrawing and staging a deliberate
attack.

VII-5

Chapter VII
• Convoy escort composition depends on
available forces. Light armored vehicles,
high mobility multipurpose wheeled
vehicles, or trucks equipped with M2 50caliber and MK19 40mm machine guns
are extremely effective. Overhead
helicopters and AC-130 gunships can
also be used as air escorts if available.
Escorts should be organized into an
advance guard, main body escort, and
reaction or strike group. Planning
considerations are as follows:
•• Determine concept of operation.

• Search for explosives or possible
hijackers before departure and after every
halt (MWDs are particularly suited for
this mission). Appendix N, “Military
Working Dogs,” provides information
concerning use of MWDs in
antiterrorism operations.
• Ensure that the railway is free of
obstructions or explosives.
• Patrol the railway area.

•• Identify available transportation.

• Place armed security personnel on duty
throughout the train, including engine
room and trail car.

•• Identify order of march and road
organization.

• Patrol and guard departure and arrival
stations.

•• Identify disposition of advance guard,
main body escort, and reserve.

• Use deception measures.
• Provide air cover (AC-130, helicopters).

•• Designate assembly area for convoy.
•• Determine rendezvous time at
assembly area, departure time of first and
last vehicle, and expected arrival of first
and last vehicle at destination.

• Maintain communications within the
train and with outside agencies.
• Provide reaction force to be moved by
air or coordinate host-nation support
(HNS) (if available).

•• Identify action upon arrival.
•• Determine required coordinating
instructions for speed, spacing, halts,
immediate action drills, breakdowns, and
lost vehicles.
f. Rail Movement. Rail movement is the
most difficult form of transportation to
conceal and protect because it follows a
predictable route and rail heads are
difficult to conceal. Opportunities for
deception are limited and physical security is
critical. The following security precautions
should be considered:
• Restrict passengers to military personnel
only.

VII-6

g. Sea Movement. Sea movement,
especially aboard military vessels, may
provide a false sense of security. Sea
operations are certainly more secure than
urban patrols; however, ships in harbor or
anchored off hostile coastlines are visible
and high-risk targets. Crews of ships in
harbors need to evaluate each new port and
determine possible terrorist actions and ship’s
force counteractions (such as using fire and
steam hoses to repel attackers). Crew
members must be aware of HNS and
responsibilities while in port or anchored
in foreign national waters. The ship’s
captain is solely responsible for the ship
and all those embarked. As a minimum,
the captain:

Joint Pub 3-07.2

Preventive Measures and Considerations
• Establishes methods of embarkation and
debarkation and patrol activities for all
personnel;

until the aircraft is “wheels-up” and, upon
arrival, reestablish communications with
the new security element.

• Identifies vital areas of the ship (for
example, engine room, weapons storage,
command and control bridge), and
assigns security guards;

• All personnel (air crews and transported
unit) must be cautioned concerning the
transportation of souvenirs and other
personal items that could be containers
for explosives.

• Coordinates above and below waterline
responsibilities;
• Establishes a weapons and ammunition
policy and ROE, and appoints a reaction
force (e.g., security alert team [SAT],
backup alert force [BAF], and/or reserve
force [RF]); and
• Drills all personnel involved.
h. Air Movement. For the most part,
while a unit is being transported by air it is
under the purview of the Air Force or air
movement control personnel. Troop
commanders and Air Force personnel
coordinate duties and responsibilities for their
mutual defense. Personnel must remain
vigilant and leaders must provide adequate
security. Unit security personnel coordinate
with airfield security personnel, assist
departures and arrivals at airfields while en
route, and determine weapons and
ammunition policies. Special considerations
include the following topics:
• Road transport security when driving to
and from airfields is critical. Keep arrival
arrangements low profile. Do not preposition road transport at the airport for
extended periods before arrival.
• If pre-positioned transport is required,
attach a security element and station it
within the airfield perimeter. Security at
the arrival airfield can be the
responsibility of the host nation and
requires close coordination. Maintain
communications between all elements

• Man-portable weapons systems in the
hands of terrorists create additional
planning challenges for the security of
aircraft. Planning considerations should
include defensive measures against such
systems in the choosing of airfields and
forward arming and refueling points.
i. Patrolling. Units outside the United
States may be called upon to conduct
patrols in urban or rural environments.
These patrols will normally be planned and
executed in conjunction with host-nation
authorities and should be coordinated with the
representatives of the appropriate staff judge
advocate office and be in accordance with any
applicable basing, status-of-forces, or other
agreements. Patrols support police operations,
expand the area of influence, gather
information, police nightclubs and restaurants,
detain individuals as required, conduct hasty
searches, and erect hasty roadblocks. Patrols
must understand the ROE. Patrolling units
should avoid patterns by varying times and
routes, using different exit and entry points at
the base, doubling back on a route, and using
vehicles to drop off and collect patrols and
change areas. Base sentries or guards, other
vehicle patrols, helicopters, OPs, host-nation
assets, and reaction forces provide additional
support.
j. Roadblocks. There are two types of
roadblocks: deliberate and hasty.
Deliberate roadblocks are permanent or
semipermanent roadblocks used on borders,
outskirts of cities, or the edge of controlled
areas. Use deliberate roadblocks to check

VII-7

Chapter VII

Deployed joint forces may be tasked to conduct
antiterrorist operations in urban areas.

identification and as a deterrent. Use hasty
roadblocks to spot check, with or without prior
intelligence. Hasty roadblocks use the
element of surprise. Their maximum effect
is reached within the first half hour of being
positioned. Hasty roadblocks can consist of
two vehicles placed diagonally across a road,
a coil of barbed wire, or other portable
obstacles. Roadblocks must not unnecessarily
disrupt the travel of innocent civilians.
Personnel manning roadblocks must know
their jobs thoroughly, be polite and
considerate, act quickly and methodically, use
the minimum force required for the threat, and
promptly relinquish suspects to civil police
authorities. General principles considered in
establishing roadblocks are concealment,
security, construction and layout, manning,
equipment, communications, and legal issues.
Unless combined posts (host nation and US
personnel) are used, language training will be
a key planning factor in employing
roadblocks.
k. Observation Posts. OPs provide
prolonged observation of areas, people, or
buildings. OPs are critical. OPs allow
observation of an area for possible terrorist
activity (avenues of approach); observation
of a particular building or street; ability to

VII-8

photograph persons or activities; ability to
observe activity before, during, or after a
security force operation (e.g., house search)
and ability to provide covering fire for patrols.
Special factors apply to OPs located in urban
areas. The OP party and reaction force must
know the procedure, ROE, escape routes,
emergency withdrawal procedures, rallying
point, casualty evacuation, and password.
Cover the occupation and withdrawal of an
OP by conducting normal operations (e.g.,
house searches, roadblocks, patrols to leave
people behind), flooding an area with patrols
to disguise movement, using civilian vehicles
and clothes, and using deception. Any
compromise of an OP location should be
immediately reported.
l. Civil Disturbances. Crowd violence
can either be a spontaneous emotional
eruption or a planned event. In the latter
case, its purpose is to draw police or troops
into a target area or away from some other
event. Crowd violence may also involve
violence within the crowd or from opposing
groups. Crowd violence is characterized by
incitement and violence; both are highly
contagious. Riot control aims to restore order
with minimum use of force. Bearing in mind
that the size or motivation of the crowd may

Joint Pub 3-07.2

Preventive Measures and Considerations
prevent its control, the general approach is
to reduce or disrupt the crowd’s unifying
influences and reorient the participants to
concerns for personal vulnerability and
welfare. The principles of riot control are
shown in Figure VII-3.

designed to draw forces into an area as targets
for a shooting ambush or another explosion.
Upon discovery of a bomb or upon entering a
bomb site, response forces should proceed
with extreme caution and contact the EOD
team immediately. MWDs or explosive
detection dogs should be considered upon
m. Bomb Explosion or Discovery. The bomb discovery or during entry to the site of
initial terrorist bomb may not be the end the explosion. Appendix K, “Explosive
of the incident. The initial bomb may be Device Procedures,” contains procedures for
handling bomb situations.

PRINCIPLES OF
RIOT CONTROL
1. Flexibility in changing tactics
as necessary to meet the
situation
2. Rehearsals ensure success
3. The appearance of being able
to do damage is often more
effective than actually having
to resort to force
4. Control the situation by
positioning personnel and
presenting the image of
having and maintaining full
control even if the situation
deteriorates
5. Provide all-round defense of
assigned sectors of
observation and fire and be
able to observe and fire 360
degrees around control force
6.

There must be speed in
deployment, arrest, and
apprehension, and reaction to
change

Surprise keeps the crowd off
7. balance

n. Personal Protective Measures.
Overseas deployments require a high
degree of personal protective measures.
The guidelines in Appendix B, “Personal
Protective Measures Against Terrorism,” still
apply, but the commander must also focus on
the exposure of the troops to any special
terrorist threat. This requires particular
attention to areas where troops will live, work,
and conduct R&R. Coordination between
military law enforcement and intelligence
agencies and host-nation forces is critical. The
deployed military member must also
understand the threat and required personal
security measures.

3. Tactical Force Protection
During joint and multinational
operations, US units and bases in the joint
rear area (JRA) are still vulnerable to
terrorist attacks. The same procedures
identified in the preceding paragraphs apply.
Commanders will be advised by the JRA
coordinator (JRAC) of potential terrorist
threats, and subordinate commands will report
any terrorist activity to the JRAC. Units
passing through the JRA are still required to
maintain AT measures commensurate with the
JRAC’s guidance. Specific tactics, techniques,
and procedures for operations in the JRA are
contained in Joint Pub 3-10, “Doctrine for
Joint Rear Area Operations.”

Figure VII-3. Principles of Riot Control

VII-9

Chapter VII

Intentionally Blank

VII-10

Joint Pub 3-07.2

APPENDIX A
VULNERABILITY ASSESSMENT
1. General
The VA provides the commander with a tool
to assess the potential vulnerability of a base,
unit, ship, or port activity, but it is not a
substitute for sound judgment. These
guidelines also serve to limit the scope of the
force protection vulnerability assessments to
those elements that are directly and uniquely
related to combatting terrorism and are only
one part of the larger issue that clearly and
appropriately belongs to the traditional
commanders’ responsibilities for the overall
well-being of Service members, civilian
employees, and family members as well as
facilities and equipment. The VA must stand
on its own and be supported by valid
considerations. Typically, a small group of
knowledgeable individuals (at the minimum
operations, law enforcement, security,
intelligence, counterintelligence, communications,
engineer staff, medical services, housing, fire
protection, emergency planning, and NBC
defense and response) develop the VA and
forward it to the command group upon
completion. The command group then uses
the VA as an aid in developing measures to
counter the threat.

2. Assessing Vulnerability
It is understood that each location, site, or
facility is unique in terms of vulnerability to
terrorist operations. Accordingly, these
guidelines are intended to be flexible, allowing
for adaptation to site circumstances.
a. Functional Areas. The concept for
force protection VA is to focus on two broad
areas:
• Preventing and, failing that, substantially
mitigating the effects of a terrorist act.

• Emergency preparedness and crisis
response.
Combined, the proactive and the reactive
capabilities within these two broad areas form
the essence of what can be considered the
essential elements for deterring and
combatting terrorism.
b. The proactive and reactive aspects of
force protection are divided into four
significant elements:
• Physical security. Consists of all the
functional areas that make up those
measures necessary to protect and
safeguard personnel, facilities, and
installations from terrorist acts.
• Weapons effect mitigation. Consists of
all the functional areas that make up the
capability to calculate blast, shock,
shrapnel, fire, and other damage
associated with chemical explosives; to
calculate effects from other weapons that
terrorist might employ including WMD;
and to assess the mitigating values of
standoff distances, blast barriers,
structural hardening, and a host of adjunct
mitigating capabilities, including
emergency preparedness and response
capabilities.
• Threat, vulnerability, and risk
analysis. Consists of the functional areas
that make up the capability to assess how
well the threat statements produced by
the intelligence community (DIA, CINC
J-2, Service, national, local intelligence
authorities, and local unit level) have
been fused with logical analysis and
conclusions about terrorist abilities to
attack a specific installation, facility, or

A-1

Appendix A
including travel routes; assists in threat
group of people. Consistency of
and vulnerability analysis.
produced threat estimates, reasonably
postulated terrorist target and target
b. Physical Security Specialist. Key
vulnerability estimates, and efforts to
Responsibilities:
Installation, facility, and
enhance security and reduce weapons
personnel
security
and
safety. Major functions
effects are major functions in this
performed:
element.
• Application of DOD standards. To the
extent that the DOD standards for force
protection go beyond the functional
expertise required to do the first three
force protection elements, the requisite
expertise may be collected by the
installation, base, ship, unit, or port
activity in this area. The standards’
compliance area is more an assessment
of the vulnerability reduction value of the
standards than it is a review to determine
if the standards are being complied with.

3. Areas of Expertise
Required areas of expertise for a VA team.
a. Assessment Team Chief. Key
responsibilities: Overall management,
training, and performance of the vulnerability
team members; finalizing the assessment team
out-briefing; preparing the population
dynamics and risk assessment.
• Ensures that the team is properly trained,
prepared and equipped.
• Ensures that the team members have the
appropriate security clearances.
• Oversees the pre-deployment collection
and analysis of available information to
support the deployment.
• Oversees operational and procedural
security training for team members.
• On-site, assesses critical population
centers and mass population areas

A-2

• Assess overall physical security,
operations, and information security.
• Assess access control, to include sensors
and intrusion devices.
• Assess perimeter defensive positions and
vehicular and/or personnel barriers.
• Assess lighting, police security, and
security response planning and force
capability.
• Assess overall security planning and
responsiveness to threat assessments and
prepared intelligence estimates.
• Assess relationship and support from
local law enforcement and other security
agencies, both local and national.
• To the extent that vulnerabilities are
found, formulate and suggest mitigating
measures and assist in their
implementation.
c. Structural Engineer. This function
examines a variety of potential terrorist
weapon effects and structural responses in
order to better protect personnel from shock
and blast by reducing damage through
technically appropriate use of stand off
measures, hardening, blast shielding, and
shatter-resistant window film (i.e., mylar).
Key responsibility: Threat and damage
assessment from terrorist weapons estimates;
suggestions for threat protection or damage
mitigation measures. Major functions
performed:

Joint Pub 3-07.2

Vulnerability Assessment
• Assess damage mechanisms including
blast, shock, and fragmentation.
Calculate hazardous radii based on
structural dynamics and calculated
structural loads.
• Assess building and barrier resistance
or mitigation of threat weapons effects.
Determine appropriate standoff distance,
potential hardening or other mitigating
measures.
• Assess systems related to physical
security and personnel protection
(warning devices, alarms).
• Assess and/or identify safe havens.
• Assess mechanical, electrical, and other
service systems for vulnerability to
weapons effects and suggest mitigating
measures.

•• Assess facility and operational
utility systems for susceptibility to
damage from terrorist acts.
•• Assess fire protection planning and
capabilities, including emergency
response planning and exercises.
•• Assess vulnerability of installation
utilities and plans for back-up services.
•• Assess availability of support, to
include use of local national capabilities.
•• Assess mechanical, electrical, and
other infrastructure systems for
vulnerability to weapons effects and
suggest mitigating measures.
•• To the extent that structural
vulnerabilities are found, formulate and
suggest mitigating measures and assist
in their implementation.

• To the extent that structural
vulnerabilities are found, formulate and
e. Operations Readiness Specialist. This
suggest mitigating measures and assist function examines plans, procedures and
in their implementation.
capabilities for crisis response, consequence
management, and recovery operations,
d. Infrastructure Engineer. This function should a terrorist incident occur. The
examines three distinct elements of force operations readiness objectives are to provide
protection:
individual protective measures and
emergency response capabilities that
• Protection against the effects of WMD. minimize mass casualties and reduce the
number of severe injuries and fatalities.
• Protection against terrorist incident- Operational readiness includes training of all
induced fires.
personnel in response actions to tactical
warning, alarms of imminent attack,
• Utility systems that can be employed to planning and exercise of rescue operations,
minimize terrorist incident casualties, emergency medical triage, and treatment in
i n c l u d i n g e l e m e n t s o f p o w e r, mass casualty situations. The installation’s
environmental control, and life Force Protection and/or Antiterrorism officer,
support systems. Key responsibilities: the installation fire chief, emergency medical
Infrastructure security, fire, safety, and services, and local and/or host country fire
damage control. Major functions and medical services all play a part in force
include:
protection operations readiness. Key

A-3

Appendix A
responsibility: Emergency medical and
individual readiness assessments. Major
functions performed:

• Propose additional security, counteraction,
and threat reduction efforts.

g. Communications, housing, fire
• Assess individual, personnel, facility, protection, NBC defense, and response are
and installation protection capabilities. functional areas which can be executed by any
team member if appropriate for the mission
• Assess emergency medical capabilities and threat of the installation, base, ship, unit,
and planning including the identification or port activity.
of key assets and infrastructure.

4. Assessment Planning,
• Assess recovery procedures and planning
Preparations and Conduct
to understand the ability to recover from
loss of key assets, infrastructure, or
This section addresses the activities which
facilities.
may be performed in order to provide a force
protection VA visit and upon completion of
• Assess planning and/or consideration of the visit.
evacuation as a risk mitigating measure.
a. Pre-assessment Preparations. The key
• Assess application of the DOD force element of preparation is the beginning of the
protection standards and determine their site folder development. The site folder is
value in vulnerability reduction.
the official record of the assessment
team information gathering, analysis,
• To the extent that structural recommendations, and assistance for the
vulnerabilities are found, formulate and commander. A critical aspect of the site folder
suggest mitigating measures and assist formation is the intelligence information
in their implementation.
gathering relative to the terrorist threat. Allsource intelligence on groups, motivation and
f. Intelligence and/or Counterintelligence intent, tactics and weapons, activities, and
Specialist. Key responsibility: Performs operating areas should be obtained from DIA,
logical analysis and prepares possible CINC J-2, and other sources. A complete list
conclusions regarding terrorist targets and of installation characteristics, including
target vulnerabilities based on processed layouts, drawings, functions, personnel, and
intelligence information, knowledge of procedures, should be requested in advance
terrorist capabilities, and methods and in view of the visit to be sent to the requesting team
of US installation, facility, and personnel or made available upon arrival. If available,
safety and security practices. Major functions a copy of the antiterrorism plan may be made
available to the assessment team.
performed:
• Develop possible threat scenarios.
• Assess installation, facility, and personnel
vulnerability in view of scenarios, and
in consideration of ongoing
counterintelligence activity, demonstrated
capabilities in exercises, capabilities of
local authorities, and terrorist intelligence
activities.

A-4

• Administrative preparations include
coordination particulars of the visit with
the installation, base, ship, unit, or port
activity, including:
•• Theater clearances (if applicable).
•• Requirements for invitational travel
orders, passports, visas, inoculations,

Joint Pub 3-07.2

Vulnerability Assessment
b. Conduct of the Assessment. Upon
insurance (health life) and other legal issues
arrival,
the assessment team provides an
as well as emergency information forms.
in-briefing for the commander, staff, and
designated technical point of contact. A
• Security preparations include:
site familiarization briefing and tour should
•• Identifying a security representative. be conducted by site personnel.
Administrative activities may include
•• Submitting requests for country establishing the team support area, setting
clearances and identifying classified up equipment, scheduling team and/or
technical points of contact meetings and
documents to be couriered.
discussions, ensuring classified material
•• Coordinating secure storage for control, establishing personnel locator, and
organizing materials (view graph, photos,
arrival.
and diagrams) for the out-briefing and site
•• Preparing letter requests for overseas folder. Each assessment team member
conducts the assessment based on the
courier authorization.
specific responsibilities for each functional
•• Presenting mandatory threat briefing area as outlined above.
and mandatory security procedures
c. Post-assessment Activities. Within 30
briefing
days of the conclusion of the visit, a summary
.
• Logistics preparations include:
narrative report and annotated briefing should
be delivered to the installation commander.
•• Any travel arrangements (tickets, Follow-on assistance for the commander may
be applicable in areas of technical
lodging, and billeting).
characteristics of improvement options, cost
•• Travel kits (pharmaceuticals and estimates, and generic sources of materials and
equipment. Lessons learned from the
supplies).
assessment should be extracted and entered
•• Equipment checkout and packaging in the Joint Universal Lessons Learned
and shipping.
System.

A-5

Appendix A

Intentionally Blank

A-6

Joint Pub 3-07.2

APPENDIX B
PERSONAL PROTECTIVE MEASURES
AGAINST TERRORISM
1. General
Any member of the Department of
Defense — not just senior leaders — can
become a target for terrorists. The purpose
of this appendix is to provide general
guidance to DOD members and their
families on how to avoid acts of terrorism,
as well as to provide basic instructions in
the event DOD personnel become victims
of a terrorist attack.

2. Precautions
Since terrorist acts are criminal acts,
measures taken to protect oneself from
terrorism are similar to those measures taken
to guard against crime. Attitude toward
security is most important. Although some
of these precautions are applicable overseas,
you can decrease your chances of becoming
a terrorist target, as well as those of your
family members, by taking the precautions
listed in this appendix. Therefore, it is highly
recommended that you share this information
with every member of your family. It is also
suggested that you and your family review
these precautions on a regular basis.

• Get into the habit of checking in to let
your friends and family know where you
are or when to expect you.
• Know how to use the local phone system.
Always carry telephone change. Know
the emergency numbers for local police,
fire, ambulance, and hospital.
• Know the locations of civilian police,
military police, government agencies, US
Embassy, and other safe locations where
you can find refuge or assistance.
• Avoid public disputes or confrontations.
Report any trouble to the proper
authorities.
• Know certain key phrases in the native
language such as “I need a policeman,”
“Take me to a doctor,” “Where is the
hospital?,” and “Where is the police
station?”
• Set up simple signal systems to alert
family members or associates that there
is a danger. Do not share this information
with anyone not involved in your signal
system.

a. At All Times
• Encourage security awareness in your
family and discuss what to do if there is
a security threat.

• Carry identification showing your
blood type and any special medical
conditions. Keep a minimum of a 1week supply of essential medication on
hand at all times.

• Be alert for surveillance attempts or
suspicious persons or activities, and
report them to the proper authorities.
Trust your gut feelings.

• Keep a low profile. Shun publicity. Do
not flash large sums of money.

• Vary personal routines whenever
possible.

• Do not unnecessarily divulge your home
address, phone number, or family
information.

B-1

Appendix B
• Watch for unexplained absences of local
citizens as an early warning of possible
terrorist actions.
• Keep your personal affairs in good order.
Keep wills current, have powers of
attorney drawn up, take measures to
ensure family’s financial security, and
develop a plan for family actions in the
event you are taken hostage.
• Do not carry sensitive or potentially
embarrassing items.
b. At Home
• Have a clear view of approaches to your
home.

• Never admit strangers to your home
without proper identification.
• Use off-street parking at your residence,
if at all possible.
• Teach children how to call the police, and
ensure that they know what to tell the
police (e.g., name, address).
• Avoid living in residences that are located
in isolated areas, on one-way streets,
dead-end streets, or cul-de-sacs.
• Avoid residences that are on the ground
floor, adjacent to vacant lots, or on steep
hills.

• Install strong doors and locks.

• Carefully screen all potential domestic
help.

• Change locks when you move in or when
a key is lost.

• Do not place your name on exterior walls
of residences.

• Install windows that do not allow easy
access.

• Do not answer the telephone with your
name and rank.

• Never leave house or trunk keys with
your ignition key while your car is being
serviced.

• Personally destroy all envelopes and
other items that reflect personal
information.

• Have adequate lighting outside your
house.

• Close draperies during periods of
darkness. Draperies should be opaque
and made of heavy material.

• Create the appearance that the house is
occupied by using timers to control lights
and radios while you are away.
• Install one-way viewing devices in doors.
• Install intrusion detection alarms and
smoke and fire alarms.
• Do not hide keys or give them to very
young children.
• Never leave young children at home
alone.

B-2

• Avoid frequent exposure on balconies
and in windows.
• Consider owning a dog to discourage
intruders.
• Never accept unexpected package
deliveries.
• Don’t let your trash become a source of
information.
c. While Traveling

Joint Pub 3-07.2

Personal Protective Measures Against Terrorism
• Vary times and routes.
• Be alert for suspicious-looking vehicles.
• Check for suspicious activity or objects
around your car before getting into or out
of it. Do not touch your vehicle until
you have thoroughly checked it (look
inside it, walk around it, and look under
it).

• Prearrange a signal with your driver to
indicate that it is safe to get into the
vehicle. Share this information only with
persons having a need to know.
• Have the driver open the door for you.
• If the driver is absent, do not get into the
car.

• Know your driver.

• If possible, tell your driver your
destination only after the car has started.

• Equip your car with an inside hood latch
and a locking gas cap.

• Keep your vehicle’s gas tank at least half
full.

• Drive with windows closed and doors
locked.

d. In Hotels

• Travel with a group of people — there is
safety in numbers.
• Travel on busy routes; avoid isolated and
dangerous areas.
• Park your car off the street in a secure
area.
• Lock your car when it is unattended.
• Do not routinely use the same taxi or bus
stop. NOTE: Buses are preferred over
taxis.
• If you think you are being followed,
move as quickly as possible to a safe
place, such as a police or fire station.
• If your car breaks down, raise the hood
then get back inside the car and remain
there with the doors locked and the
windows up. If anyone offers to assist,
ask the person to call the police.

• Keep your room key on your person at
all times.
• Be observant for suspicious persons
loitering in the area.
• Do not give your room number to
strangers.
• Keep your room and personal effects neat
and orderly so you will recognize
tampering or strange out-of-place
objects.
• Know the location of emergency exits
and fire extinguishers.
• Do not admit strangers to your room.
• Know how to locate hotel security
guards.
e. Ground Transportation Security
• Use a plain car that is common in the area
to minimize the rich American look.

• Do not pick up hitchhikers.
• Drive on well-lit streets.

• Do not be predictable in your daily travel
behavior; vary your travel times, your

B-3

Appendix B
routes, and your mode of transportation
whenever possible.
• Check the area around the vehicle, the
exterior of the vehicle, and then the
interior of the vehicle before starting the
engine.
• Travel with companions or in convoy
whenever possible.
• Know the locations of safe havens (e.g.,
police and fire stations) along your travel
routes.
• Install appropriate mirrors, locks, and
other devices to secure your car against
tampering.
• Safeguard car keys at all times.
• Screen chauffeurs or permanently
assigned drivers. Develop a simple
system for the driver to alert you to
danger when you are picked up. Share
this information only with persons
having a need to know.
• Lock your car, especially at night, and
check and lock your garage when you
park there overnight.
• Park in well-lighted areas if you must
park on the street.
• Always fasten seat belts, lock doors, and
close windows when driving or riding in
a car.
• Be alert for surveillance and be aware of
possible danger when driving or riding
in a car.
• Drive immediately to a “safe haven”
when surveillance is suspected; do not
drive home.
f. Air Travel Security

B-4

• Use military aircraft whenever possible.
• Avoid travel through high-risk areas; use
foreign flag airlines and/or indirect routes
to avoid such areas.
• Do not use rank or military addresses on
tickets, travel documents, hotel
reservations, or luggage.
• Select a window seat on aircraft because
they offer more protection and are less
accessible to hijackers than are aisle seats.
• Select a seat in the midsection of the
aircraft because it is not one of the two
usual areas of terrorist activity.
• Do not discuss your US Government
affiliation with any other passengers.
• Consider using a tourist passport when
traveling in high-risk areas; if you use a
tourist passport, store your official
passport, identification card, travel
orders, and other official documents in
your carry-on bags. Also, if you normally
wear a military ring (e.g., Service or
academy), consider leaving it at home or
pack it in your checked baggage.
• Do not carry classified material unless it
is mission-essential.
• Use plain civilian luggage; avoid using
B-4 bags, duffel bags, and other militarylooking bags. Remove all indications of
your rank and any military patches, logos,
and decals from your luggage and
briefcase.
• Do not carry official papers in your
briefcase.
• Travel in conservative civilian clothing.
Do not wear military-oriented
organizational shirts or caps or militaryissue shoes or glasses. Also, avoid

Joint Pub 3-07.2

Personal Protective Measures Against Terrorism
obvious American clothing such as
h. Try to mentally prepare yourself for the
cowboy boots and hats as well as situation ahead as much as possible. Stay
American-logo T-shirts. Cover visible mentally active.
US-affiliated tattoos with a long-sleeved
shirt.
i. Do not aggravate your abductors; instead,
attempt to establish a positive relationship
• If possible, check your baggage with the with them. Do not be fooled by a friendly
airport’s curb service.
approach — it may be used to get information
from you.
• Adjust your arrival at the airport to
j. Avoid political or ideological discussions
minimize waiting time, be alert for any
with
your captors; comply with their
suspicious activity in the waiting area, and
instructions,
but maintain your dignity.
proceed immediately to the departure gate.

3. Hostage Defense Measures
a. Survive with honor — this is the mission
of any American hostage.

k. Do not discuss or divulge any classified
information that you may possess.
l. Exercise daily.

m. Read anything you can find to keep
b. If your duties may expose you to being
your
mind active.
taken hostage, make sure your family’s affairs
are in order to ensure their financial security.
n. Eat whatever food is offered to you to
Make an up-to-date will and give appropriate
maintain
your strength.
powers of attorney to your spouse or to a
trusted friend. Concern for the family is a
o. Establish a slow, methodical routine for
major source of stress for persons in kidnap
every
task.
or hostage situations.
p. When being interrogated, take a
c. If you are taken hostage and decide not
simple,
tenable position and stick to it. Be
to resist, assure your captors of your intention
polite
and
maintain your temper. Give
to cooperate, especially during the abduction
short
answers,
talk freely about
phase.
nonessential matters, but be guarded when
d. Regain your composure as quickly as the conversation turns to substantial
possible after capture, face your fears, and try matters.
to master your emotions.
q. If forced to present terrorist demands to
e. Take mental note of the direction, time authorities, in writing or on tape, do only what
in transit, noise, and other environmental you are told to do. Avoid making a plea on
factors that may help you identify your your own behalf.
location.
r. Be proud of your heritage, government,
f. Note the numbers, names, physical and military affiliation, but be careful that your
characteristics, accents, personal habits, and behavior does not antagonize your captors.
Affirm your faith in basic democratic
rank structure of your captors.
principles.
g. Anticipate isolation and terrorist efforts
s. In the event of a rescue attempt:
to confuse you.

B-5

Appendix B
• Drop to the floor. Do not move unless
instructed to do so by the rescuing force.
Under no circumstances attempt to assist
the rescue force. Stay completely clear
of anything that could be regarded as or
misidentified as a weapon;
• Be quiet and do not attract your captors’
attention;
• Wait for instructions;

B-6

• Rescue forces will initially treat you as one
of the terrorists until you are positively
identified as friend or foe. This is for your
security. Cooperate, even if you are initially
handcuffed or bound; and
• Once released, do not make comments
to the news media until you have been
debriefed by the proper US authorities
and have been cleared to do so by the
appropriate military commander.

Joint Pub 3-07.2

APPENDIX C
VERY IMPORTANT PERSON AND SENIOR
OFFICER SECURITY MEASURES
1. General
Very important persons and senior
officers are terrorist targets by virtue of
their position and symbolic nature.
Although the level of threat to these
individuals varies, their best protection is
their own awareness of this threat as well
as their dependents’ awareness of the
threat. The following measures are steps
that they can take in their daily activities
to reduce their exposure to terrorist attacks.

i. Consider fitting windows with either
venetian blinds or thick curtains.
j. Have reserve lighting handy (e.g.,
flashlight, lamps).
k. Consider placing the telephone where
you will not be seen from doors or windows
when answering.
l. Investigate household staff (especially
temporary staff).

2. Security at Home

m. Always be on the lookout for the
unusual. Ensure that home is locked and
a. Evaluate home security requirements. secure whenever the residence is
unattended. Be cautious upon return.
b. Check persons entering the premises
n. Note and report suspicious persons.
(e.g., electricians, plumbers, telephone
maintenance personnel). If in doubt, call
o. Strictly control house keys.
their office to verify their identity before
allowing them in your home.
p. Place car in a locked garage.
c. Do not open the door to a caller at
q. Be alert for the unusual (e.g., the
night until the caller is identified by
examination through a window or door movement of furniture or the placing of
unusual wires).
viewer.
r. Consider the fitting of a panic alarm
d. Ensure that all door locks and window
bell to the outside of the house with
clasps are working.
switches upstairs and downstairs.
e. Consider installing a door security
s. Clear the area around the house of
chain, spyglass, or visitor intercom.
dense foliage or shrubbery.
f. Consider locking the driveway gates
t. Test your duress alarm if available.
with a security lock to prevent entry.
Make certain the members of your family
g. Consider installing security lights to understand the importance of the alarm and
how it works.
aid in viewing entrances.
u. Cooperate with law enforcement
h. Close curtains in a room before
personnel and abide by their security
turning on lights.

C-1

Appendix C
recommendations concerning your home’s
security.

3. Security To and From Work

4. Security at Official Functions
a. Discuss security requirements with
the person planning the function.

b. Travel to and from the function with
a. Vary your daily pattern as much as
possible. Leave and return at different escorts.
times. Use alternative routes, but notify
c. Choose the route carefully.
your office of chosen route prior to
departure.
d. Do not publicize planned attendance
b. Be discreet in forecasting movements, at official functions unless required.
but ensure that someone knows your
e. Attempt to sit away from both public
whereabouts at all times.
areas and windows.
c. Consider traveling to and from work
f. Encourage the sponsor(s) of the
with escorts, or travel with a neighbor.
function to close the curtains to minimize
d. Use defensive and evasive driving the likelihood that anyone outside will
techniques. Drill with your driver by be able to see inside and determine who
watching for suspicious cars and taking is attending the function and where they
are located. This is extremely important
evasive action.
for an evening function, when a well-lit
e. Keep car doors locked. Do not open interior can be easily viewed from
outside.
windows more than a few inches.
g. Request external floodlights be used
to illuminate the area around the building
g. Keep the trunk locked. Never leave where an evening function will occur.
large bulky items in the trunk of unattended
parked cars that would prevent locking the 5. Security at Private Functions
trunk.
a. Ensure that the host is aware of your
h. Examine car before entering to see if need for security and takes appropriate
there has been any interference. A small measures.
mirror on a rod is a cheap and effective
b. Have your personal staff assist a
method to inspect underneath cars. Do not
touch the vehicle until it has been civilian host if required.
thoroughly checked (look inside it, walk
c. Arrange for visitors to be subject to
around it, and look under it).
adequate security control.
i. Do not leave personal items exposed
d. Screen the invitation list, if possible.
in the car (e.g., uniform items, Serviceissued maps, official briefcases).
e. Vary times of sporting activities (e.g.,
j. Use the same precautions when you golfing, jogging).
drive a privately owned vehicle.
f. Park car in a safe area.

C-2

Joint Pub 3-07.2

Very Important Person and Senior Officer Security Measures
6. Security During Travel

f. Instruct children to immediately
report attempts of an approach to the
a. Book airline seats at the last moment. nearest responsible adult, and also to tell
Consider using an alias.
you as soon as possible.
b. Restrict the use of rank or title.

g. Instruct children to tell you where
they are, who they are with, and how long
c. Do not allow unknown visitors in they will be away from the house.
hotel room or suite.
h. Instruct children not to discuss what
you
do and to tell you if they are
d. Keep your staff and your family
questioned
about you by anyone.
members advised of your itinerary and
subsequent changes. Restrict this
i. Encourage children to report
information to those having a need to know.
suspicious incidents to you.

7. Security of Children
j. Accompany young children to and
from
bus stops, where necessary.
a. Ensure children’s rooms are not readily
accessible from outside the house.
k. Do not allow preschool children to
wander
from the house or play in areas
b. Instruct children never to admit strangers
where
they
cannot be supervised.
to the house.
l. Discourage children from answering
c. Teach children when and how to alert
the
door, especially during hours of
police or neighbors.
darkness.
d. Instruct children attending school to travel
m. Advise children attending schools
in groups or at least in pairs, use busy
away
from home to use the applicable
thoroughfares, and avoid play areas outside the
techniques
listed above in their daily
school.
activities.
e. Instruct children to refuse gifts or
approaches from strangers.

C-3

Appendix C

Intentionally Blank

C-4

Joint Pub 3-07.2

APPENDIX D
BUILDING SECURITY PROCEDURES
1. General

d. If building windows face public areas,
reinforce them with bullet resistant materials
A skilled and determined terrorist group can and cover them with heavy curtains.
penetrate most office buildings. However, the
presence and use of guards and physical
e. Monitor access to executive offices with
security devices (e.g., exterior lights, locks, a secretary, guard, or other individual who
mirrors, visual devices) create a significant screens all persons and objects entering
psychological deterrent. Terrorists are apt to executive offices.
shun risky targets for less protected ones. If
terrorists decide to accept the risk, security
f. Place ingress door within view of the
measures can decrease their chance of success. person responsible for screening personnel
Commanders should develop comprehensive and objects passing through the door.
building security programs and frequently
g. Doors may be remotely controlled by
conduct security surveys that provide the basis
for an effective building security program. installing an electromagnetic door lock.
These surveys generate essential information
h. The most effective physical security
for the proper evaluation of present security
conditions and problems, available resources, configuration is to have doors locked from
and potential security policy. Being just one within and have only one visitor access door
of the many facets in a complex structure, into the executive office area. Locked doors
security policies must be integrated with other should have panic bars.
important areas such as fire safety, normal
i. Depending upon the nature of the
police procedures, work environment, and
work transactions. The following information organization’s activities, deception measures
provides guidance when developing building such as a large waiting area controlling access
security procedures.
to several offices can be taken to draw
attention away from the location and function
of a particular office.
2. Office Accessibility
a. Buildings most likely to be terrorist
targets should not be directly accessible to the
public.

3. Physical Security Measures

a. Consider installing the following
security devices: burglar alarm systems
b. Executive offices should not be located (preferably connected to a central security
on the ground floor.
facility), sonic warning devices or other
intrusion systems, exterior floodlights, dead
c. Locate senior personnel at the inner core bolt locks on doors, locks on windows, and
of the building. This affords the best iron grills or heavy screens for windows.
protection and control of visitors and prevents
people outside the building from obtaining
b. If feasible, add a 15- to 20-foot fence or
visual surveillance.
wall and a comprehensive external lighting

D-1

Appendix D
system. External lighting is one of the at all times. Protect communications closets
cheapest and most effective deterrents to and utility areas with an alarm system.
unlawful entry.
p. Remove names and ranks on reserved
c. Position light fixtures where tampering parking spaces.
would be difficult and noticeable.
q. Empty trash receptacles daily
d. Check grounds to ensure that there are (preferably twice a day).
no covered or concealed avenues of approach
for terrorists and other intruders, especially
r. Periodically check all fire extinguishers
near entrances.
to ensure that they are in working order and
readily available. Periodically check all
e. Deny exterior access to fire escapes, smoke alarms to ensure that they are in
stairways, and roofs.
working order.
f. Manhole covers near the building should
be secured or locked.

4. Personnel Procedures

a. Stress heightened awareness by
g. Cover, lock, or screen outdoor openings personnel working in the building, because
(e.g., coal bins, air vents, utility access points). effective building security depends largely on
the actions and awareness of people.
h. Screen windows (particularly those near
the ground or accessible from adjacent
b. Develop and disseminate clear
buildings).
instructions on personnel security procedures.
i. Consider adding a thin, clear plastic sheet
c. Hold regular security briefings for
to windows to degrade the effects of flying building occupants.
glass in case of explosion.
d. Personnel should understand security
j. Periodically inspect the interior of the measures, appropriate responses, and should
entire building, including the basement and know who to contact in an emergency.
other infrequently used areas.
e. Conduct drills if appropriate.
k. Locate outdoor trash containers, storage
f. Senior personnel should not work late
bins, and bicycle racks away from the
on
a routine basis. No one should ever work
building.
alone.
l. Book depositories or mail slots should
g. Give all personnel, particularly
not be adjacent to, or in, the building.
switchboard personnel and secretaries, special
m. Mailboxes should not be close to the training in handling bomb threats and
extortion telephone calls. Ensure that a bomb
building.
threat checklist and a pen or pencil are located
n. Seal the top of voids and open spaces at each telephone instrument.
above cabinets, bookcases, and display cases.
h. Ensure the existence of secure
communications
systems between senior
o. Keep janitorial closets, service openings,
telephone closets, and electrical closets locked personnel, secretaries, and security personnel

D-2

Joint Pub 3-07.2

Building Security Procedures
with intercoms, telephones, and duress alarm of office personnel to strangers or telephone
systems.
callers.
i. Develop an alternate means of
v. Do not list the address and telephone
communications (e.g., two-way radio) in case numbers of potential terrorist targets in books
the primary communications systems fail.
and rosters.
j. Do not open packages or large envelopes
w. Avoid discussing travel plans or
in buildings unless the sender or source is timetables in the presence of visitors.
positively known. Notify security personnel
of a suspicious package.
x. Be alert to people disguised as public
utility crews (e.g., road workers, vendors) who
k. Have mail room personnel trained in might station themselves near the building to
bomb detection handling and inspection.
observe activities and gather information.
l. Lock all doors at night, on weekends, and
y. Note parked or abandoned vehicles near
when the building is unattended.
the entrance to the building or near the walls.
m. Maintain tight control of keys. Lock
z. Note the license plate number, make,
cabinets and closets when not in use.
model, year, and color of suspicious vehicles and
the occupants’ descriptions, and report that
n. When feasible, lock all building rest information to your supervisor, security officer,
rooms when not in use.
military and/or security police, or local police.
o. Escort visitors in the building and
maintain complete control of strangers who
seek entrance.

5. Controlling Entry

a. Consider installing a peephole, intercom,
interview grill, or small aperture in entry
p. Check janitors and their equipment doorways to screen visitors before the door is
before admitting them and observe while they opened.
are performing their functions.
b. Use a reception room to handle visitors,
q. Secure official papers from unauthorized thereby restricting their access to interior
viewing.
offices.
r. Update security clearances of employees
c. Consider installing metal detection
(especially foreign nationals).
devices at controlled entrances. Prohibit nonorganization members from bringing boxes
s. Do not reveal the location of building and parcels into the building.
personnel to callers unless they are positively
identified and have a need for the information.
d. Arrange building space so that
unescorted visitors are under the receptionist’s
t. Use extreme care when providing visual observation and to ensure that the
information over the telephone — remember, visitors follow stringent access control
telephone lines may be tapped.
procedures.
u. Do not give the names, positions, and
e. Do not make exceptions to the
especially home addresses or phone numbers building’s access control system.

D-3

Appendix D
f. Upgrade access control systems to
provide better security through the use of
intercoms, access control badges or cards, and
closed circuit television.

6. Law Enforcement Procedures
in the Area
a. Determine if the local or military law
enforcement personnel patrol the area.
b. Request patrol by the local or military
law enforcement personnel to include door
checks after duty hours.

possible. Bathrooms on upper floors are
good safe rooms.
• Store emergency and first aid supplies in
the safe room. Bars or grillwork on safe
room windows should be locked from the
inside to expedite escape.
• Keep keys to locks, a rope or chain ladder
to ease escape, and a means of
communication (e.g., telephone or radio
transmitter) in the safe room.
d. Select and identify emergency exits.

e. Determine evacuation and escape routes
c. Know the capabilities and limitations of
and
brief personnel.
local and military law enforcement.
f. Senior personnel and secretaries should
d. Use private guards if appropriate.
have
duress switches that alarm at a constantly
Ensure that their background checks are
manned
security office.
completed before they assume duties.
g. Maintain a set of written emergency and
e. Remember, the use of guards is a
contingency
procedures in the security office
deterrent, not the primary source of security.
to assist rescue efforts.
f. Brief and rehearse guards on appropriate
h. Emergency procedures should include
responses in case of a terrorist incident.
bomb threat and bomb search techniques.

7. Preparation for Emergencies
8. Public Areas
a. Maintain emergency items (e.g., supply
of fresh water, nonperishable food, candles,
a. Remove all potted plants and ornamental
lanterns, flashlights, extra batteries, blankets, objects from public areas.
portable radio, camping stove with spare fuel,
axe, first aid kit, and other appropriate items).
b. Empty trash receptacles frequently.
b. Ensure that all members of the
c. Lock doors to service areas.
organization know the location of fire
equipment, fire escapes, and other emergency
d. Lock trapdoors in the ceiling or floor,
exits as well as electrical service switches, including skylights.
weapons, and emergency radio.
e. Ensure that construction or placement
c. Select and prepare an interior safe room of furniture and other items would not conceal
for use in case of an attack.
explosive devices or weapons.
• The safe room should have a sturdy door
f. Keep furniture away from walls or
with a lock and an emergency exit if corners.

D-4

Joint Pub 3-07.2

Building Security Procedures
g. Modify curtains, drapes, or cloth covers someone from hiding a device in a locked
so that concealed items can be seen easily.
stall.
h. Box in the tops of high cabinets, shelves,
k. Install a fixed covering over the tops
or other fixtures.
on commode water tanks.
i. Exercise particular precautions in public
l. Use open mesh baskets for soiled towels.
rest rooms.
Empty frequently.
j. Install springs on stall doors in rest
m. Guards in public areas should have a way
rooms so they stand open when not locked. to silently alert the office of danger and to
Equip stalls with an inside latch to prevent summon assistance (e.g., foot-activated buzzer).

D-5

Appendix D

Intentionally Blank

D-6

Joint Pub 3-07.2

APPENDIX E
LOCK SECURITY
1. General
Locks or locking devices are the first line
of defense in any security system. Locks are
delaying devices of perimeter security and
should be effectively integrated into other
security and protection systems (e.g., alarms
and electronic controls). There are five major
categories of locks available for use in
residences or offices: cylindrical, mortise,
cylinder dead bolt, rim, and cylindrical lock
sets with dead bolt functions. Residence,
office, and vehicle security rely heavily upon
locking devices that vary in appearance,
function, and application.

2. Entryway Safety Factors
a. Windows. Windows pose more security
problems than doors. Windows are available
in a variety of styles and sizes and are often
designed with little or no thought to security.
The choice of window size or type is primarily
based on ventilation, lighting, and esthetics.
A window’s only security value is that, if it is
properly placed, it can make vulnerable areas
unobservable. Intruders use windows to enter
a building usually only as a last resort. They
avoid breaking glass because of the noise
made by its shattering and potential injury to
themselves. The following techniques can be
used to upgrade window security:
• For windows that slide up or down, the
simplest measure is to drill one or more
holes through the sash and frame and
insert a pin or nail from the inside to
prevent the window from being opened.
Key-operated locks are also available, but
they pose a safety hazard in the event the
window is needed for escape in an
emergency.

• Windows which don’t open or are not
intended for emergency exit should have
steel bars, mesh, or grill work installed
over them.
b. Doors. As important as the locking
device is, the security afforded is only as good
as the construction of the door and frame.
There are four major types of doors: flush
wood doors, turnstile, rail (panel) wood doors,
and metal doors. There are two types of flush
doors: hollow-core and solid-core. A hollowcore door is made of two sheets of thin veneer
overlaying hollow cardboard strips. A solidcore door is made of two sheets of wood
veneer overlapping a solid wooden core.
Solid-core doors not only provide a substantial
security advantage over hollow-core doors,
they also add sound insulation and fire
resistance. From a security perspective, a
metal door is superior to any wooden door.
A door’s vulnerability (as opposed to its
frame, hinges, or other accessory parts) is
defined in terms of penetrability. (How easy
is it to break through? How long does it take
to break through?) However, breaking
through a door is not the most common
method of defeating a door system. A far
more significant hazard is a door that fits
loosely to the frame, thereby allowing it to
be pried or forced open. Most wooden door
frames have solid wood, 3/4-inch to 1-inch
in depth. Beyond this, there is usually a 4inch to 6-inch gap of air between the frame
and the first stud. This construction
provides very little resistance to forced
entry. The following steps can be taken to
enhance door security:
• Strengthen the door frame. Secure
2-inch x 4-inch studs directly behind the
door frame’s facing.

E-1

Appendix E
• Install striker plates. Striker plates
vary in shape and are made for mortised
or surface-mounted locks. A close fit
between the lock and the striker plate
reduces door movement when the door
is closed. If the striker plate is not
securely affixed to a sturdy door frame,
it is easily forced apart.
• Secure the door hinge. The security
value of the door hinge is often
overlooked. A well-secured hinge
prevents forcing a door out of its frame.
From a security standpoint, the most
important feature of a hinge is whether it
is located on the inside or outside of the
door. If the hinge pins are on the outside,
they can be removed and the door
removed from the frame. There are
several solutions to this problem. One
of the most effective methods is to weld
the pins to the hinge. One method
requires drilling a small hole through the
hinge and into the pin, and then inserting
a second pin or small nail flush with the
hinge surface. Another method requires
inserting two large screws in the door (or
jamb) and leaving the screw head
exposed 1/2-inch. Drill a matching hole
on the opposite side so the screw head
fits into the hole when the door is shut.
• Secure sliding glass doors. Sliding glass
doors present easy access to a residence
and pose complex security problems.
These doors are available in a variety of
styles and sizes and are designed with
little or no thought to security. Many
factors affect the ability to secure this type
of entrance. It is not enough to prevent
the door from being moved horizontally,
it must also be secured vertically. The
channel in which the door rides provide
wide tolerances and facilitates vertically
lifting the door out of its channel. Most
locks designed for sliding glass doors
take into consideration both types of

E-2

movement and prevent the door from
being lifted out of the channel. The
simplest measure is to drill a hole through
the channel and the frame. Insert a pin
or nail to prevent the door from being
opened and insert sheet metal screws into
the upper channel, allowing them to
protrude far enough to prevent the door
from being lifted out of the channel.
c. Locking Mechanisms
• Cylindrical locks (key-in-knob locks) are
the most widely used locks in residential
construction. These locks are both
inexpensive and simple to rekey. Cheap
cylindrical locks have serious
shortcomings. Cheaper cylindrical locks
may not have a dead latch and may be
slipped open with a credit card or
celluloid strip. From a security point of
view, these locks are the least desirable.
• Mortise locks fit into a cavity cut into
the outer edge of the door. Since the
introduction of cylindrical locks, the
use of mortise locks has declined.
Mortise locks are more expensive to
install than cylindrical locks because
large sections of the door and jamb
have to be mortised to fit the lock. A
quality mortise lock should have a
dead bolt with enough throw to fit
securely into the door frame.
• Rim locks are erroneously referred to as
jimmy proof. Do not be misled by the
use of the phrase “jimmy proof” because
these locks can be compromised.
However, rim locks are one of the most
secure surface-mounted locks. Rim locks
are not usually used as the primary lock.
Install rim locks on the inside of the door
above the vulnerable primary jamb. If a
vertical dead bolt is used, the rim lock
makes an excellent auxiliary lock and is
very difficult to defeat.

Joint Pub 3-07.2

Lock Security
• Cylindrical lock sets with dead bolt
functions are comparative newcomers to
the security hardware market. They
combine the best features of a good
security lock — a dead bolt function with
a dead bolt lock. The better designs
include a 1-inch throw dead bolt, a
recessed cylinder to discourage forcible
removal, a concealed armor plate to resist
drilling, and a cylinder guard that spins
freely when the dead bolt is in the locked
position. The last feature makes it
virtually impossible for an intruder to
wrench the cylinder or cylinder guard off
the door. These lock sets include a panic
feature that ensures that the knob turns
freely from the inside to permit rapid exit
in case of emergency.
• Cylinder dead bolt locks are rapidly
becoming the most popular auxiliary
locks. They are installed above the
primary lock. The best designs have steel
bars and cylinder guards so they cannot
be twisted, pried, or broken off. Doublecylinder locks may be a safety hazard
where rapid escape is essential (e.g., in
the case of fire) and are prohibited by
many municipal codes in commercial
facilities because fire officials are
concerned that the need to find a key
delays escape in an emergency.

• Consider magnetic alarms if window or
door glass is within arm’s reach of a
locking device.
• Consider alarm foil, resident alarm
systems, and magnetic contacts if
residence has large picture windows or
sliding glass doors.
• Consider using padlocks to provide
security protection to critical areas
of the home. Padlocks should meet
the
following
minimum
requirements:
•• A heavy shackle — at least 9/32-inch
of hardened steel;
•• A double-locking mechanism that
locks the heel and toe;
•• A minimum five-pin tumbler on
tumbler locks; and
•• A key-retaining feature that prevents
removing the key unless the padlock is
locked.
• Use rim locks to provide additional
protection.
• Lock all vulnerable windows and doors
at night.

d. Lock Selection Guidelines
• Consider locking hardware as a longterm investment that requires planning
and exceptional quality.
• Match locks to the door and door frame
to create a strong integral unit.
• Ensure that entrance door locks have a
1-inch dead bolt, a recessed cylinder to
discourage forcible removal, and a
cylinder guard that spins freely.

• Ensure that entrance door hinges are
heavy duty, pinned in the hinge, and
equipped with door pins (metal pins or
screws).
• Consider the possible safety hazards
of using double-cylinder dead bolt
locks that require key action on both
sides.
• Check local fire safety codes before using
double-cylinder dead bolt locks.

E-3

Appendix E
• Fill hollow metal door frames behind the
striker plate with cement to prevent
forcing the frame.
• Restrict access or distribution of home
and office keys.

E-4

• Keep spare keys in a locked drawer or
filing cabinet.
• Incorporate heavy-duty, double-cylinder
door locks on office entrance doors if fire
and safety regulations permit.

Joint Pub 3-07.2

APPENDIX F
TELEPHONE CALL PROCEDURES
1. Upon receiving a threatening or suspicious telephone call:
a. Try to keep a verbatim record of the conversation.
b. Attempt to obtain the caller’s name, address, and telephone number. Point out to the
caller that by giving these details the caller is indicating that the call is a genuine warning.
c. Attempt to keep the caller talking and elicit further information if possible.
d. Summon assistance (through a telephone exchange) to trace the call and to corroborate
facts and opinions.
e. Comply with the caller’s request to be connected with another extension. Monitor the
call if possible. Alert the officer of the day.

2. During the call:
a. Try to obtain answers to the questions listed on the telephone bomb threat checklist
located in this appendix.
b. Try to determine the type of telephone call by contacting the operator immediately after
the call ends. Was the call operator-connected? If the call was operator-connected, can the
operator identify the source? Was it from a pay phone? If dialed from a pay phone, was it
direct dialed?

3. After the call:
After the call is completed, provide the police duty officer with details of the telephone call
and make a full written record of the conversation and any impressions, based on the
information annotated on the telephone bomb threat checklist. This could be invaluable to
the local or military police.

F-1

Appendix F
BUREAU OF ALCOHOL, TOBACCO AND FIREARMS (ATF)
BOMB THREAT CHECKLIST
Exact time of call ________________________________________________________
Exact words of caller _____________________________________________________
QUESTIONS TO ASK:
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.

When will the bomb explode? __________________________________________
Where is the bomb? __________________________________________________
What does the bomb look like? __________________________________________
What kind of bomb is it? ______________________________________________
What will cause it to explode? __________________________________________
Did you place the bomb? ______________________________________________
Why: _____________________________________________________________
Where are you calling from?____________________________________________
What is your address? _________________________________________________
What is your name? __________________________________________________

CALLERS VOICE (circle)
Calm
Stutter
Deep
Accent Loud

Disguised
Slow
Crying
Slurred

Nasal
Sincere Lisp
Squeaky
Normal

Angry
Rapid
Excited

Broken
Giggling
Stressed

If voice is familiar, whom did it sound like? ____________________________________
Were there any background noises? __________________________________________
Remarks: ______________________________________________________________
_____________________________________________________________________
_____________________________________________________________________
Person receiving the call: __________________________________________________
Telephone number call received at: __________________________________________
Date: _________________________________________________________________
Report immediately to: ___________________________________________________
(refer to bomb incident plan)

F-2

Joint Pub 3-07.2

APPENDIX G
CRISIS MANAGEMENT PLAN FORMAT
The format outlined on the following pages highlights areas of concern in crisis management
planning. It is not meant to be all inclusive or rigidly followed. Note: This is a local format
only and does not reflect a format developed and approved for use with operation plans or
operation plans in concept format prepared by the combatant commanders to fulfill tasks
assigned in the Joint Strategic Capabilities Plan, or as otherwise directed by the Chairman of
the Joint Chiefs of Staff.

Copy No. ____ of ____ Copies
Issuing Headquarters _________________
Location __________________________
Date-time-group_____________________
CRISIS MANAGEMENT PLAN
Refs: Maps, charts, and other relevant documents.
Time Zone: X
Task Organization: (List units organized to conduct antiterrorism operations. Include
attachments, supporting roles, and delegation of authority as necessary.)
1. SITUATION (Identify essential information in order to understand ongoing events.)
a. Terrorist Force (Identify terrorist composition, disposition, methods of operation,
estimated strength, and capabilities that could influence the crisis management operation.
Refer to appropriate annex.)
b. Response Forces (Explain response force abilities and responsibilities. Response
force ability can influence the crisis management mission.)
c. Attachments and Detachments (Address here or refer to an annex.)
d. Assumptions (Provide assumptions used as a basis for this plan [e.g., strength of
response force to be supported, support available from other agencies]).
• Tactical Situation Possibilities (Obtained from the commander’s planning guidance.)
• Personnel Situation (Provided by the personnel officer.)
• Logistic Situation (Provided by the logistics officer.)

G-1

Appendix G
• Legal Situation Possibilities (Provided by the staff judge advocate.)
• Public Affairs Considerations (Provided by PAO.)
2. MISSION (Identifies terrorism action mission. For example, “. . . to contain and neutralize
terrorist threats and actions aimed at the disruption of this installation.”)
3. EXECUTION
a. Concept of Operations (State commander’s tactical plan. Purpose is to inform. May
address how the commander will conduct combatting terrorism operations. Provides enough
detail to insure proper action by subordinates in the absence of specific instructions. If the
required details are extensive, address in an annex. If an operation involves two or more
distinct phases, designate each phase and use subparagraphs [e.g., Phase I, Phase II]).
b. Tasks (Identify specific tasks for each element of the command charged with executing
a crisis management mission. When giving multiple instructions, itemize and indicate priority
or sequence [e.g., commander, reaction force]).
c. Coordinating Instructions (Include coordination and control measures applicable to
two or more elements of the command.)
4. SERVICE SUPPORT (Provide a statement of service support instructions and
arrangements supporting the crisis management operation. Use the following subparagraphs
as required.)
a. General (Outline the general plan for service support.)
b. Materiel and Services (Address supply, transportation, labor [e.g., location of facilities,
collection points, maintenance priority], and services [e.g., type of service available, designation
and location of the unit, schedule of service] required.)
c. Medical Evacuation and Hospitalization (Provide the plan for evacuation and
hospitalization of sick, wounded, or injured personnel. Address evacuation responsibilities
and air evacuation policy.)
d. Personnel (Provide required information and instructions to supporting unit personnel.)
• Maintenance of Unit Strength
•• Strength Reports (Provide instructions for submitting status reports. Include
requirements for routine and special reports.)
•• Replacements (Address validating existing personnel requisitions, instructions for
submitting requisitions, and instructions for processing and removing replacements.)

G-2

Joint Pub 3-07.2

Crisis Management Plan Format
• Personnel Management (Address military and civilian personnel and civilian detainee
management procedures.)
• Development and Maintenance of Morale
•• Morale and Personnel Services (Provide postal and finance services, religious
activities, personal hygiene, and special services activity information.)
•• Mortuary Affairs (Include evacuation procedures and handling of personal effects.)
• Maintenance of Discipline, Law, and Order (Provided by military law enforcement
authority.)
• Miscellaneous (Include personnel administrative matters not specifically assigned to
another coordinating staff section or included in preceding subparagraphs.)
e. Miscellaneous (Provide special instructions or special reports not covered in preceding
paragraphs.)
5. COMMAND AND SIGNAL (Provide instructions for command and operation of
communications-electronics equipment. Communications-electronics instructions may refer
to an annex but should list the index and issue number of the command, control,
communications, and computers operation instructions in effect. If not already issued, give
instructions for control, coordination, and establishment of priorities in the use of
electromagnetic emissions. Command instructions include subordinate and higher unit
command post locations and designated alternate command posts.)
6. ACKNOWLEDGE INSTRUCTIONS
/s/
Commander
Annexes as applicable
Distribution:

G-3

Appendix G

Intentionally Blank

G-4

Joint Pub 3-07.2

APPENDIX H
CRISIS MANAGEMENT PLAN CHECKLIST
General. Unit antiterrorism success will depend on the degree and seriousness of the crisis
management planning. The following checklist identifies items for use by joint force
commanders and component commander staffs in analyzing antiterrorism plans within their
commands.
YES NO
1.

Intelligence and/or Counterintelligence

___

___

Does the plan allow for the threat analysis process (e.g., collection, analysis,
production, and dissemination) to aid in the identification of the local threat?

___

___

Does the plan consider restrictions placed on the collection and storage of
information?

___

___

Does the plan indicate an awareness of sources of information for the threat
analysis process (e.g., military intelligence, counterintelligence, Federal
agencies, and state and local authorities)?

___

___

Does the plan allow for liaison and coordination of information (e.g., establishing
a threat analysis committee)?

2.

Threat Assessment

___

___

Does the plan identify the local threat (immediate and long term)?

___

___

Does the plan identify other threats (e.g., national and international groups that
have targeted or might target US installations)?

___

___

Does the installation incorporate factors of the assessing the threat? Does it
address:

___

___

Geography of the area concerned;

___

___

Law enforcement resources;

___

___

Population cultural factors; and

___

___

Communications capabilities?

___

___

Does the plan establish a priority of identified weaknesses and vulnerabilities?

___

___

Is the threat assessment periodically updated?

H-1

Appendix H
3.

Security Countermeasures

___

___

Does the plan have specified THREATCONs and recommended actions?

___

___

Do security countermeasures include a combination of physical operations and
sound-blanketing security measures?

___

___

Do the THREATCONs correspond to Appendix BB of DODD O-2000.12H,
“Protection of DoD Personnel and Activities Against Acts of Terrorism and
Political Turbulence”?

4.

OPSEC

___

___

Have procedures been established that prevent terrorists from readily obtaining
information about plans and operations (e.g., not publishing the commanding
general’s itinerary, safeguarding classified material)?

___

___

Does the plan allow for in-depth coordination with the installations OPSEC
program?

___

___

Has an OPSEC annex been included in the contingency plan?

5.

Personnel Security

___

___

Has the threat analysis identified individuals vulnerable to terrorist attack?

___

___

Has a training program been established to educate both military and civilian
personnel in the proper techniques of personnel protection and security
commensurate with the local threat and the type of position held?

6.

Physical Security

___

___

Are special threat plans and physical security plans mutually supportive?

___

___

Do security measures establish obstacles to terrorist activity (e.g., guards, hostnation forces, lighting, fencing)?

___

___

Does the special threat plan include the threats identified in the threat statements
of higher headquarters?

___

___

Does the physical security officer assist in the threat analysis and corrective
action?

___

___

Is there obvious command interest in physical security?

___

___

Does the installation have and maintain detection systems and an appropriate
assessment capability?

H-2

Joint Pub 3-07.2

Crisis Management Plan Checklist
7.

Security Structure

___

___

Does the plan indicate that the FBI has primary domestic investigative and
operational responsibility in the United States and US territories?

___

___

Has coordination with the staff judge advocate been established?

___

___

Does the plan allow for close cooperation between principal agents of the
military, civilian, and host-nation communities and Federal agencies?

___

___

Does the plan clearly indicate parameters for use of force, including the briefing
of any elements augmenting military police assets?

___

___

Is there a mutual understanding between all local agencies (e.g. military, local
FBI resident or senior agent-in-charge, host-nation forces and local law
enforcement) that might be involved in a terrorist incident on the installation
regarding authority, jurisdiction, and possible interaction?

___

___

Has the staff judge advocate considered ramifications of closing the post (e.g.,
possible civilian union problems)?

___

___

Does the plan identify the DOS as having primary investigative and operational
responsibility overseas?

8.

Operations Center Training

___

___

Has the operational command and coordination center (operations center) been
established and exercised?

___

___

Is the operational command and coordination center based on the needs of the
installation while recognizing manpower limitations, resource availability,
equipment, and command?

___

___

Does the plan include a location for the operations center?

___

___

Does the plan designate alternate locations for the operations center?

___

___

Does the plan allow for the use of visual aids (chalkboards, maps with overlays,
bulletin boards) to provide situation status reports and countermeasures?

___

___

Does the plan create and designate a location for a media center?

___

___

Have the operations and media centers been activated together within the last
quarter?

___

___

Does the operations center have SOPs covering communications and reports
to higher headquarters?

H-3

Appendix H
___
9.

___

Does the operations center offer protection from terrorist attack?

Reaction Force Training

___

___

Has the force been trained and exercised under realistic conditions?

___

___

Has corrective action been applied to shortcomings and deficiencies?

___

___

Has the reaction force been formed and mission-specified trained (e.g., building
entry and search techniques, vehicle assault operations, countersniper
techniques, equipment)?

___

___

Has the reaction force been tested quarterly (alert procedures, response time,
overall preparedness)?

___

___

Has responsibility been fixed for the negotiation team? Has the negotiation
team been trained and exercised under realistic conditions?

___

___

Does the negotiation team have the proper equipment?

10. General Observations
___

___

Was the plan developed as a coordinated staff effort?

___

___

Does the plan outline reporting requirements (e.g., logs, journals, after-action
report)?

___

___

Does the plan address presence of the media?

___

___

Does the plan include communications procedures and communications nets?

___

___

Does the plan consider the possible need for interpreters?

___

___

Does the plan consider the need for a list of personnel with various backgrounds
to provide cultural profiles on foreign subjects and victims, as well as to assist
with any negotiation efforts?

___

___

Does the plan provide for and identify units that will augment military police
assets?

___

___

Does the plan delineate specific tasking(s) for each member of the operations
center?

___

___

Does the plan provide for a response for each phase of antiterrorism activity
(e.g., initial response, negotiation, assault)?

H-4

Joint Pub 3-07.2

Crisis Management Plan Checklist
___

___

Does the plan designate service support communications?

___

___

Does the plan make provisions for notification of accident and incident control
officer?

___

___

Does the plan provide for EOD support?

___

___

Does the plan take into consideration the movement from various locations,
including commercial airports, of civilian and military advisory personnel with
military transportation assets?

___

___

Does the plan allow for the purchase and/or use of civilian vehicles, supplies,
food, if needed (including use to satisfy a hostage demand)? Does the plan
make provisions for paying civilian employees overtime if they are involved in
a special threat situation?

___

___

Does the plan take into consideration the messing, billeting, and transportation
of civilian personnel?

___

___

Do appropriate personnel have necessary language training?

___

___

Is MWD support available?

H-5

Appendix H

Intentionally Blank

H-6

Joint Pub 3-07.2

APPENDIX J
THREATCON SYSTEM
SECTION I. BASIC
THREATCON PROCEDURES
1. General
The THREATCONs outlined below
describe the progressive level of a terrorist
threat to all US military facilities and
personnel under DODD 2000.12, “DoD
Combating Terrorism Program.” As approved
by the Chairman of the Joint Chiefs of Staff,
the terminology and definitions are
recommended security measures designed to
ease inter-Service coordination and support
of US military AT activities. The purpose of
the THREATCON system is to provide
accessibility to, and easy dissemination of,
appropriate information. The declaration,
reduction, and cancellation of THREATCONs
remain the exclusive responsibility of
commanders. Although there is no direct
correlation between threat information (e.g.,
intelligence summaries, warning reports, and
spot reports) and THREATCONs, such
information, coupled with the guidance
provided below, assists commanders in
making prudent THREATCON declarations.
THREATCONs may also be suffixed with the
geographic area deemed at risk. Once a
THREATCON is declared, the selected
security measures are implemented
immediately. NOTE: When used in AT plans,
recommend that the information contained in
this appendix be marked “For Official Use
Only” in accordance with DOD Regulation
5400.7-R. The DODD 2000.12, “DoD
Combating Terrorism Program,” recommended
measures are as follows:
a. THREATCON NORMAL exists
when a general threat of possible terrorist
activity exists but warrants only a routine
security posture.

b. THREATCON ALPHA applies
when there is a general threat of possible
terrorist activity against personnel and
facilities, the nature and extent of which
are unpredictable, and circumstances do
not justify full implementation of
THREATCON BRAVO measures.
However, it may be necessary to implement
certain
measures
from
higher
THREATCONs either resulting from
intelligence received or as a deterrent. The
measures in this THREATCON must be
capable of being maintained indefinitely.
• Measure 1. At regular intervals, remind
all personnel and dependents to be
suspicious and inquisitive about
strangers, particularly those carrying
suitcases or other containers. Watch for
unidentified vehicles on or in the vicinity
of US installations. Watch for abandoned
parcels or suitcases and any unusual
activity.
• Measure 2. The duty officer or personnel
with access to building plans as well as
the plans for area evacuations must be
available at all times. Key personnel
should be able to seal off an area
immediately. Key personnel required to
implement security plans should be oncall and readily available.
• Measure 3. Secure buildings, rooms,
and storage areas not in regular use.
• Measure 4. Increase security spot checks
of vehicles and persons entering the
installation and unclassified areas under
the jurisdiction of the United States.
• Measure 5. Limit access points for
vehicles and personnel commensurate
with a reasonable flow of traffic.

J-1

Appendix J
• Measure 6. As a deterrent, apply measures
14, 15, 17, or 18 from THREATCON
BRAVO, either individually or in
combination with each other.

• Measure 16. At the beginning and end
of each workday, as well as at other
regular and frequent intervals, inspect the
interior and exterior of buildings in
regular use for suspicious packages.

• Measure 7. Review all plans, orders,
personnel details, and logistic
requirements related to the introduction
of higher THREATCONs.

• Measure 17. Examine mail (above the
regular examination process) for letter or
parcel bombs.

• Measure 8. Review and implement
security measures for high-risk
personnel as appropriate.

• Measure 18. Check all deliveries to such
locations as messes and clubs. Advise
dependents to check home deliveries.

• Measure 9. As appropriate, consult local
authorities on the threat and mutual
antiterrorism measures.

• Measure 19. Increase surveillance of
domestic accommodations, schools,
messes, clubs, and other soft targets to
improve deterrence and defense and to
build confidence among staff and
dependents.

• Measure 10. To be determined.
c. THREATCON BRAVO applies when
an increased and more predictable threat of
terrorist activity exists. The measures in this
THREATCON must be capable of being
maintained for weeks without causing undue
hardship, affecting operational capability, and
aggravating relations with local authorities.
• Measure 11. Repeat measure 1 and warn
personnel of any other potential form of
terrorist attack.
• Measure 12. Keep all personnel
involved in implementing antiterrorist
contingency plans on call.
• Measure 13. Check plans for
implementation of the next THREATCON.
• Measure 14. Move cars and objects
(e.g., crates, trash containers) at least 25
meters from buildings, particularly
buildings of a sensitive or prestigious
nature. Consider centralized parking.
• Measure 15. Secure and regularly
inspect all buildings, rooms, and storage
areas not in regular use.

J-2

• Measure 20. Make staff and dependents
aware of the general situation in order to
stop rumors and prevent unnecessary
alarm.
• Measure 21. At an early stage, inform
members of local security committees of
actions being taken. Explain reasons for
actions.
• Measure 22. Physically inspect visitors
and randomly inspect their suitcases,
parcels, and other containers. Identify
the visitor’s destination. Ensure that
proper dignity is maintained and, if
possible, ensure that female visitors are
inspected only by a female qualified to
conduct physical inspections.
• Measure 23. Operate random patrols to
check vehicles, people, and buildings.
• Measure 24. Protect off-base military
personnel and military vehicles in
accordance with prepared plans. Remind
drivers to lock vehicles and check vehicles
before entering or exiting the vehicle.

Joint Pub 3-07.2

THREATCON System
• Measure 25. Implement additional
security measures for high-risk personnel
as appropriate.
• Measure 26. Brief personnel who may
augment guard forces on the use of
deadly force. Ensure that there is no
misunderstanding of these instructions.
• Measures 27. As appropriate, consult
local authorities on the threat and mutual
antiterrorism measures.
• Measures 28 and 29. To be determined.

• Measure 36. Increase patrolling of the
installation.
• Measure 37. Protect all designated
vulnerable points. Give special attention
to vulnerable points outside the military
establishment.
• Measure 38. Erect barriers and obstacles
to control traffic flow.
• Measure 39. Consult local authorities
about closing public (and military) roads
and facilities that might make sites more
vulnerable to attacks.

d. THREATCON CHARLIE applies
when an incident occurs or intelligence is
received indicating that some form of terrorist
action against personnel and facilities is
imminent. Implementation of measures in this
THREATCON for more than a short period
probably will create hardship and affect the
peacetime activities of the unit and its
personnel.

e. THREATCON DELTA applies in the
immediate area where a terrorist attack has
occurred or when intelligence has been received
that terrorist action against a specific location
or person is likely. Normally, this THREATCON
is declared as a localized condition.

• Measure 30. Continue, or introduce, all
measures listed in THREATCON
BRAVO.

• Measure 41. Continue, or introduce, all
measures listed for THREATCONs
ALPHA, BRAVO, and CHARLIE.

• Measure 31. Keep all personnel
responsible for implementing
antiterrorist plans at their places of duty.

• Measure 42. Augment guards as
necessary.

• Measure 32. Limit access points to the
absolute minimum.

• Measure 40. To be determined.

• Measure 43. Identify all vehicles within
operational or mission-support areas.

• Measure 33. Strictly enforce control of
entry. Randomly search vehicles.

• Measure 44. Search all vehicles and
their contents before allowing entrance
to the installation.

• Measure 34. Enforce centralized
parking of vehicles away from sensitive
buildings.

• Measure 45. Control access and
implement positive identification of all
personnel — no exceptions.

• Measure 35. Issue weapons to guards.
Local orders should include specific
orders on issue of ammunition.

• Measure 46. Search all suitcases,
briefcases, and packages brought into the
installation.

J-3

Appendix J
• Measure 47. Control access to all areas
a. THREATCON ALPHA is declared
under the jurisdiction of the United when a general threat of possible terrorist
activity is directed toward installations,
States.
vessels, and personnel, the nature and extent
• Measure 48. Make frequent checks of of which are unpredictable and where
the exterior of buildings and of parking circumstances do not justify full
implementation of THREATCON BRAVO
areas.
measures. However, it may be necessary to
• Measure 49. Minimize all administrative implement certain selected measures from
THREATCON BRAVO as a result of
journeys and visits.
intelligence received or as a deterrent. The
• Measure 50. Coordinate the possible measures in this threat condition must be
closing of public and military roads and capable of being maintained indefinitely.
facilities with local authorities.
• Measure 1. Brief crew on the threat, ship
security, and security precautions to be
• Measure 51. To be determined.
taken while ashore.

SECTION II. SHIPBOARD
TERRORIST THREAT
CONDITIONS
2. Shipboard Terrorist
THREATCON Measures
The measures outlined below are for use
aboard vessels and serve two purposes. First,
the crew is alerted, additional watches are
created, and there is greater security. Second,
these measures display the ship’s resolve to
prepare for and counter the terrorist threat.
These actions will convey to anyone
observing the ship’s activities that the ship is
prepared, the ship is an undesirable target, and
the terrorist(s) should look elsewhere for a
vulnerable target. The measures outlined
below do not account for local conditions and
regulations or current threat intelligence. The
ship’s command must maintain flexibility. As
threat conditions change, the ship’s crew must
be prepared to take actions to counter the
threat. When necessary, additional measures
must be taken immediately. The simple
solution to THREATCON CHARLIE or
DELTA is to get under way, but this option
may not always be available.

J-4

• Measure 2. Muster and brief security
personnel on the threat and ROE.
• Measure 3. Review security plans and
keep them available. Keep on call key
personnel who may be needed to
implement security measures.
• Measure 4. Consistent with local rules,
regulations, and SOFAs, post qualified
armed fantail sentry and forecastle sentry.
Rifles are the preferred weapon.
• Measure 5. Consistent with local rules,
regulations, and SOFAs, post qualified
armed pier sentry and pier entrance
sentry.
• Measure 6. Issue two-way radios to all
sentries, roving patrols, quarterdeck
watch, and response force. If practical,
all guards will be equipped with at least
two systems of communication (e.g.,
two-way radio, telephone, whistle, or
signal light).
• Measure 7. Issue night vision devices
to selected posted security personnel.

Joint Pub 3-07.2

THREATCON System
• Measure 8. Coordinate pier and fleet
landing security with collocated forces
and local authorities. Identify anticipated
needs for mutual support (security
personnel, boats, and equipment) and
define methods of activation and
communication.
• Measure 9. Tighten shipboard and pier
access control procedures. Positively
identify all personnel entering pier and
fleet landing area — no exceptions.
• Measure 10. Consistent with local rules,
regulations, and SOFAs, establish
unloading zone(s) on the pier away from
the ship.
• Measure 11. Deploy barriers to keep
vehicles away from the ship. Barriers
may be ship’s vehicles, equipment, or
items available locally.
• Measure 12. Post signs in local
language(s) to explain visiting and
loitering restrictions.
• Measure 13. Inspect all vehicles
entering pier and check for unauthorized
personnel, weapons, and/or explosives.
• Measure 14. Inspect all personnel, handcarried items, and packages before they
come aboard. Where possible, screening
should be at the pier entrance or foot of
brow.
• Measure 15. Direct departing and
arriving liberty boats to make a security
tour around the ship and give special
attention to the waterline and hull. Boats
must be identifiable night and day to
ship’s personnel.
• Measure 16. Water taxis, ferries, bum
boats, and other harbor craft require
special concern because they can serve

as an ideal platform for terrorists.
Unauthorized craft should be kept away
from the ship; authorized craft should
be carefully controlled, surveilled, and
covered.
• Measure 17. Identify and inspect work
boats.
• Measure 18. Secure spaces not in use.
• Measure 19. Regulate shipboard
lighting to best meet the threat
environment. Lighting should include
illumination of the waterline.
• Measure 20. Rig hawsepipe covers and
rat guards on all lines, cable, and hoses.
Consider using an anchor collar.
• Measure 21. Raise accommodation
ladders, stern gates, and jacob ladders
when not in use. Clear ship of all
unnecessary stages, camels, barges, oil
donuts, and lines.
• Measure 22. Conduct security drills to
include bomb threat and repel boarders
exercises.
• Measure 23. Review individual actions
in THREATCON BRAVO for possible
implementation.
• Measure 24. To be determined.
b. THREATCON BRAVO is declared
when an increased and more predictable threat
of terrorist activity exists. The measures in
this THREATCON must be capable of being
maintained for weeks without causing undue
hardships, without affecting operational
capability, and without aggravating relations
with local authorities.
• Measure 25. Maintain appropriate
THREATCON ALPHA measures.

J-5

Appendix J
• Measure 26. Review liberty policy in
light of the threat and revise it as
necessary to maintain the safety and
security of the ship and crew.
• Measure 27. Conduct divisional
quarters at foul weather parade to
determine the status of on-board
personnel and to disseminate
information.
• Measure 28. Ensure that an up-to-date
list of bilingual personnel for the
operational area is readily available.
Ensure that the warning tape in the pilot
house and/or quarterdeck that warns
small craft to remain clear is in both the
local language and English.
• Measure 29. Remind all personnel to:
(a) be suspicious and inquisitive of
strangers, particularly those carrying
suitcases or other containers; (b) be alert
for abandoned parcels or suitcases; (c)
be alert for unattended vehicles in the
vicinity; (d) be wary of any unusual
activities; and (e) notify the duty officer
of anything suspicious.
• Measure 30. Remind personnel to lock
their parked vehicles and to carefully
check them before entering.
• Measure 31. Designate and brief picket
boat crews. Prepare boats and place
crews on 15-minute alert. If the situation
warrants, make random picket boat
patrols in the immediate vicinity of the
ship with the motor whaleboat or gig.
Boat crews will be armed with M16
rifles, one M60 with 200 rounds of
ammunition, and 10 concussion
grenades.
• Measure 32. Consistent with local rules,
regulations, and SOFAs, establish
armed brow watch on pier to check

J-6

identification and inspect baggage before
personnel board ship.
• Measure 33. Man signal bridge or pilot
house and ensure that flares are available
to ward off approaching craft.
• Measure 34. After working hours, place
armed sentries on a superstructure level
from which they can best cover areas
about the ship.
• Measure 35. Arm all members of the
quarterdeck watch and SAT. In the
absence of a SAT, arm two members of
the self defense force (SDF).
• Measure 36. Provide shotgun and
ammunition to quarterdeck. If the
situation warrants, place sentry with
shotgun inside the superstructure at a site
from which the quarterdeck can be
covered.
• Measure 37. Issue arms to selected
qualified officers to include command
duty officer and assistant command duty
officer.
• Measure 38. Arm sounding and security
patrol.
• Measure 39. Muster and brief
ammunition bearers or messengers.
• Measure 40. Implement procedures for
expedient issue of firearms and
ammunition from small arms locker
(SAL). Ensure that a set of SAL keys
are readily available and in the possession
of an officer designated for this duty by
the commanding officer.
• Measure 41. Load additional small
arms magazines to ensure adequate
supply for security personnel and
response forces.

Joint Pub 3-07.2

THREATCON System
• Measure 42. Inform local authorities
of actions taken as the THREATCON
increases.
• Measure 43. Test communications with
local authorities and other US Navy ships
in port.
• Measure 44. Instruct watches to conduct
frequent random searches under piers,
with emphasis on potential hiding places,
pier pilings, and floating debris.
• Measure 45. Conduct searches of the
ship’s hull and boats at intermittent
intervals and immediately before it puts
to sea.
• Measure 46. Move cars and objects such
as crates and trash containers 100 feet
from the ship.
• Measure 47. Hoist boats aboard when
not in use.
• Measure 48. Terminate all public visits.
• Measure 49. Set materiel condition
YOKE, main deck and below.
• Measure 50. After working hours,
reduce entry points to the ship’s interior
by securing selected entrances from the
inside.

• Measure 54. Ensure that .50-caliber
mount assemblies are in place with
ammunition in ready service lockers (.50caliber machine guns will be maintained
in the armory, pre-fire checks completed,
and ready for use).
• Measure 55. Prepare fire hoses. Brief
designated personnel on procedures for
repelling boarders, small boats, and ultralight aircraft.
• Measure 56. Obstruct possible
helicopter landing areas in such a manner
as to prevent hostile helicopters from
landing.
• Measure 57. Review riot and crowd
control procedures, asylum-seeker
procedures, and bomb threat procedures.
• Measure 58.
Monitor local
communications (e.g., ship-to-ship, TV,
radio, police scanners).
• Measure 59. Implement additional
security measures for high-risk personnel
as appropriate.
• Measure 60. Review individual actions
in THREATCON CHARLIE for
possible implementation.
• Measures 61 and 62. To be determined.

• Measure 51. Duty department heads
c. THREATCON CHARLIE is declared
ensure that all spaces not in regular use when an incident occurs or intelligence is
are secured and inspected periodically. received indicating that some form of terrorist
action against installations, vessels, or
• Measure 52. If two brows are rigged, personnel is imminent. Implementation of
remove one of them.
this THREATCON for more than a short
period will probably create hardship and will
• Measure 53. Maintain capability to get affect the peacetime activities of the ship and
under way on short notice or as specified its personnel.
by SOPs. Consider possible relocation
sites (such as a different pier or
• Measure 63. Maintain appropriate
anchorage). Rig brow and accommodation
measures for THREATCONs ALPHA
ladder for immediate raising or removal.
and BRAVO.

J-7

Appendix J
• Measure 64. Cancel liberty. Execute
emergency recall.

platform. The helicopter should be
identifiable night and day from the ship.

• Measure 65. Be prepared to get under
way on one (1) hour’s notice or less. If
conditions warrant, request permission to
sortie.

• Measure 75. Activate antiswimmer
watch. (Portions of watch may already
be implemented by previous
THREATCON measures).

• Measure 66. Muster and arm SAT, BAF,
and RF. Position SAT and BAF at
designated location(s). Deploy RF to
protect command structure and augment
posted security watches.

• Measure 76. Issue weapons to selected
officers and chief petty officers in the
duty section (i.e., the commanding
officer, executive officer, department
heads).

• Measure 67. Place armed sentries on a
superstructure level from which they can
best cover areas about the ship.

• Measure 77. Issue concussion grenades
to topside rovers, forecastle and fantail
sentries, and bridge watch.

• Measure 68. Establish .50- or .30-caliber
machine gun positions.

• Measure 78. Erect barriers and obstacles
as required to control traffic flow.

• Measure 69. If available, deploy
STINGER surface-to-air missiles in
accordance with established ROE.

• Measure 79. Strictly enforce entry
control procedures and searches — no
exceptions.

• Measure 70. Energize radar and
establish watch.

• Measure 80. Enforce boat exclusion
zone.

• Measure 71. Ships with high-power
sonars operate actively for random
periods to deter underwater activity. Man
passive sonar capable of detecting boats,
swimmers, or underwater vehicles.
Position any non-sonar-equipped ships
within the acoustic envelope of sonarequipped ships.

• Measure 81. Minimize all off-ship
administrative trips.

• Measure 72. Man one or more repair
lockers. Establish communications with
an extra watch in damage control central.
• Measure 73. Deploy picket boat. Boats
should be identifiable night and day from
the ship (e.g., by lights or flags).
• Measure 74. If feasible, deploy a
helicopter as an observation or gun

J-8

• Measure 82. Discontinue contract work.
• Measure 83. Set materiel condition
ZEBRA, second deck and below.
• Measure 84. Secure from the inside all
unguarded entry points to the interior of
the ship.
• Measure 85. Rotate screws and cycle
rudder(s) at frequent and irregular
intervals.
• Measure 86. Rig additional firehoses.
Charge the firehoses when manned just
prior to actual use.

Joint Pub 3-07.2

THREATCON System
• Measure 87. Review individual actions in areas where the threat of terrorist attacks
in THREATCON DELTA for is high.
implementation.
a. THREATCONs ALPHA AND
• Measure 88. To be determined.
BRAVO
d. THREATCON DELTA is declared
when a terrorist attack has occurred in the
immediate area or intelligence has been
received that indicates a terrorist action against
a specific location or person is likely.
Normally, this THREATCON is declared as
a localized warning.
• Measure 89. Maintain appropriate
THREATCONs ALPHA, BRAVO, and
CHARLIE measures.
• Measure 90. Permit only necessary
personnel topside.
• Measure 91. Prepare to get under way
and, if possible, cancel port visit and
depart.
• Measure 92. Post sentries with fully
automatic weapons to cover possible
helicopter landing areas.
• Measure 93. Arm selected personnel of
the SDF.
• Measure 94. Deploy grenade launchers
to cover approaches to ship.

• Planning
•• Review THREATCONs ALPHA and
BRAVO measures.
•• Update THREATCONs ALPHA and
BRAVO measures as required.
• Briefing and Liaison
•• Brief all personnel on the threat,
especially pilots, ground support crews,
and air traffic controllers.
•• Inform local police of the threat.
Coordinate plans to safeguard aircraft
flight paths into and out of air stations.
•• Ensure that duty officers are always
available by telephone.
•• Prepare to activate contingency plans
and issue detailed air traffic control
procedures if appropriate.
•• Be prepared to receive and direct
aircraft from other stations.
• Precautions Inside the Perimeter

• Measure 95. To be determined.

SECTION III. AVIATION
FACILITY THREATCON
PROCEDURES
3. General
In addition to basic THREATCON
procedures, a variety of other tasks may
need to be performed at aviation facilities.
This is particularly true for airbases located

•• Perform thorough and regular
inspection of areas within the perimeters
from which attacks on aircraft can be
made.
•• Take action to ensure that no
extremists armed with surface-to-air
missiles can operate against aircraft
within the perimeter.
•• Establish checkpoints at all entrances
and inspect all passes and permits.

J-9

Appendix J
Identify documents of individuals
entering the area — no exceptions.
•• Search all vehicles, briefcases, and
packages entering the area.
•• Erect barriers around potential targets
if at all possible.

•• Coordinate with the local police on
any precautionary measures taken
outside the airfield’s perimeters.
•• Implement appropriate flying
countermeasures specified in SOPs when
directed by air traffic controllers.
• Precautions Inside the Perimeter

•• Maintain firefighting equipment and
conduct practice drills.
•• Hold practice alerts within the
perimeter.
• Precautions Outside the Perimeter
•• Conduct, with local police, regular
inspections of the perimeter — especially
the area adjacent to flight paths.
•• Advise the local police of any areas
outside the perimeter where attacks could
be mounted and that cannot be avoided
by aircraft on takeoff or landing.
•• Advise aircrews to report any unusual
activity near approach and overshoot
areas.

•• Inspect all vehicles and buildings on
a regular basis.
•• Detail additional guards to be on call
at short notice and consider augmenting
firefighting details.
•• Carry out random patrols within the
airfield perimeter and maintain
continuous observation of approach and
overshoot areas.
•• Reduce flying to essential operational
flights only. Cease circuit flying if
appropriate.
•• Escort all visitors.
•• Close relief landing grounds where
appropriate.

b. THREATCON CHARLIE
•• Check airfield diversion state.
• Planning
• Precautions Outside the Perimeter
•• Review THREATCON CHARLIE
measures.
•• Update THREATCON CHARLIE
measures as required.
• Briefing and Liaison

•• Be prepared to react to requests for
assistance.
•• Provide troops to assist local police
in searching for terrorists on approaches
outside the perimeter of military
airfields.

•• Brief all personnel on the increased
threat.

c. THREATCON DELTA

•• Inform local police of increased threat.

• Planning

J-10

Joint Pub 3-07.2

THREATCON System
•• Review THREATCON DELTA
measures.

•• Cease all flying except for specifically
authorized operational sorties.

•• Update THREATCON DELTA
measures as required.

•• Implement, if necessary, appropriate
flying countermeasures.

• Briefings and Liaison
•• Brief all personnel on the very high
levels of threat.
•• Inform local police of the increased
threat.

•• Be prepared to accept aircraft diverted
from other stations.
•• Be prepared to deploy light aircraft
and helicopters for surveillance tasks or
to move internal security forces.
• Precautions Outside the Perimeter

• Precautions Inside the Perimeter
•• Close military roads allowing access
to the airbase.

J-11

Appendix J

Intentionally Blank

J-12

Joint Pub 3-07.2

APPENDIX K
EXPLOSIVE DEVICE PROCEDURES
1. Search and Evacuation
Procedures for a Suspected
IED
a. Suspicion that an IED is within an
establishment often stems from a threatening
anonymous telephone call. Treat the call
seriously even though subsequent
investigation may prove it to be a false alarm
or hoax. Appendix F, “Telephone Call
Procedures,” provides advice on handling
anonymous telephone calls.
b. Upon receiving an anonymous warning
or threat, notify the military law enforcement
authorities or police immediately. Local SOPs
determine subsequent actions. Immediate
action may include search without evacuation,
movement of personnel within the
establishment, partial evacuation, or total
evacuation.
• Factors favoring a search before
movement of personnel include the
following:
•• There is a high incidence of hoax
telephone threats.
•• Effective security arrangements have
been established.
•• Information in the warning is
imprecise or incorrect.

• Factors favoring movement of personnel
before searching include the following:
•• The area (e.g., post or base) is
comparatively open.
•• Information in the warning is precise
as to matters of location, description of
device, timing, and motive for attack.
•• Prevailing threat of terrorist activity
is high.
•• A suspicious package or bomblooking devices are discovered.
c. Searching for a Suspected IED
• Use a nominated persons search when
the threat’s credibility is very low.
Predesignated individuals search
assigned areas. The search can be
completed in a short time or can be done
covertly.
• Use an occupant search when the threat’s
credibility is low. Occupants search their
own areas. The search is completed
quickly because occupants know their
area and are most likely to notice
anything unusual.

•• The prevailing threat of terrorist
activity is low.

• Use a team search when the threat’s
credibility is high. Search teams make a
systematic search of the area. The search
is slow and thorough, and places the
minimum number of personnel at risk.
Completely evacuate the area and ensure
that it remains evacuated until the search
is complete.

•• Physical security in place (checks of
all incoming packages, visitor escort)
would prevent the placement of a bomb.

• Use patrol-explosive MWD, if available,
as a final means of checking the situation
in each instance.

•• The caller sounded intoxicated,
amused, or very young.

K-1

Appendix K
d. Search Procedures
• Make an audio check and listen for
unusual sounds.
• Visually sweep the area up to the waist,
then sweep up to the ceiling. Do not
forget the tops of cabinets and cupboards.
• Perform a thorough and systematic
search in and around containers and
fixtures.
• Pass search results as quickly as possible
to the leader responsible for controlling
the search area.

h. Assembly Areas. Assembly areas are
preselected and well known to personnel.
Establish a clearly defined procedure for
controlling, marshalling, and checking
personnel within the assembly area. If
buildings or establishments are in a public
area, coordinate assembly areas with local
police. Assembly areas are chosen with the
following considerations:
• Assembly areas should be at least 200
meters and not less than 100 meters from
the likely target or building, if at all
possible.
• Locate assembly areas where there is
little chance of an IED being hidden.
Open spaces are best. Avoid car parking
areas — IEDs can be easily hidden in
vehicles.

e. Search Organization. Search parties
are designated by the commander or senior
DOD civilian in charge of the site. The person
controlling the search should possess a means
of tracking and recording the search results
• Select alternate assembly areas to reduce
(e.g., a diagram of the area). Delegate areas
the likelihood of ambush with a second
of responsibility to search team leaders who
device or small arms fire. If possible,
report to the person controlling the search
search the assembly area before
when their areas have been cleared. Pay
personnel occupy the space.
particular attention to entrances, toilets,
corridors, stairs, unlocked closets, storage
• Assembly areas should not be near
spaces, rooms, and areas not checked by usual
expanses of plate glass or windows. Blast
occupants — external building areas, window
effects can cause windows to be sucked
ledges, ventilators, courtyards, and spaces
outward rather than blown inward.
shielded from normal view. Searchers must
be familiar with the area so that they can
i. Routes to Assembly Areas. Choose
readily identify unusual or foreign objects.
routes to the assembly area so that personnel
do not approach the IED at any time. Preselect
f. Evacuation Procedures. Evacuation routes to the assembly area, but devise a
procedures depend upon circumstances. system to inform personnel of the location of
Prepare, publicize, and rehearse evacuation the suspected IED and alternate routes. Routes
plans in advance. Address alarm systems, prevent confusion and bunching and avoid
assembly areas, routes to assembly areas, potential hazards (e.g., plate glass, windows,
personnel evacuation response, building and and likely locations of additional IEDs).
area clearance, and evacuation drills.
j. Personnel Evacuation Response. Upon
g. Alarm System. The bomb threat alarm hearing the alarm, personnel secure all
system should be easily distinguished from classified documents, conduct a quick visual
the fire alarm.
search of their immediate working area, open

K-2

Joint Pub 3-07.2

Explosive Device Procedures
windows wherever possible, leave the
f. Cordon suspicious objects to a distance
building taking only valuable personal of at least 100 meters and cordon suspicious
belongings, leave doors open, and vehicles to a distance of at least 200 meters.
immediately proceed to the assembly area.
Ensure that no one enters the cordoned area.
Establish an ICP on the cordon to control
k. Building and Area Clearance. access and relinquish ICP responsibility to the
Establish procedures to ensure that threatened military law enforcement authorities or local
buildings and areas are cleared and to prevent police upon their arrival. Maintain the cordon
people from reentering the building. Establish until the military law enforcement authorities
a cordon to prevent personnel from entering or local police have completed their
the danger area. Establish an incident control examination or state that the cordon may stand
point (ICP) as the focal point for military law down. The decision to allow re-occupation
of an evacuated facility rests with the
enforcement and police control.
cognizant commander or senior DOD civilian
l. Evacuation Drills. Periodically practice in charge of the facility.
evacuation and search drills under the
supervision of the installation or unit senior 3. Reaction to an Exploded IED
officer. Hold drills in cooperation with local
police if possible. Avoid unnecessarily
a. Explosion Without Casualties
alarming personnel and civilians in adjacent
premises.
• Maintain the cordon. Allow only
authorized personnel into the explosion
area.
2. Discovery of a Suspected IED
Do not touch or move a suspicious object.
If it is possible for someone to account for the
presence of the object, then ask the person to
identify it with a verbal description. This
should not be done if it entails bringing
evacuated personnel back into the area. Take
the following actions if an object’s presence
remains inexplicable:
a. Evacuate buildings and surrounding
areas, including the search team.
b. Evacuated areas must be at least 100
meters from the suspicious object.

• Fight any fires threatening undamaged
buildings if this can be achieved without
risking personnel.
• Report the explosion to the military law
enforcement authorities or local police
if they are not yet in attendance.
• Report the explosion to the installation
operations center even if an EOD team
is on its way. Provide as much detail as
possible (e.g., time of explosion, number
of explosions, color of smoke, and speed
and spread of fire).

d. Inform the ICP that an object has been
found.

• Ensure that a clear passage for emergency
vehicles (e.g., fire trucks, ambulances)
and corresponding personnel is
maintained.

e. Keep person who located the object at
the ICP until questioned.

• Refer media inquiries to the PAO at the
operations center.

c. Establish a cordon and ICP.

K-3

Appendix K
• Establish an information center to handle
inquiries from the concerned friends and
relatives.

•• Location of the device — give as
much detail as possible.
•• Time of discovery.

b. Explosion With Casualties. The first
consideration is the effective, organized search
for and evacuation of casualties. People
naturally approach the explosion area to aid
in searching for casualties. The senior officer
must coordinate the search and keep the
number of searchers to the absolute minimum
because of the threat of IEDs and secondary
effects (e.g., falling masonry and fires).
Attempt to prepare an accurate casualty list
for notification of next of kin. It is far better
to release an accurate list of casualties a little
later than an incorrect list immediately.
Arrange for unaffected personnel to quickly
contact their next of kin.
c. Assisting the Threat Management
Team
• Pass available information to the
operations center. Do not delay reports
because of lack of information — report
what you know. Do not take risks to
obtain information.
• Include the following information in your
report:
•• Any warning received and if so, how
it was received.
•• Identity of the person(s) who
discovered the device.
•• How the device was discovered (e.g.,
casual discovery, organized search).

K-4

•• Estimated length of time the device
has been in its location.
•• Description of the device — give as
much detail as possible.
•• Safety measures taken.
•• Suggested routes to the scene.
•• Any other pertinent information.
• Access control.
•• Upon arrival, ensure that military law
enforcement authorities, local police, and
EOD vehicles are not impeded from
reaching the ICP.
•• Evacuate through building doors and
windows.
•• Obtain a diagram of the building and
try to obtain detailed plans of the public
service conduits (e.g., gas, electricity,
central heating). If unavailable, a sketch
can be drawn by someone with detailed
knowledge of the building.
•• Witnesses are invaluable and should
be on hand when military and local police
arrive. Witnesses include the person(s)
who discovered the device, witnessed the
explosion, or possesses detailed
knowledge of the building or area.

Joint Pub 3-07.2

APPENDIX L
JURISDICTIONAL AUTHORITY FOR HANDLING
TERRORIST INCIDENTS

L-1

LOCATION

INITIAL RESPONSE

PRIMARY AUTHORITY/
JURISDICTION

PRIMARY ENFORCEMENT
RESPONSIBILITY

EXERCISING CONTROL OF MILITARY
ASSETS

PRIMARY INVESTIGATIVE
RESPONSIBILITY

ON BASE

MILITARY POLICE

FBI/INSTALLATION
COMMANDER

FBI/INSTALLATION
COMMANDER

INSTALLATION OR UNIT COMMANDER
(SUPPORT FBI)

FBI/NCIS/PMO
CID/AFOSI

OFF BASE

CIVIL POLICE

FBI/CIVIL POLICE

FBI/CIVIL POLICE

ON BASE

MILITARY POLICE

HOST GOVERNMENT/DOS
INSTALLATION
COMMANDER

HOST GOVERNMENT/DOS
INSTALLATION
COMMANDER

INSTALLATION OR UNIT COMMANDER (IAW
APPLICABLE STATUS-OF-FORCES
AGREEMENT OR OTHER BILATERAL
AGREEMENTS GOVERNING THE
EMPLOYMENT OF MILITARY FORCES)

HOST GOVERNMENT/
NCIS/PMO
CID
AFOSI

OFF BASE

HOST-COUNTRY LAW
ENFORCEMENT

HOST GOVERNMENT/DOS

HOST GOVERNMENT/DOS

INSTALLATION OR UNIT COMMANDER (IAW
APPLICABLE STATUS-OF-FORCES
AGREEMENT OR OTHER BILATERAL
AGREEMENTS GOVERNING THE
EMPLOYMENT OF MILITARY FORCES)

HOST GOVERNMENT WITH
SUPPORT FROM US LAW
ENFORCEMENT AGENCIES
AS PROVIDED FOR IN
BILATERAL AGREEMENTS

WITHIN THE
UNITED STATES

FBI

OUTSIDE THE
UNITED STATES

NOTE:

Joint Pub 3-07.2

LEGEND:

Coordinate with the local Staff Judge Advocate to clarify authority and questions of jurisdiction. Coordinate with Department of State officials as required. Coordinate in
advance with local law enforcement agencies to ensure that support procedures are in place and established information/communication channels are functioning.
AFOSI
FBI
NCIS
PMO
CID
DOS

Air Force Office of Special Investigations
Federal Bureau of Investigation
Naval Criminal Investigative Service
Provost Marshal's Office
Criminal Investigation Division
Department of State

Figure L-1. Jurisdictional Authority for Handling Terrorist Incidents

Appendix L

L-2

JURISDICTIONAL AUTHORITY FOR HANDLING TERRORIST INCIDENTS

APPENDIX M
PUBLIC AFFAIRS CHECKLIST
1. General. Because terrorists seek media recognition, media information management
must be in the best interest of the hostage and the situation. The PAO screens information to
the media to ensure OPSEC and provides advice and counsel to those in charge. The following
checklist contains the planning considerations for the PAO in a crisis management situation.
___

Check with the center commander upon entering the operations center.

___

Revise the public affairs plan to meet the requirements of the situation including
a location for the media.

___

Disseminate information to the news media in accordance with the established
plan.

___

Control press releases.

___

Coordinate press releases with the commander, staff judge advocate, other
operations center staff, and higher echelon PAOs before release.

___

Control movement of news media personnel with press passes and escorts.

___

Obtain approval for the following items from the commander.
— News releases.
— News media personnel to enter outer perimeter.
— Release of photographs of suspects, victims, and immediate scene.
— Interviews with anyone other than the commander.
— Direct communication with press personnel and suspect(s).

2. Focus. The major public affairs focus of the antiterrorist plan should be to ensure that
accurate information is provided to the public (including news media) and to communicate a
calm, measured, and reasonable reaction to the ongoing event. Commanders should provide
the PAO officer with complete control over media activities.

M-1

Appendix M

Intentionally Blank

M-2

Joint Pub 3-07.2

APPENDIX N
MILITARY WORKING DOGS
1. Purpose
This appendix is designed to provide the
commander with minimal information
concerning the use of MWDs for AT
requirements. The military law enforcement
office supporting the area should be consulted
for specifics associated with using MWDs in
the operational area.

2. General
The DOD MWD program produces dual
purpose trained MWDs. These MWDs are
excellent for use in an AT program. Each Service
has MWDs, which are managed and controlled
by the law enforcement office at each installation.
The MWD program is designed to support
tactical operations and daily police
commitments. In addition, many host nations
have working dog programs that can be used to
support military operations. Coordination for
host-nation assistance should be done by the local
military law enforcement office to ensure
compatibility with mission requirements.

be injured, reflect the handler’s mood, and
have inexplicable off-days. Also, an MWD
can be affected by extremes in weather.
However, with intelligent handling and use
many of these disadvantages can be
minimized.

5. Antiterrorism Uses
The MWD provides considerable
benefit to AT programs. Special forces
teams have been known to carry special
weapons to eliminate MWDs guarding
facilities, thus indicating a strong
measure of effectiveness for the inclusion
of MWDs in AT plans. The following
are some of the possibilities:
a. Patrolling perimeters and critical facilities.
b. Searching for explosives.
c. Augmenting access control points.
d. Serving as a deterrent in riot and crowd
control situations.

3. Advantages
e. Serving as an early warning indicator for
An MWD is a compact, mobile, easily intrusions.
transported asset that can work in a variety of
f. Serving as an augmentation to military law
conditions, including confined spaces and
difficult terrain. MWDs will increase the speed enforcement capabilities.
of many operations and, by their ability to locate
explosives and/or firearms at a distance in the 6. Legal Considerations
right conditions, they can enhance the
effectiveness of searches and patrols. The MWD
The military law enforcement office
is an excellent deterrent in many circumstances. will coordinate with appropriate
command legal authorities to determine
procedures for MWD in a particular area.
4. Disadvantages
These ROE should be spelled out in the
An MWD can be distracted by other dogs, AT plan and practiced during training
animals, people, and food. It can tire, sicken, exercises.

N-1

Appendix N

Intentionally Blank

N-2

Joint Pub 3-07.2

APPENDIX O
REFERENCES
The development of Joint Pub 3-07.2 is based upon the following primary references:
1.

Public Law 99-399, “Omnibus Diplomatic Security and Antiterrorism Act of 1986.”

2.

DODD 2000.12, “DoD Combating Terrorism Program.”

3. DODD O-2000.12H, “Protection of DoD Personnel and Activities Against Acts of
Terrorism and Political Turbulence.”
4.

DODD 3025.1, “Military Support to Civil Authorities (MSCA).”

5.

DODD 3025.12, “Military Assistance for Civil Disturbances (MACDIS).”

6.

DODD 3025.15, “Military Assistance to Civil Authorities.”

7.

DODD 5025.1-M, “DoD Directives System Procedures.”

8.

DODD 5160.54, “DoD Key Asset Protection Plan (KAPP).”

9.

DODD 5210.84, “Security of DoD Personnel at US Missions Abroad.”

10. DODD 5240.1, “DoD Intelligence Activities.”
11. DODD 5240.1-R, “Procedures Governing the Activities of DoD Intelligence Components
that Affect United States Persons.”
12. DODD 5240.6, “Counterintelligence Awareness and Briefing Program.”
13. DODD 5525.5, “DoD Cooperation with Civilian Law Enforcement Officials.”
14. DODI 2000.14, Draft, “DoD Combating Terrorism Program Procedures.”
15. DODI O-2000.16, “DoD Combating Terrorism Program Standards.”
16. Defense Special Weapons Agency, Force Protection, Vulnerability Assessment Team,
“Guidelines for Assessment Team Members,” Initial Draft.
17. Commandant Instruction 16000.12, “Marine Safety Manual,” Volumes VII and X.
18. DOD Manual C-5210.41-M, “Nuclear Weapons Security Manual (U).”
19. Joint Pub 0-2, “Unified Action Armed Forces (UNAAF).”

O-1

Appendix O
20. Joint Pub 1-01, “Joint Publication System, Joint Doctrine and Joint Tactics, Techniques,
and Procedures Development Program.”
21. Joint Pub 1-02, “DOD Dictionary of Military and Associated Terms.”
22. Joint Pub 2-0, “Doctrine for Intelligence Support to Joint Operations.”
23. Joint Pub 3-0, “Doctrine for Joint Operations.”
24. Joint Pub 3-05, “Doctrine for Joint Special Operations.”
25. Joint Pub 3-05.3, “Joint Special Operations Operational Procedures.”
26. Joint Pub 3-07, “Joint Doctrine for Military Operations Other Than War.”
27. Joint Pub 3-07.7, “Joint Tactics, Techniques, and Procedures for Domestic Support
Operations.”
28. Joint Pub 3-08, “Interagency Coordination During Joint Operations.”
29. Joint Pub 3-10, “Doctrine for Joint Rear Area Operations.”
30. Joint Pub 3-10.1, “Joint Tactics, Techniques, and Procedures for Base Defense.”
31. Joint Pub 3-16, “Joint Doctrine for Multinational Operations.”
32. Joint Pub 3-54, “Joint Doctrine for Operations Security.”
33. CJCSI 3121.01, “Standing Rules of Engagement for US Forces.”
34. CJCSI 3150.25, “Joint After-Action Reporting System.”
35. CJCSM 3122.03, “Joint Operation Planning and Execution System Vol II: (Planning
Formats and Guidance).”

O-2

Joint Pub 3-07.2

APPENDIX P
ADMINISTRATIVE INSTRUCTIONS
1. User Comments
Users in the field are highly encouraged to submit comments on this publication to the
Joint Warfighting Center, Attn: Doctrine Division, Fenwick Road, Bldg 96, Fort Monroe,
VA 23651-5000. These comments should address content (accuracy, usefulness,
consistency, and organization), writing, and appearance.

2. Authorship
The lead agent and Joint Staff doctrine sponsor for this publication is the Director for
Operations (J-3).

3. Supersession
This publication supersedes Joint Pub 3-07.2, 25 June 1993, “Joint Tactics, Techniques,
and Procedures for Antiterrorism.”

4. Change Recommendations
a. Recommendations for urgent changes to this publication should be submitted:
TO:

JOINT STAFF WASHINGTON DC//J34/J7-JDD//

Routine changes should be submitted to the Director for Operational Plans and
Interoperability (J-7), JDD, 7000 Joint Staff Pentagon, Washington, DC 20318-7000.
b. When a Joint Staff directorate submits a proposal to the Chairman of the Joint
Chiefs of Staff that would change source document information reflected in this
publication, that directorate will include a proposed change to this publication as an
enclosure to its proposal. The Military Services and other organizations are requested
to notify the Director, J-7, Joint Staff, when changes to source documents reflected in
this publication are initiated.
c. Record of Changes:
CHANGE
COPY
DATE OF
DATE
POSTED
NUMBER
NUMBER
CHANGE
ENTERED BY
REMARKS
______________________________________________________________________
______________________________________________________________________
______________________________________________________________________

P-1

Appendix P
5. Distribution
a. Additional copies of this publication can be obtained through Service publication
centers.
b. Only approved pubs and test pubs are releasable outside the combatant commands,
Services, and Joint Staff. Release of any classified joint publication to foreign
governments or foreign nationals must be requested through the local embassy (Defense
Attaché Office) to DIA Foreign Liaison Office, PSS, Room 1A674, Pentagon,
Washington, DC 20301-7400.
c. Additional copies should be obtained from the Military Service assigned
administrative support responsibility by DOD Directive 5100.3, 1 November 1988,
“Support of the Headquarters of Unified, Specified, and Subordinate Joint Commands.”
By Military Services:
Army:

US Army AG Publication Center SL
1655 Woodson Road
Attn: Joint Publications
St. Louis, MO 63114-6181

Air Force:

Air Force Publications Distribution Center
2800 Eastern Boulevard
Baltimore, MD 21220-2896

Navy:

CO, Naval Inventory Control Point
700 Robbins Avenue
Bldg 1, Customer Service
Philadelphia, PA 19111-5099

Marine Corps:

Marine Corps Logistics Base
Albany, GA 31704-5000

Coast Guard:

Coast Guard Headquarters, COMDT (G-OPD)
2100 2nd Street, SW
Washington, DC 20593-0001

d. Local reproduction is authorized and access to unclassified publications is
unrestricted. However, access to and reproduction authorization for classified joint
publications must be in accordance with DOD Regulation 5200.1-R.

P-2

Joint Pub 3-07.2

GLOSSARY
PART I — ABBREVIATIONS AND ACRONYMS
AFOSI
AOR
ASD(C3I)

AT
ATCC

Air Force Office of Special Investigations
area of responsibility
Assistant Secretary of Defense (Command, Control,
Communications, and Intelligence)
Assistant Secretary of Defense (Force Management Policy)
Assistant Secretary of Defense (Special Operations and LowIntensity Conflict)
antiterrorism
Antiterrorism Coordinating Committee

BAF

backup alert force

C-B
CIA
CINC
CISO
CJCS
COM
CT
CTRIF

chemical-biological
Central Intelligence Agency
commander of a combatant command
counterintelligence support officer
Chairman of the Joint Chiefs of Staff
Chief of Mission
counterterrorism
Combatting Terrorism Readiness Initiative Fund

DIA
DOD
DODD
DODI
DOJ
DOS
DOT

Defense Intelligence Agency
Department of Defense
Department of Defense Directive
Department of Defense Instruction
Department of Justice
Department of State
Department of Transportation

EOD

explosive ordnance disposal

FAA
FBI
FCG
FP

Federal Aviation Administration
Federal Bureau of Investigation
Foreign Clearance Guide
force protection

HNS

host-nation support

IAW
ICP
IED
IR

in accordance with
incident control point
improvised explosive device
information requirement

ASD(FMP)
ASD(SO/LIC)

GL-1

Glossary
J-2
JRA
JRAC
JROC
JTF

Intelligence Directorate of a joint staff
joint rear area
joint rear area coordinator
Joint Requirements Oversight Council
joint task force

MOOTW
MOU
MWD

military operations other than war
memorandum of understanding
military working dog

NBC
NCIS
NRC
NSC

nuclear, biological, and chemical
Naval Criminal Investigative Service
National Response Center
National Security Council

OP
OPSEC
OSD
OSPG

observation post
operations security
Office of the Secretary of Defense
Overseas Security Policy Group

PAO
PPBS
PSYOP

public affairs officer
Planning, Programming, and Budgeting System
psychological operations

RF
ROE
R&R

reserve force
rules of engagement
rest & recuperation

SAC
SAL
SAT
SDF
SOFA
SOP

special agent in charge
small arms locker
security alert team
self defense force
status-of-forces agreement
standing operating procedure

THREATCON
TSA

terrorist threat condition
travel security advisory

USACIDC
USAMPS
USCG
USDA&T

United States Army Criminal Investigations Command
United States Army Military Police School
United States Coast Guard
Under Secretary of Defense for Acquisition and Technology

VA

vulnerability assessment

WMD

weapons of mass destruction

GL-2

Joint Pub 3-07.2

PART II — TERMS AND DEFINITIONS
aircraft piracy. Any seizure or exercise of
state of mind brought about by the existence
control, by force or violence or threat of
of a credible threat of unacceptable
force or violence or by any other form of
counteraction. (Joint Pub 1-02)
intimidation and with wrongful intent, of
an aircraft within the special aircraft force protection. Security program designed
jurisdiction of the United States. (Joint Pub
to protect Service members, civilian
1-02)
employees, family members, facilities, and
equipment, in all locations and situations,
antiterrorism. Defensive measures used to
accomplished through planned and
reduce the vulnerability of individuals and
integrated application of combatting
property to terrorist acts, to include limited
terrorism, physical security, operations
response and containment by local military
security, personal protective services,
forces. Also called AT. (Joint Pub 1-02)
and supported by intelligence,
counterintelligence, and other security
combatting terrorism. Actions, including
programs. (This term and its definition
antiterrorism (defensive measures taken to
replaces the existing term and its definition
reduce vulnerability to terrorist acts) and
and is approved for inclusion in the next
counterterrorism (offensive measures taken
edition of Joint Pub 1-02.)
to prevent, deter, and respond to terrorism),
taken to oppose terrorism throughout the high-risk personnel. Personnel who, by their
entire threat spectrum. (Joint Pub 1-02)
grade, assignment, symbolic value, or
relative isolation, are likely to be attractive
counterintelligence. Information gathered
or accessible terrorist targets. (Joint Pub
and activities conducted to protect against
1-02)
espionage, other intelligence activities,
sabotage, or assassinations conducted by or hostage. A person held as a pledge that certain
on behalf of foreign governments or
terms or agreements will be kept. (The
elements thereof, foreign organizations, or
taking of hostages is forbidden under the
foreign persons, or international terrorist
Geneva Conventions, 1949). (Joint Pub
activities. Also called CI. (Joint Pub 1-02)
1-02)
counterintelligence support. Conducting improvised explosive device. A device
counterintelligence activities to protect
placed or fabricated in an improvised
against espionage and other foreign
manner incorporating destructive, lethal,
intelligence activities, sabotage,
noxious, pyrotechnic, or incendiary
international terrorist activities, or
chemicals and designed to destroy,
assassinations conducted for, or on behalf
incapacitate, harass, or distract. It may
of, foreign powers, organizations, or
incorporate military stores, but is normally
persons. (Joint Pub 1-02)
devised from nonmilitary components.
Also called IED. (This term and its
counterterrorism. Offensive measures taken
definition modifies the existing term and
to prevent, deter, and respond to terrorism.
definition and is approved for inclusion in
Also called CT. (Joint Pub 1-02)
the next edition of Joint Pub 1-02)
deterrence. The prevention from action by incident control point. A designated point close
fear of the consequences. Deterrence is a
to a terrorist incident where crisis

GL-3

Glossary
management forces will rendezvous and operations security. A process of identifying
establish control capability before initiating a
critical information and subsequently
tactical reaction. Also called ICP. (This term
analyzing friendly actions attendant to
and its definition modifies the existing term
military operations and other activities to:
and definition and is approved for inclusion
a. Identify those actions that can be
in the next edition of Joint Pub 1-02)
observed by adversary intelligence systems.
b. Determine indicators hostile intelligence
initial response force. The first unit, usually
systems might obtain that could be
military police, on the scene of a terrorist
interpreted or pieced together to derive
incident. (Joint Pub 1-02)
critical information in time to be useful to
adversaries. c. Select and execute
installation. A grouping of facilities, located
measures that eliminate or reduce to an
in the same vicinity, which support
acceptable level the vulnerabilities of
particular functions. Installations may be
friendly actions to adversary exploitation.
elements of a base. (Joint Pub 1-02)
Also called OPSEC. (Joint Pub 1-02)
installation commander. The individual physical security. That part of security
responsible for all operations performed by
concerned with physical measures designed
an installation. (Joint Pub 1-02)
to safeguard personnel; to prevent
unauthorized access to equipment,
insurgent. Member of a political party who
installations, material and documents; and
rebels against established leadership. (Joint
to safeguard them against espionage,
Pub 1-02)
sabotage, damage, and theft. (Joint Pub
1-02)
intelligence. 1. The product resulting from
the collection, processing, integration, prevention. The security procedures
analysis, evaluation, and interpretation of
undertaken by the public and private sector
available information concerning foreign
in order to discourage terrorist acts. (Joint
countries or areas. 2. Information and
Pub 1-02)
knowledge about an adversary obtained
through observation, investigation, proactive measures. In antiterrorism,
analysis, or understanding. (Joint Pub 1-02)
measures taken in the preventive stage of
antiterrorism designed to harden targets and
negotiations. A discussion between
detect actions before they occur. (Joint Pub
authorities and a barricaded offender or
1-02)
terrorist to effect hostage release and
terrorist surrender. (Joint Pub 1-02)
status-of-forces agreement. An agreement
which defines the legal position of a visiting
open-source intelligence. Information of
military force deployed in the territory of a
potential intelligence value that is available
friendly state. Agreements delineating the
to the general public. Also called OSINT.
status of visiting military forces may be
(Joint Pub 1-02)
bilateral or multilateral. Provisions pertaining
to the status of visiting forces may be set forth
operations center. The facility or location
in a separate agreement, or they may form a
on an installation, base, or facility used by
part of a more comprehensive agreement.
the commander to command, control, and
These provisions describe how the authorities
coordinate all crisis activities. (Joint Pub
of a visiting force may control members of
1-02)
that force and the amenability of the force or

GL-4

Joint Pub 3-07.2

Glossary
its members to the local law or to the authority
of local officials. To the extent that agreements
delineate matters affecting the relations
between a military force and civilian
authorities and population, they may be
considered as civil affairs agreements. Also
called SOFA. (Joint Pub 1-02)
terrorism. The calculated use of unlawful
violence or threat of unlawful violence
to inculcate fear; intended to coerce or
to intimidate governments or societies in
the pursuit of goals that are generally
political, religious, or ideological. (This
term and its definition replaces the
existing term and its definition and is
approved for inclusion in the next edition
of Joint Pub 1-02.)
terrorist. An individual who uses violence,
terror, and intimidation to achieve a result.
(Joint Pub 1-02)
terrorist groups. Any element regardless of
size or espoused cause, which repeatedly
commits acts of violence or threatens
violence in pursuit of its political, religious,
or ideological objectives. (Joint Pub 1-02)

THREATCONs resulting from intelligence
received or as a deterrent. The measures
in this THREATCON must be capable of
being
maintained
indefinitely.
b. THREATCON
BRAVO—This
condition applies when an increased and
more predictable threat of terrorist activity
exists. The measures in this THREATCON
must be capable of being maintained for
weeks without causing undue hardship,
affecting operational capability, and
aggravating relations with local authorities.
c. THREATCON CHARLIE—This
condition applies when an incident occurs
or intelligence is received indicating some
form of terrorist action against personnel
and facilities is imminent. Implementation
of measures in this THREATCON for more
than a short period probably will create
hardship and affect the peacetime activities
of the unit and its personnel.
d. THREATCON
DELTA—This
condition applies in the immediate area
where a terrorist attack has occurred or
when intelligence has been received that
terrorist action against a specific location
or person is likely. Normally, this
THREATCON is declared as a localized
condition. (Joint Pub 1-02)

terrorist threat conditions. A Chairman of
the Joint Chiefs of Staff-approved program threat analysis. In antiterrorism, threat
standardizing the Military Services’
analysis is a continual process of compiling
identification of and recommended
and examining all available information
responses to terrorist threats against US
concerning potential terrorist activities by
personnel and facilities. This program
terrorist groups which could target a facility.
facilitates inter-Service coordination and
A threat analysis will review the factors of
support for antiterrorism activities. Also
a terrorist group’s existence, capability,
called THREATCONs. There are four
intentions, history, and targeting, as well as
THREATCONs
above
normal:
the security environment within which
a. THREATCON
ALPHA—This
friendly forces operate. Threat analysis is
condition applies when there is a general
an essential step in identifying probability
threat of possible terrorist activity against
of terrorist attack and results in a threat
personnel and facilities, the nature and
assessment. (Joint Pub 1-02)
extent of which are unpredictable, and
circumstances do not justify full threat and vulnerability assessment. In
implementation of THREATCON BRAVO
antiterrorism, the pairing of a facility’s
measures. However, it may be necessary
threat analysis and vulnerability analysis.
to implement certain measures from higher
(Joint Pub 1-02)

GL-5

Glossary

Intentionally Blank

GL-6

Joint Pub 3-07.2

JOINT DOCTRINE PUBLICATIONS HIERARCHY
JOINT PUB 1
JOINT
WARFARE

JOINT PUB 0-2
UNAAF

JOINT PUB 1-0

JOINT PUB 2-0

JOINT PUB 3-0

JOINT PUB 4-0

JOINT PUB 5-0

JOINT PUB 6-0

PERSONNEL

INTELLIGENCE

OPERATIONS

LOGISTICS

PLANS

C4 SYSTEMS

All joint doctrine and tactics, techniques, and procedures are organized into a comprehensive hierarchy as
shown in the chart above. Joint Pub 3-07.2 is in the Operations series of joint doctrine publications. The
diagram below illustrates an overview of the development process:

STEP #1
Project Proposal
STEP #5
Assessments/Revision
! The CINCS receive the pub
and begin to assess it during
use
! 18 to 24 months following
publication, the Director J-7,
will solicit a written report from
the combatant commands and
Services on the utility and
quality of each pub and the
need for any urgent changes or
earlier-than-scheduled
revisions

! Submitted by Services, CINCS, or Joint Staff
to fill extant operational void
!
J-7 validates requirement with Services and
CINCs
! J-7 initiates Program Directive

STEP #2
Program Directive
! J-7 formally staffs with
Services and CINCS
! Includes scope of
project, references,
milestones, and who will
develop drafts
! J-7 releases Program
Directive to Lead Agent.
Lead Agent can be
Service, CINC, or Joint
Staff (JS) Directorate

! No later than 5 years after
development, each pub is
revised

Project
Proposal

Assessments/
Revision
ENHANCED
JOINT
WARFIGHTING
CAPABILITY

Program
Directive
JOINT
DOCTRINE
PUBLICATION

CJCS
Approval

STEP #4
CJCS Approval
! Lead Agent forwards proposed pub to Joint
Staff
! Joint Staff takes responsibility for pub, makes
required changes and prepares pub for
coordination with Services and CINCS
! Joint Staff conducts formal
staffing for approval as a Joint Publication

Two
Drafts

STEP #3
Two Drafts
! Lead Agent selects Primary Review
Authority (PRA) to develop the pub
! PRA develops two draft pubs
! PRA staffs each draft with CINCS,
Services, and Joint Staff



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