“ Recommendation: If Musharraf stands for enlightened moderation in a fight for his life and for the life of his country, the United States should be willing to make hard choices too, and make the difficult long-term commitment to the future of Pakistan. Sustaining the current scale of aid to Pakistan, the United States should support Pakistan’s government in its struggle against extremists with a comprehensive effort that extends from military aid to support for better education, so long as Pakistan’s leaders remain willing to make difficult choices of their own. ”

“ Immigration Law and Enforcement Our borders and immigration system, including law enforcement, ought to send a message of welcome, tolerance, and justice to members of immigrant communities in the United States and in their countries of origin.We should reach out to immigrant communities. Good immigration services are one way of doing so that is valuable in every way—including intelligence. It is elemental to border security to know who is coming into the country. ”

“ The United States has had to find ways to extend its reach, straining the limits of its influence.
Every policy decision we make needs to be seen through this lens. If, for example, Iraq becomes a failed state, it will go to the top of the list of places that are breeding grounds for attacks against Americans at home. ”

“ A GLOBAL STRATEGY 371 The Kingdom is one of the world’s most religiously conservative societies, and its identity is closely bound to its religious links, especially its position as the guardian of Islam’s two holiest sites.Charitable giving, or zakat, is one of the five pillars of Islam. It is broader and more pervasive than Western ideas of charity— functioning also as a form of income tax, educational assistance, foreign aid, and a source of political influence.The Western notion of the separation of civic and religious duty does not exist in Islamic cultures. ”

“ Our effort should be accompanied by a preventive strategy that is as much, or more, political as it is military.The strategy must focus clearly on the Arab and Muslim world, in all its variety. Our strategy should also include defenses.America can be attacked in many ways and has many vulnerabilities. No defenses are perfect. But risks must be calculated; hard choices must be made about allocating resources. Responsibilities for America’s defense should be clearly defined. Planning does make a difference, identifying where a little money might have a large effect. ”

“ But trying to starve the terrorists of money is like trying to catch one kind of fish by draining the ocean. A better strategy has evolved since those early months, as the government learned more about how al Qaeda raises, moves, and spends money. Recommendation:Vigorous efforts to track terrorist financing must remain front and center in U.S. counterterrorism efforts.The government has recognized that information about terrorist money helps us to understand their networks, search them out, and disrupt their operations. ”

“ Funding charitable works is an integral function of the governments in the Islamic world. It is so ingrained in Islamic culture that in Saudi Arabia, for example, a department within the Saudi Ministry of Finance and National Economy collects zakat directly,much as the U.S. Internal Revenue Service collects payroll withholding tax. Closely tied to zakat is the dedication of the government to propagating the Islamic faith, particularly the Wahhabi sect that flourishes in Saudi Arabia. Traditionally, throughout the Muslim world, there is no formal oversight mechanism for donations. ”

“ Backward economic policies and repressive political regimes slip into societies that are without hope, where ambition and passions have no constructive outlet. The policies that support economic development and reform also have political implications. Economic and political liberties tend to be linked.Commerce, especially international commerce, requires ongoing cooperation and compromise, the exchange of ideas across cultures, and the peaceful resolution of differences through negotiation or the rule of law. Economic growth expands the middle class, a constituency for further reform. ”

“ Turning a National Strategy into a Coalition Strategy Practically every aspect of U.S.counterterrorism strategy relies on international cooperation. Since 9/11, these contacts concerning military, law enforcement, intelligence, travel and customs, and financial matters have expanded so dramatically, and often in an ad hoc way, that it is difficult to track these efforts, much less integrate them. ”

“ Forty percent of adult Arabs are illiterate, two-thirds of them women. One-third of the broader Middle East lives on less than two dollars a day. Less than 2 percent of the population has access to the Internet. The majority of older Arab youths have expressed a desire to emigrate to other countries, particularly those in Europe.26 In short, the United States has to help defeat an ideology, not just a group of people, and we must do so under difficult circumstances. How can the United States and its friends help moderate Muslims combat the extremist ideas? ”

“ Internationally and in the United States, constraining terrorist travel should become a vital part of counterterrorism strategy. Better technology and training to detect terrorist travel documents are the most important immediate steps to reduce America’s vulnerability to clandestine entry. Every stage of our border and immigration system should have as a part of its operations the detection of terrorist indicators on travel documents. ”

“ At our first public hearing on March 31, 2003,we noted the need for balance as our government responds to the real and ongoing threat of terrorist attacks. The terrorists have used our open society against us.In wartime,government calls for greater powers,and then the need for those powers recedes after the war ends. This struggle will go on.Therefore, while protecting our homeland,Americans should be mindful of threats to vital personal and civil liberties.This balancing is no easy task, but we must constantly strive to keep it right. ”

“ Local newspapers and the few influential satellite broadcasters—like al Jazeera—often reinforce the jihadist theme that portrays the United States as anti-Muslim.25 The small percentage of Muslims who are fully committed to Usama Bin Ladin’s version of Islam are impervious to persuasion. It is among the large majority of Arabs and Muslims that we must encourage reform, freedom, democracy, and opportunity, even though our own promotion of these messages is limited in its effectiveness simply because we are its carriers. ”

“ At many entry points to vulnerable facilities, including gates for boarding aircraft, sources of identification are the last opportunity to ensure that people are who they say they are and to check whether they are terrorists.41 Strategies for Aviation and Transportation Security The U.S. transportation system is vast and, in an open society, impossible to secure completely against terrorist attacks.There are hundreds of commercial airports, thousands of planes, and tens of thousands of daily flights carrying more than half a billion passengers a year. ”

“ Many Americans see Saudi Arabia as an enemy, not as an embattled ally.They perceive an autocratic government that oppresses women, dominated by a wealthy and indolent elite. Saudi contacts with American politicians are frequently invoked as accusations in partisan political arguments.Americans are often appalled by the intolerance, anti-Semitism, and anti-American arguments taught in schools and preached in mosques. Saudis are angry too. Many educated Saudis who were sympathetic to America now perceive the United States as an unfriendly state. ”

“ Education that teaches tolerance, the dignity and value of each individual, and respect for different beliefs is a key element in any global strategy to eliminate Islamist terrorism. Recommendation: The U.S. government should offer to join with other nations in generously supporting a new International Youth Opportunity Fund. Funds will be spent directly for building and operating primary and secondary schools in those Muslim states that commit to sensibly investing their own money in public education. Economic openness is essential.Terrorism is not caused by poverty. ”

“ But any effective system has to grant some scope, perhaps in a little extra inspection or one more check, to the instincts and discretion of well trained human beings. Recommendation: The U.S. border security system should be integrated into a larger network of screening points that includes our transportation system and access to vital facilities, such as nuclear reactors. The President should direct the Department of Homeland Security to lead the effort to design a comprehensive screening system, addressing common problems and setting common standards with systemwide goals in mind. ”

“ No one can hide his or her debt by acquiring a credit card with a slightly different name.Yet today, a terrorist can defeat the link to electronic records by tossing away an old passport and slightly altering the name in the new one. Completion of the entry-exit system is a major and expensive challenge. Biometrics have been introduced into an antiquated computer environment. Replacement of these systems and improved biometric systems will be required. Nonetheless, funding and completing a biometrics-based entry-exit system is an essential investment in our national security. ”

“ The Saudi crackdown after the May 2003 terrorist attacks in Riyadh has apparently reduced the funds available to al Qaeda—perhaps drastically—but it is too soon to know if this reduction will last. Though progress apparently has been made, terrorists have shown considerable creativity in their methods of moving money. If al Qaeda is replaced by smaller, decentralized terrorist groups, the premise behind the government’s efforts—that terrorists need a financial support network—may become outdated. ”

“ If we heed the views of thoughtful leaders in the Arab and Muslim world, a moderate consensus can be found. That vision of the future should stress life over death: individual educational and economic opportunity. This vision includes widespread political participation and contempt for indiscriminate violence. It includes respect for the rule of law, openness in discussing differences,and tolerance for opposing points of view. Recommendation:Where Muslim governments, even those who are friends, do not respect these principles, the United States must stand for a better future. ”

“ The allocation of funds should be based on an assessment of threats and vulnerabilities.That assessment should consider such factors as population, population density, vulnerability,and the presence of critical infrastructure within each state. In addition, the federal government should require each state receiving federal emergency preparedness funds to provide an analysis based on the same criteria to justify the distribution of funds in that state. In a free-for-all over money, it is understandable that representatives will work to protect the interests of their home states or districts. ”

“ Neither Israel nor the new Iraq will be safer if worldwide Islamist terrorism grows stronger. The United States must do more to communicate its message. Reflecting on Bin Ladin’s success in reaching Muslim audiences,Richard Holbrooke wondered,“ How can a man in a cave outcommunicate the world’s leading communications society?” Deputy Secretary of State Richard Armitage worried to us that Americans have been “exporting our fears and our anger,”not our vision of opportunity and hope.27 Recommendation: Just as we did in the Cold War, we need to defend our ideals abroad vigorously. ”

“ A GLOBAL STRATEGY 363 gence, covert action, law enforcement, economic policy, foreign aid, public diplomacy, and homeland defense. If we favor one tool while neglecting others, we leave ourselves vulnerable and weaken our national effort. Certainly the strategy should include offensive operations to counter terrorism. Terrorists should no longer find safe haven where their organizations can grow and flourish. America’s strategy should be a coalition strategy, that includes Muslim nations as partners in its development and implementation. ”

“ No president can promise that a catastrophic attack like that of 9/11 will not happen again. History has shown that even the most vigilant and expert agencies cannot always prevent determined, suicidal attackers from reaching a target.
But the American people are entitled to expect their government to do its very best.They should expect that officials will have realistic objectives, clear guidance, and effective organization.They are entitled to see some standards for performance so they can judge, with the help of their elected representatives, whether the objectives are being met. ”

“ A Layered Security System No single security measure is foolproof.Accordingly, the TSA must have multiple layers of security in place to defeat the more plausible and dangerous forms of attack against public transportation. • The plan must take into consideration the full array of possible enemy tactics, such as use of insiders, suicide terrorism, or standoff attack. Each layer must be effective in its own right. Each must be supported by other layers that are redundant and coordinated. ”

“ Recommendation: The United States should engage other nations in developing a comprehensive coalition strategy against Islamist terrorism. There are several multilateral institutions in which such issues should be addressed. But the most important policies should be discussed and coordinated in a flexible contact group of leading coalition governments.This is a good place, for example, to develop joint strategies for targeting terrorist travel, or for hammering out a common strategy for the places where terrorists may be finding sanctuary. ”

“ Recommendation: Our report shows that al Qaeda has tried to acquire or make weapons of mass destruction for at least ten years. There is no doubt the United States would be a prime target. Preventing the proliferation of these weapons warrants a maximum effort—by strengthening counterproliferation efforts, expanding the Proliferation Security Initiative, and supporting the Cooperative Threat Reduction program. Targeting Terrorist Money The general public sees attacks on terrorist finance as a way to “starve the terrorists of money.” ”

“ The present transnational danger is Islamist terrorism.What is needed is a broad political-military strategy that rests on a firm tripod of policies to
attack terrorists and their organizations; prevent the continued growth of Islamist terrorism; and protect against and prepare for terrorist attacks. More Than a War on Terrorism
Terrorism is a tactic used by individuals and organizations to kill and destroy. Our efforts should be directed at those individuals and organizations. ”

“ Terrorist Travel More than 500 million people annually cross U.S. borders at legal entry points, about 330 million of them noncitizens. Another 500,000 or more enter illegally without inspection across America’s thousands of miles of land borders or remain in the country past the expiration of their permitted stay.The challenge for national security in an age of terrorism is to prevent the very few people who may pose overwhelming risks from entering or remaining in the United States undetected.31 In the decade before September 11, 2001, border security—encompassing WHAT TO DO? ”

“ The US is putting relatively little effort into a long-range plan, but we are putting a great deal of effort into trying to stop terrorists. The cost-benefit ratio is against us! Our cost is billions against the terrorists’ costs of millions.”22 These are the right questions. Our answer is that we need short-term action on a long-range strategy, one that invigorates our foreign policy with the attention that the President and Congress have given to the military and intelligence parts of the conflict against Islamist terrorism. ”

“ Such cooperation can exist for a time largely in secret, as it does now, but it cannot grow and thrive there. Nor, on either side, can friendship be unconditional. Recommendation:The problems in the U.S.-Saudi relationship must be confronted, openly. The United States and Saudi Arabia must determine if they can build a relationship that political leaders on both sides are prepared to publicly defend—a relationship about more than oil. It should include a shared commitment to political and economic reform,as Saudis make common cause with the outside world. ”