T3 B22 Warren Bass Workplan Fdr- Entire Contents- Withdrawal Notice for 6-2-03 Plan and 6-6-03 Proposed Action Plan 067

8/14/2019 T3 B22 Warren Bass Workplan Fdr- Entire Contents- Withdrawal Notice for 6-2-03 Plan and 6-6-03 Proposed Action

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I n i t i a l W o r k P l a n ot the ( Jount e r t e r ronsm Pol icy Team Pag e 1 ot y

Proposed Action PlanStrategy Section of the Counterterrorism Policy Team

Warren Bas sTeam 3

Draf t : M a y 27,2003Revised: June 6, 2003

Key Questions about StrategyThe pol icy team wil l seek to determine why t he United States did not successfully stop al-Qa' ida beforeSeptember 11. I t will also assess th e effectiveness o f U.S. counter terror ism pol icy today.The s tra tegy sect ion wil l te l l th e story of how America 's overal l counter terror ism grand s tra tegy evolvedas the al-Qa' ida threat grew during both the Clinton and Bush administrations, examining such keyev en ts as the 1993 W orld Trade C enter a t tack, th e 1998 Embassy bombings, th e 2000 attack o n t h eU.S.S. Cole, a n d 9/11 i tself . This sect ion wil l a l lude to other issuesespecially the ins truments , or thetac t ics where b y the ov era l l s tr a teg y was implementedbut will seek to focus on an eagle 's-eye view o fcoun te r te r ror i s m p o l i c y . I ts focus wil l b e on grand s tra tegy, n o t o n t h e closer- to- the-ground detai ls of theins truments sect ion.In p ar t icu la r , th e s t ra teg y sec t ion p lans to ans wer th e f o l lowing q uest ions :

W h a t w a s U.S. counter terro r ism pol i cy, and how d i d it evolvepar t icular ly f rom th e 1998embassy b omb in g s th ro ug h th e immed ia te a f te rmath of 9 /11?

W e r e t h e r e g a p s in America's strategy, an d i f so, how did p ol icy ma kers a d d res s them? W hat f ac tors h ind ere d p ol icy makers ? D id they effec t ively wid en the i r r ang e o f o p t i o n s a n d c r e a t eboth public an d in tern at io na l support for greater act iv ism? Did the s ta ted pol icy match actual pol icy?

Th is s ec tion wi l l a l s o conclud e wi th recomm end a t io ns a b out whe the r the Un i ted S ta tes has the r i gh tst ra tegy fo r f ight ing al-Qa' ida a n d te r ror i s m tod ay , ab ou t which chan g es s hou ld be m a d e , a n d ab outwhi c h p o l i c y m a k e r s a re respons ib le fo r m a k i n g th e m .Narrative Outline

1. Background I: Responding to State-Sponsored Terror ism, 1968-93 A b r ie f ov erv ie w, f rom s econd ary s ources, of the Ame r ican en coun te r wi th t e r ror i s m since thestar t o f i n t e r n a t i o n a l h i j a c k i n g p l a c e d th e issue o n t h e w o r l d a g e n d a P a r t i c u l a r m e n t i o n w i l l be m a d e of the 1983 a n d 1984 suicide bombings in L e b a n o n , th e 1986ra ids o n L i b y a , P a n A m 103, a n d s ta te sponsors o f t e r r o r i s m


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I n i t i a l W o r k F l a n o t t he C o u n t e r t e r r o n s m Po l ic y Team f age 2 o t

NB: To ensu re tha t th i s sec t ion mee ts Commissioner Lehman 's ex p ec ta t i on s , t r i age l imi ted stafft ime, an d p rov id e a rob u st p reamb le to ou r mon ograp h, the t eam ma y wish to turn th i s sec t ionove r t o a consu l t an t .2. Background U ~ P ^ r m n r l i n g f t r t r -Pr rTTFTrfNlQ I ' j i l n , 1QQ1 Q R

so rne wh a t mo re deta i led d iscussion o f America's strategy, sti l l based largely o n s e c o n d a r ysources but now leavened wi th some documents 1993 W orld Trad e Center b omb ing and response June 1993 T o m a h a w k strike on Baghdad in reprisal for Iraq's April 1993 plot to k i l l f o rmerPresident Bush in Kuwai t A um Shinr iky o 's a t tack on the Tokyo subway, March 1995 Oklaho ma Ci ty , Ap r i l 1 9 , 1 9 9 5

\ Khob ar T owe rs , June 2 5 , 1 9 9 5X PDD-39, June 21, 1995

V3. Strategy I: P o l i c y f r o m 1998 to the End of the Cl in ton Ad min is t r a t i on F r o m th e embassy bombings t o t h e Cole

4. Strategy II: P o l i c y f r o m the Start of the Bush Adminis t ra t ion to 9 /11 F r o m the Cole to 9/11, including quest ions o f t ransi t ion

5. Strategy III: P o l i c y f r o m September 11-20, 2001 From 9/11 to President Bush's speech to Congress

6. Recommend a t ionsNotional Docu m ent Review L ist

The st ra tegy sect ion wi l l focus wi l l o n d ocu ments f ro m the W hi te Hou se , esp ec ia l ly th e N S C , a s w e l l a ssome d o c u m e n t s f rom the Sta te Depar tmen t , the Defense Depar tmen t , a nd the CIA ( in i ts role a s ashaper in set t ing overa l l U.S. foreign pol icy s t ra tegy). This list w i l l g r o w a n d b ecome more sp ec i f i c a sthe i nv es tiga t ion p roceed s . O ur focu s wi l l rema in o n t h e period af te r Janu a ry 1998, a l thou gh we a s ateam wil l need to mak e a s tr a teg ic d ec is ion ab ou t which po in t t o u se to end ou r i n v e s t i g a t i o n w h i c hobviously could shape the na rra t ive decisively.W e wil l seek to rev iew op t ions p ap ers , s tr a t egy p ap ers , p o l i cy recom men d a t ion s , con c lu sion s , min u tes ,a n d o t h e r d o c u m e n t s i n c l u d i n g p red ec is iona l d ocu ments , which add a f a r r ich er sense of the e v o l u t i o no f a s t r a t egy .D oc um e nts pa r t i c u la r ly p e r t i n e n t to th is sect ion i nc lude :

P r e s i d e n t i a l D e c i si o n D i r e c t i v e s a n d N a t i o n a l S e c ur i t y P r e s i d e n t i a l D i r e c t i v e s r e l a t e d toco u n t e r t e r r o r i sm p o l i c y ;


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i n i t i a l W o r k F l a n ot the C o u n t e r t e r r o n s m Pol icy Team ^age -3 o l

Recor ds o f discussions o f counter ter ror ism policy, par t icular ly among "Small Group" a n d"Counter ter ror ism Securi ty Group" members; Recor ds of the Transnat ional Threats Directorate at the Nat ion a l Securi ty Counci l . Th is wo u ldinc lude br ief ing memos, meeting notes, and perhaps selected e-mails rela ted, to key even ts ; State Depar tment records, from both Foggy Bottom a nd t h e f ield , re lated to counter ter ror ism

pol icy . The initial focus will be on documents from th e Special Coordinator fo r Counter ter ror ism'sOffice, th e deliberat ions o f senior State Depar tment off icials , a n d selected documents related topolicy toward k ey states i n t he war on terrorism, particular ly Pakistan a n d Saudi Arabia; TheDefense Department, the Joint Chiefs of Staff, and key commands' (CENTCOM, SOCOM)documents related to counterterrorism strategy, particular ly rela ted to the use o f f e r e e ;

Moreover , U.S. missions in Pakistan a n d Saudi Arabia regular ly found themselves enmeshed indiplomatic exchanges that shaped America's overall counterterrorism s t ra tegy. The strategy section willseek to review documents to and from key officials at these posts.A first r ough cut o f the documents most useful to the strategy team would include th e f o l l o w i n g :NSC DOCUMENTS RELATED TO :

Aug . 7/98: East A fr ica bombin gs Aug. 20/98 retaliatory str ikes on a l -Qa'ida camps in Afghan is tan a n d al-Shifa faci l i ty inKhartoum, including all NSC/CSG/TNT discussions of avenues of response to the embassybom bings 1999-2001 atte mpts to target UBL , including abor ted cruise missile s trikes post-1998 NSC requests for further military options on UBL and al-Qa'ida post-199 8 cover t operat ions in Afghanistan, including t ies to Afghan m i l i t i as a n d loca l agen ts a n dinser t ion of CIA operat ives discussions with Saudi Arabia and UAE on t e r r o r is t f inanc ing 2001 in teragency review o f po l icy o n al-Qa'ida, led by Clar ke , in c lud in g d iscuss ions of use ofPredato r , armin g of Uzbeks or o ther proxy force to f ight a l-Qa' ida, and in creased suppor t forNor thern All iance, as well as other policies considered A u g . 13, 2001 Deputies Committee meeting o n al-Qa'ida April 30, 2001 Deputies Committee meeting on al-Qa'ida July 2001 an d ear l ier Deputies Committee meetings related to Ju ly dec is ion to se t goal o fe l imin a t in g a l -Qa ' ida r a ther than r o l l ing it back Sep t . 4 /01 Pr inc ipa ls Co m m it tee m e et ing o n al-Qa' ida al l NS C, p r in c ipa ls , depu t ies , a n d w a r cab ine t m eet in gs , Sep t . 11-20, 2001 high-level m e et in gs be tween U.S ., Saud i , a n d P a k i s t a n i off ic ia ls , Aug. 1998 to Sept. 20, 2001


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initial Work flan ot the CJounterterronsm Policy Team ^age 4 ot yi

DEC ISION DIRECTIVES: June 21 /95: PDD -39 (centralizing CT policy in White House) Other Clinton administration PDDs Draf t NSPD -9 (ready to go to President Bush on Sept. 10/01). NSPDs 1-8 of 2001

PENTAGON DOCUMENTS: post-1998 NSC and White House requests for further military options on UBL and al-Qa'ida JCS Chair Hugh Shelton's briefing for Berger's Small Group about "boots on the ground" optionsin Afghanistan JCS and CINCENT Zinni's views on advisability of combat options in Afghanistan NS C's 2000 requests for a military package in Afghanistan Defense Secretary Cohen and Deputy JCS Chairman Myers' 2000 briefing for Berger andKerrickon Special Forces options in Afghanis tan Oct. 12, 2000 attack on U.S.S. Cole, including discussion of possible retaliatory measures JCS Chairman Shelton's combat options for Afghanistan, 1998-2001, including targeting of al-Qa'ida leaders, networks, an d training facili ties; plans to support Afg han rebels; planned strikes onTaliban targets; and Shelton's presentation to Sept. 15, 2001 war cabinet meet ing high-lev el m eetin gs between U.S., Saudi, and Pakistani officials, A ug . 1998 to Sept. 20, 2001

.CIA DOCUMENTS: post-1998 covert operations in Afgh anistan , includin g ties to Afgh an m ilit ias and local agen ts andinsert ion of CIA operatives fall 1999: DCI Tenet's briefings for NSC /White House on possible mil len ium attacks Oct. 12, 2000 attack on U.S.S. Cole, including discussion of possible retaliatory measures DCI Tenet 's M ay 2001 White House briefing for Rice and Hadley Blair House brief ing on threats facing U.S. by D CI Tenet and DD O Jam es Pavi tt for Bush,Cheney, and Rice about a week before Bush inauguration Jan. 10, 2001 CIA brief ing for Rice showing video clip of UBL al l Sept . 2001 meet ings with IS I head Gen. Mahmoud Ahm ad and DC I Tenet , DDO Pavi t t , andother senior agency officials CTC's Black's Sept . 13 brief ing to N S C , including PowerPoin t presen ta t ion


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I n i t i a l W o r k Flan ot the Counter te r ronsm Po l icy l e a r n Pa ge b o t

D CI Tenet 's Sept. 15 briefing packet , "Going to War". DCITenet 's draf t Sept. 2001 MON on broader CIAauthority in CT, as well as documents re la tedto its adopt ion Minutes o f meet ings by CTC's Black a n d Deputy Secretary Armi tage dur ing t r ip to Mo scow c ircaSept. 1 8 , 2 0 0 1

STATE DEPAR TMENT DOCUMENTS: full minutes and other documents related to all 1998-2001 meetings between Assistant SecretaryInderfur th and Taliban representatives, including Feb. 1999 meeting meetings between SC/T Michael Sheehan and Taliban representatives discussions with Saudi Arabia and UAE on terroris t f inancing views on advisability of arming the Northern All iance, including opinions of Albright, Talbott,

Pickering, Powell , and Armitage _ Oct. 12, 2000 attack on U.S.S. Cole, including discussion of possible retal iatory measures all Sept. 2001 meetings with Pakistani ISI head Gen. Mahmoud Ahmad and Powell , Armitage, oro t he r senior officials no tes of a l l Sept. 11-20, 2001 Po well cal ls to Pakis tani President Musharraf, Ambassador Bandarbi n Sultan, and Cro wn Prince Abdullah of Saudi Ara bia t ranscripts and memcons o f al l secretary and deputy secretary's cal ls to fo reig n leaders , Sept . 11 -2 0 , 2 0 0 1 _ Minutes o f m e e t i n g s by CTC's Black a n d Deputy Secretary Armitage during t r ip to Moscow circaSept. 1 8 , 2 0 0 1 high-level meet ing s between U.S., Saudi , a n d Pakis tani off ic ials , Aug . 1998 to Sept. 20, 2001

Key Interviews on Questions of StrategyI n te r v iew s for the strategy sect ion wil l focus upon th e Clin ton a n d B ush adminis t ra t ions ' NSC staff, inthe i r capaci ty as overa l l d i rectors an d coo rdinato rs of CT pol icy. It wil l a lso include two o thercategories: staffers a t other agencies directly responsible fo r grand-st rategy quest ions an d m o r e s e n i o rW h i t e House officials charged with making majo r decisions about shifting th e course o f U.S.counter terror ism po l icy .The las t catego ry, by necessi ty, includes man y of the most high-profile current an d fo rmer officials inth e U.S. govern men t . Idea l ly, such interviews would be based upon a so l id found at io n of do cuments andin te rviews with lower- level off icia ls so as to m a k e th e most of the l imited t ime o f some extremely busypeople . But we will not be ab le to fulfil o ur mandate wi thout access to the nat ion ' s to p leade rship. Thiswil l , o f course , require cons iderab le advance p lann ing .M a n y of the people o n this l ist will also be impor tan t in te rv iews fo r o ther t eam members .I pr opos e b e g i n n i n g w ith o n g o i n g , r o l l i n g c o n v e r s a t i o n s to o p e n c h a n n e l s o f c o m m u n i c a t i o n to get the


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I n i t i a l W o r k Flan ot the C o u n t e r t e r r o r i s m Pol i cy Team ^ a g e 6 o t

la y of the lan d, bet ter focus our documen t reques ts, an d sharpen our in quiry . I 'd sugges t s ta r t ing w i t hd iscuss ions w i th Dan ie l Benja min , S teve S imon , and o ther mem bers o f Richa rd Cla rk e ' s c i r c le , w hoprovided the core N SC team f rom 1998 through September 2001.Part icular ly k ey w ork ing- leve l i n t e rviews are in bold.Counterterrorism Specialists an d Other Senior Working-Level Officials with Duties Related toCoun terterrorism Strategy

1 . Richard Clarke, former National Coordinator fo r Counterterrorism2. Ambassador Cofer Black, Special Coordinator fo r Counterterrorism (S/CT) an d formerCTC Director3. Ambassador Francis Taylo r , former S/CT4. Ambassador Michael Sheehan, former S/CT5.-Ambassador To m Picker ing, senior Sta te Depar tment off icia l in severa l adminis t ra t ions6. Ambassador Chris Ross7. General (ret.) Wayne Downing, former Coordinator fo r Counterterrorism8 . General John Gord on, Coordinator fo r Counterterrorism9. Genera l Tommy Fran ks , CI N CCENT s ince June 2000

10. Genera l ( r e t .) An thony Zi n n i , fo rmer CI NCCENT1 1 . Ambassador Karl Inderfurth, former Asst. Secretary of State, South Asia12. Ambassador Mark Par r is , former Asst. Secretary o f State , Near Eas t13. Ambassador W i ll i am Bums, Asst. Secretary o f Sta te, Near Eas t14 . Ambassador Ma r t in I n d y k , Asst. Secretary o f Sta te, Near Eas t15 . Bruce Riedel, fo rmer Senior N SC Director for the Middle East

Select Addit ionalN SC Staff1. Susan Rice, former Director2. Randy B eers, former Director3. L ee W o l o s k y , f o r m e r D i r e ct o r ( C F R i n t e rn a t i o n a l affa i rs f e l l o w )4 . W i l l i a m W e c h s l e r , f o r m e r D i r e c t o r5 . Fred R o s a , fo rme r D i r e c t o r ( f rom Coas t Guard)


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i n i t i a l W o r k Flan o t the C ounte r te r ronsm Po l icy Team Page 7 o t

6. Mary McC a r thy , fo rmer D i rec to r7 . Daniel Benjam in, former D irector8 . Steven Simon, former Senior Director

9. Roger Cressey, former Director10. Michael Fenzel, former Director11. Gayle Smith, former Senior Director (Africa)12. Jeffrey Jones, Senior Director13. Will iam McRaven, Director14 . L is a Gordon-Hagerty, Director (from DOE)15. Joseph (Jody) Myers, Director16. Gregory Passic, Director17. N icho las Rasmussen, Director

K ey Country Team Members from Germany,.Saudi Arabia, and Pakistan(1998-2001)

1. Ambassador _2. Chief of Stat ion (CIA)3. Deputy Chief of Mission4 . L e g a l AttachA (FBI)5. Other U.S. officials as appropr ia te6. Fore ign A mbassador to the U n i ted S ta tes

People Responsible fo r Overall Strategy1. President George W . Bush2. Former Presiden t W i l l i am J. C l in ton3 . V ice Pres iden t Richard C heney4 . Former Vice P r e s i d e n t A l G o r e5 . C on do leezza Rice , N a t ion a l Secur i ty A dviso r


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Ini t ia l W o r k Flan ot the Counte r te r ronsm Policy Team ^age 8 o t

6. Samuel Berger, former Na tion al Security Advisor7. Colin Po well , Secretary of State8. Madeleine Albright , former Secretary o f State9. Secretary of Defense Donald Rumsfeld

10. Former Secretary of Defense W il liam Cohen11 . Director of Central Intelligence George Tenet12 . Richard Armitage, Deputy Secretary of State13 . Strobe Talbott, former Deputy Secretary of State14 . Paul Wolfowitz, Deputy Secretary of Defense15 . Douglas Feith, Under Secretary of Defense fo r Policy16 . Steve Hadley, Deputy National Security Advisor17 . James Ste inberg, former Deputy Na t iona l Securi ty A dvisor18._ Lt. General Donald Kerrick, former Deputy Nat ional Security Advisor

Proposed Work ScheduleJune-July 2003

File docu men t requests Research andwrite background sect ions Hire consul t an t , i f desired, to handle backgro und sec tions Con sul tat ions with counter terror ism experts outs ide governm ent

August, September., October 2003 Firs t wave o f documents back from agencies (NB: this assumes that staff clearances will

be completed) File fo l low -up document requests W ork ing- leve l in te rviews ~ ~ Edit consultan t 's draft of background sections, if desired

N o v e m b e r , December 2 Q Q 3 Receive fo l low- up d o c u me n t s f rom a g e n c i e s


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i n i t i a l W o r k Flan ot the ( Jounte r te r ronsm Pol icy Team ^age 9 o t

Research a n d writ ing fo r background sect ions Mid-level interviews

January, February 2004 File any final mop-up document requests Senior-level interviews

March. April 2004 Write and edit strategy sections Produce recommendations, working together with th e rest o f Team 3 and the front office

May 2004 Strategy isport delivered to commissioners -

9Draft - Unclassified but Commission Sensi t ive

Draf t Unclassified


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WITHDRAWAL NOTICERG: 148 Exposition, Ann iversary, and Mem orial CommissionsSERIES: Team 3,9 /11 Commission

NND PROJECT NUM BER: 52100 FOIA CASE NUMBER: 31107WITHDRAWAL DATE: 12/18/2008

BOX: 00008 FOLDER: 0001 TAB: 5 DOC ID: 31209623COPIES: 1 PAGES: 9

The item identified below has been withdrawn from this file:FOLDER TITLE: [Warren Bass] W orkplanDOCUMENT DATE: 06/02/2003 DO CUM ENT TYPE: Working PaperFROM:TO :SUBJECT: Proposed WorkplanStrategy Section of the Counterterrorism Policy team

This document has been withdrawn for the following reason(s):9/11 Closed by S tatute

WITHDRAWAL NOTICE

Documents

T3 B22 Warren Bass Workplan Fdr- Entire Contents- Withdrawal Notice for 6-2-03 Plan and 6-6-03 Proposed Action Plan 067