By Dana Priest and William M. Arkin
The Washington Post
Tuesday, December 21, 2010
Nine years after the terrorist attack of 2001, the United States is assembling a vast domestic intelligence apparatus to collect information about Americans, using the FBI, local police, state homeland security offices and military criminal investigators.
The system, by far the largest and most technologically sophisticated in the nation's history, collects, stores and analyzes information about thousands of U.S. citizens and residents, many of whom have not been accused of wrongdoing.
The government's goal is to have every state and local law-enforcement agency feed information to Washington to buttress the work of the FBI, which is in charge of terrorism investigations in the United States.
This localized intelligence apparatus is part of a larger "top-secret America" created since the Sept. 11 attack, The Washington Post has found. It involves a web of 4,058 federal, state and local organizations, each with its own counterterrorism responsibilities. At least 935 of these organizations have been created since the 2001 attack or became involved in counterterrorism for the first time after 9/11.
The monthslong investigation found that:
• Technologies and techniques honed for use on the battlefields of Iraq and Afghanistan have migrated into the hands of law-enforcement agencies in America.
• The FBI is building a database with the names and certain personal information, such as employment history, of thousands of U.S. citizens and residents whom a local police officer or a fellow citizen believed to be acting suspiciously. It is accessible to an increasing number of local law-enforcement and military/criminal investigators, increasing concerns that it could somehow end up in the public domain.
• Seeking to learn more about Islam and terrorism, some law-enforcement agencies have hired as trainers self-described experts whose extremist views on Islam and terrorism are considered inaccurate and counterproductive by the FBI and U.S. intelligence agencies.
The need to identify U.S.-born or naturalized citizens who are planning violent attacks is more urgent than ever, intelligence officials say. This month's FBI sting operation involving a Baltimore construction worker who allegedly planned to bomb a Maryland military recruiting station is the latest example. It followed a similar arrest of a Somali-born naturalized U.S. citizen allegedly seeking to detonate a bomb near a Christmas tree-lighting ceremony in Portland, Ore. There have been nearly two dozen other cases just this year.
However, the effectiveness of these programs, as well as their cost, is difficult to determine. The Department of Homeland Security, for example, does not know how much money it spends each year on what are known as state fusion centers, which bring together and analyze information from various agencies within a state.
The DHS has given $31 billion in grants since 2003 to state and local governments for homeland security, including $3.8 billion in 2010. At least four other federal departments also contribute to local efforts. But the bulk of the spending every year comes from state and local budgets that are too disparately recorded to aggregate into an overall total.
The public face of this pivotal effort is Homeland Security Secretary Janet Napolitano, the former governor of Arizona, which years ago built one of the strongest state intelligence organizations outside of New York to try to stop illegal immigration and drug importation.
Napolitano has taken her "See Something, Say Something" campaign far beyond the traffic signs that ask drivers coming into the nation's capital to "Report Suspicious Activity." She recently enlisted the help of Wal-Mart, Amtrak, major sports leagues, hotel chains and metro riders. In her speeches, she compares the undertaking to the Cold War fight against communists.
Direct from war zones
On a recent night in Memphis, a patrol car rolled slowly through a parking lot in a run-down section of town. The military-grade infrared camera on its hood moved robotically from left to right, snapping digital images of one license plate after another and analyzing each almost instantly.Suddenly, a red light flashed on the car's screen along with the word warrant.
"Got a live one! Let's do it," an officer called out.
The streets of Memphis are a world away from the streets of Kabul, yet these days, the same types of technologies and techniques are being used in both places to identify and collect information about suspected criminals and terrorists.
The Department of Homeland Security helped Memphis buy surveillance cameras that monitor residents near high-crime housing projects, problematic street corners and bridges and other critical infrastructure. It helped pay for the license-plate readers and defrayed some of the cost of setting up Memphis's crime-analysis center. All together it has given Memphis $11 million since 2003 in homeland security grants.
"We have got things now we didn't have before," said Memphis Police Department Director Larry Godwin, who has produced record numbers of arrests using all this new analysis and technology. "Some of them we can talk about. Some of them we can't."
The examples go far beyond Memphis.
• Hand-held, wireless fingerprint scanners were carried by U.S. troops during the insurgency in Iraq to register residents of entire neighborhoods. L-1 Identity Solutions is selling the same type of equipment to police departments to check motorists' identities.
• In Arizona, the Maricopa County Sheriff's Facial Recognition Unit, using a type of equipment prevalent in war zones, records 9,000 biometric digital mug shots a month.
• U.S. Customs and Border Protection flies General Atomics' Predator drones along the Mexican and Canadian borders. They are the same kind of aircraft, equipped with real-time, full-motion video cameras, that have been used in wars in Kosovo, Iraq and Afghanistan to track the enemy.
Fingerprints on file
There are 96 million sets of fingerprints in the FBI's data campus in Clarksburg, W.Va. The fingerprints are from across the U.S., with others collected by American authorities from prisoners in Saudi Arabia and Yemen, Iraq and Afghanistan.This year for the first time, the FBI, the DHS and the Defense Department are able to search each other's fingerprint databases, said Myra Gray, head of the Defense Department's Biometrics Identity Management Agency, speaking to an industry group recently. "Hopefully in the not-too-distant future," she said, "our relationship with these federal agencies - along with state and local agencies - will be completely symbiotic."
At the same time, the FBI is building a vast repository controlled by people who work in a top-secret vault on the fourth floor of the J. Edgar Hoover FBI Building in Washington. This one stores the profiles of tens of thousands of Americans and legal residents who are not accused of any crime. What they have done is appear to be acting suspiciously to a sheriff, a traffic cop or even a neighbor.
If the new Nationwide Suspicious Activity Reporting Initiative, or SAR, works as intended, the Guardian database may someday hold files forwarded by all police departments across the country in America's continuing search for terrorists.
"If we want to get to the point where we connect the dots, the dots have to be there," said Richard A. McFeely, special agent in charge of the FBI's Baltimore office.
FBI officials say anyone with access has been trained in privacy rules and the penalties for breaking them.
But not everyone is convinced. "It opens a door for all kinds of abuses," said Michael German, a former FBI agent who now leads the American Civil Liberties Union's campaign on national security and privacy matters. "How do we know there are enough controls?"
The government defines a suspicious activity as "observed behavior reasonably indicative of pre-operational planning related to terrorism or other criminal activity" related to terrorism.
State intelligence analysts and FBI investigators use the reports to determine whether a person is buying fertilizer to make a bomb or to plant tomatoes; whether she is plotting to poison a city's drinking water or studying for a metallurgy test; whether, as happened on a Sunday morning in late September, the man snapping a picture of a ferry in the Newport Beach harbor in southern California simply liked the way it looked or was plotting to blow it up.
Suspicious Activity Report N03821 says a local law-enforcement officer observed "a suspicious subject . . . taking photographs of the Orange County Sheriff Department Fire Boat and the Balboa Ferry with a cellular phone camera." The confidential report noted that the subject next made a phone call, walked to his car and returned five minutes later to take more pictures. He was then met by another person, both of whom stood and "observed the boat traffic in the harbor." Next, another adult with two small children joined them, and then they all boarded the ferry and crossed the channel.
All of this information was forwarded to the Los Angeles fusion center for further investigation after the local officer ran information about the vehicle and its owner through several crime databases and found nothing.
Authorities would not say what happened from there.
The Defense Department recently transferred 100 reports of suspicious behavior into the Guardian system, and over time it expects to add thousands more as it connects 8,000 military law-enforcement personnel to an FBI portal that will allow them to send and review reports about people suspected of casing U.S. bases or targeting American personnel.
And the DHS has created a separate way for state and local authorities, private citizens and businesses to submit suspicious activity reports to the FBI and to the department for analysis.
As of December, there were 161,948 suspicious-activity files in the Guardian database, mostly leads from FBI headquarters and state field offices. Two years ago, the bureau set up an unclassified section of the database so state and local agencies could send in suspicious-incident reports and review those submitted by their counterparts in other states. Some 890 state and local agencies have sent in 7,197 reports so far.
Of those, 103 have become full investigations that have resulted in at least five arrests, the FBI said. There have been no convictions yet.
All this for that?
But most remain in the uncertain middle, which is why within the FBI and other intelligence agencies there is much debate about the effectiveness of the bottom-up SAR approach, as well as concern over the privacy implications.The vast majority of terrorism leads in the United States originate from confidential FBI sources and from the bureau's collaboration with federal intelligence agencies. Evidence comes from targeted FBI surveillance and undercover operations, not from information and analysis generated by state fusion centers about people acting suspiciously.
"It's really resource-inefficient," said Philip Mudd, a 20-year CIA counterterrorism expert and a top FBI national security official until he retired nine months ago. "Anyone who is not at least suspected of doing something criminal should not be in a database."
The DHS can point to some successes: Last year, the Colorado fusion center turned up information on Najibullah Zazi, an Afghan-born U.S. resident planning to bomb the New York subway system. In 2007, a Florida fusion center provided the vehicle-ownership history used to identify and arrest an Egyptian student who later pleaded guilty to providing material support to terrorism, in this case transporting explosives.
"Ninety-nine percent doesn't pan out or lead to anything," said Richard Lambert Jr., the special agent in charge of the FBI's Knoxville office. "But we're happy to wade through these things."
The rise of dubious experts
In their desire to learn more about terrorism, many departments are hiring their own trainers. Some are self-described experts whose extremist views are considered inaccurate and harmful by the FBI and others in the intelligence community.Ramon Montijo, a former Army Special Forces sergeant and Los Angeles Police Department investigator who is now a private security consultant, has taught classes on terrorism and Islam to law-enforcement officers all over the country.
What he tells them is always the same, he said: Most Muslims in the United States want to impose sharia law here.
"They want to make this world Islamic. The Islamic flag will fly over the White House -- not on my watch!" he said. "My job is to wake up the public, and first, the first responders."
Like Montijo, Walid Shoebat, a onetime Muslim who converted to Christianity, also lectures to local police. He, too, believes that most Muslims seek to impose sharia law in the United States. To prevent this, he said, he warns officers that "you need to look at the entire pool of Muslims in a community."
When Shoebat spoke to the first annual South Dakota Fusion Center Conference in Sioux Falls in June, he told them to monitor Muslim student groups and local mosques and, if possible, tap their phones. "You can find out a lot of information that way," he said.
Government terrorism experts call the views expressed inaccurate and counterproductive. They say the DHS should increase its training of local police, using teachers who have evidence-based viewpoints.
DHS spokeswoman Amy Kudwa said the department does not maintain a list of terrorism experts but is working on guidelines for local authorities wrestling with the topic.
The DHS also provides local agencies a daily flow of information bulletins.
These reports are meant to inform agencies about possible terror threats. But some officials say they deliver a never-ending stream of information that is vague, alarmist and often useless. "It's like a garage in your house - you keep throwing junk into until you can't park your car in it," said Michael Downing, deputy chief of counterterrorism and special operations for the Los Angeles police.
In Virginia, the state's fusion center published a terrorism-threat assessment in 2009 naming historically black colleges as potential hubs for terrorism.
From 2005 to 2007, the Maryland State Police went even further, infiltrating and labeling as terrorists local groups devoted to human rights, antiwar causes and bike lanes.
And in Pennsylvania this year, a local contractor hired to write intelligence bulletins filled them with information about lawful meetings as varied as Pennsylvania Tea Party Patriots Coalition gatherings, antiwar protests and an event at which environmental activists dressed up as Santa Claus and handed out coal-filled stockings.
The vast majority of fusion centers across the country have transformed themselves into analytical hubs for all crimes and are using federal grants, handed out in the name of homeland security, to combat everyday offenses.
This is happening because, after 9/11, local law-enforcement groups did what every agency and private company did in this top-secret America: They followed the money.
The DHS helped the Memphis Police Department, for example, purchase 90 surveillance cameras, including 13 that monitor bridges and a causeway. It helped buy the fancy screens on the walls of the Real Time Crime Center, as well as radios, robotic surveillance equipment, a mobile command center and three bomb-sniffing dogs.
Since there hasn't been a solid terrorism case in Memphis yet, the equipment's greatest value has been to help drive down city crime.
The article is reproduced in accordance with Section 107 of title 17 of the Copyright Law of the United States relating to fair-use and is for the purposes of criticism, comment, news reporting, teaching, scholarship, and research.
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