It is perhaps obvious to state that terrorists cannot plan and carry out attacks in the United

States if they are unable to enter the country. Yet prior to September 11, while there were

efforts to enhance border security, no agency of the U.S. government thought of border

security as a tool in the counterterrorism arsenal. Indeed, even after 19 hijackers

demonstrated the relative ease of obtaining a U.S. visa and gaining admission into the

United States, border security still is not considered a cornerstone of national security

policy. We believe, for reasons we discuss in the following pages, that it must be made one.

Contents:

A Factual Overview of the September 11 Border Story

The September 11 Travel Operation – a Chronology

Terrorist Entry and Embedding Tactics, 1993-2001

The Redbook

Terrorist Travel Tactics by Plot

Al Qaeda's Organizational Structure for Travel and Travel Tactics

Immigration and Border Security Evolve, 1993 to 2001

The Intelligence Community

The State Department

The Immigration and Naturalization Service

Planning and Executing Entry for the 9/11 Plot

The State Department

The Immigration and Naturalization Service

Finding a Fair Verdict

Crisis Management and Response Post-September 11

The Intelligence Community

The Department of State

The Department of Justice

Response at the Borders, 9/11-9/20, 2001

The Department of Homeland Security