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TASK FORCE 2012 the Challenge of Piracy Off the Horn of Africa TASK FORCE 2012 The Challenge of Piracy off the Horn of Africa University of Washington | Henry M. Jackson School of International Studies Cover Photograph: A member of the HMS MONMOUTH force protection team providing cover during the boarding of the merchant vessel MV CARAVOS HORIZON. Image used in accordance with UK’s Crown Copyright regulations. Image captured 08/12/2011 by LA(Phot) Stuart Hill / MOD - Crown Copyright. Retrieved from www.combinedmaritimeforces.com. All trademarks mentioned in this report remain the property of their owners. Th eir inclusion in this report should in no way be taken as an endorsement of this report or its conclusions by the trademark owners. All maps included in this report were created by the Task Force, based off the open source Wikimedia Commons World Map “BlankMap-World6.svg” dated 14 February 2012. Printed at the University of Washington in Seattle ii The Henry M. Jackson School of International Studies University of Washington, Seattle Task Force Report 2012 Th e Challenge of Piracy off the Horn of Africa: U.S. Policy in Dealing With Criminal Elements and Dangerous Non-State Actors Faculty Advisor: Frederick Michael Lorenz, JD, LLM Senior Lecturer, Jackson School of International Studies University of Washington, Seattle Evaluator: Donna L. Hopkins Coordinator for Counter Piracy and Maritime Security, Bureau of Political Military Aff airs U.S. Department of State Task Force: Natalie Block (Editor) H. Jacqueline Brehmer Ashley Bullock Steven Chang Brittany Davis-Roberti Karl Eckhardt Luke Eden Zachary Gerber Lauren Graves David La Boon Seung Hee Lee Erika Maskal (Editor) Emily Stromme Nacha [Poi] Udomsrirungruang Andrijana Valladares Jeff Wheeler Report designed by Luke Eden. Body typeset in Minion Pro. Maps and fi gures typeset in Miso. iii Th e Task Force would like to thank Frederick Michael Lorenz and Donna L. Hopkins for making this report possible. Th e Task Force would also like to thank the Hon. Admiral Joseph Sestak (Ret.), Casey Kuhlman, Wayne Miller, the NATO Civil-Military Fusion Center, Worldwide Somali Students and Professionals, and the State Department Offi ce of Counter Piracy and Maritime Security for their contributions. iv ACRONYMS Acronyms African Mission in Somalia (AMI) African Union Mission in Somalia (AMISOM) Electronic Intelligence (ELINT) Ahlu Sunna Waljamaca (ASWJ) European Union Naval Force (EUNAVFOR) AMISOM Troop Contributing Country (TCC) Exclusive Economic Zone (EEZ) Anti-Money Laundering (AML) Area of Responsibility (AOR) Federal Bureau of Investigation (FBI) Automatic Identifi cation System (AIS) Financial Action Task Force (FATF) Financial Intelligence Unit (FIU) Best Management Practices (BMP) Forward Looking Infrared (FLIR) Cash For Work (CFW) Global Children Organization (GCO) Cellphone Exploitation (CELLEX) Government Accountability Offi ce (GAO) Central Intelligence Agency (CIA) Guided Missile Destroyer (DDG) Civil/Military Operations Center (CMOC) Guided Missile Frigate (FFG) Closed Circuit TV (CCTV) Coast Guard Operations Group (CGOG) High Risk Area (HRA) Combined Joint Intelligence Operations Center Horn of Africa (HOA) (CJIOC) Human Intelligence (HUMINT) Combined Joint Operations Center (CJOC) Human Terrain System (HTS) Combined Joint Task Force Horn of Africa (CJTF- Human Terrain Team (HTT) HOA) Combined Joint Task Force (CJTF) Illegal, Unreported and Unregulated Fishing (IUU Combined Joint Task Force Maritime Component Fishing) (CJTFMC) Image Intelligence (IMINT) Combined Joint Task Force Maritime Component Integrated Command Structure (ICS) Operations Group Commander (CJTFMCOGC) Intelligence Community (IC) Combined Joint Task Force Maritime Component Intelligence, Surveillance and Reconnaissance (ISR) Operations Group Deputy Commander International Code of Conduct for Private Security (CJTFMCOGDC) Service Providers (ICoC) Combined Maritime Forces (CMF) International Committee for the Red Cross (ICRC) Combined Task Force (CTF) International Criminal Tribunal for Rwanda Combined Task Force 151 (CTF-151) (ICTR) Command and Control (C2) International Crisis Group (ICG) Command Naval Fift h Fleet (COMNAVFTHFLT) International Maritime Bureau (IMB) Command, Control, Communications, Computers, International Maritime Organization (IMO) Intelligence, Surveillance, Reconnaissance International Standardization Agreements (ISA) (C4ISR) Internationally Recommended Transit Corridor Commander United States Naval Central (IRTC) Command (COMNAVCENTCOM) Islamic Courts Union (ICU) Commander, Combined Joint Task Force (CCJTF) Common Operating Picture (COP) Joint Intelligence Operations Center (JIOC) Confi dential Informant (CI) Joint Non-Lethal Weapons Directorate (JNLWD) Congressional Budget Offi ce (CBO) Joint Special Operations Command (JSOC) Contact Group on Piracy off the Coast of Somalia Joint Task Force (JTF) (CGPCS) Counter-piracy Coordination Center (CPCC) Kenyan Shippers Council (KSC) Kidnap and Ransom (K&R) Deputy Commander, Combined Joint Task Force (DCCJTF) Lead-Nation Command Structure (LNCS) U.K. Department For International Development Line-of-sight (LOS) (DFID) Littoral Combat Vessels (LCS) DOT Maritime Administration (USDOTMA) Long-range acoustic device (LRAD) v Th e Challenge of Piracy off the Horn of Africa Standing NATO Maritime Group 1 (SNMG 1) Marine Security Center Horn of Africa (MSCHOA) Standing NATO Maritime Group 2 (SNMG 2) Maritime Asset Security and Training (MAST) Standing Rules of Engagement (SROE) Maritime Domain Awareness (MDA) Marine Stewardship Council (MSC) Task Force (TF) Maritime Security Operations (MSO) Transitional Federal Government (TFG) Memorandum of Understanding (MOU) Merchant Maritime Warfare Centre (MMWC) United Kingdom Maritime Trade Operations Ministry of Human Rights (MOHR) (UKMTO) United Nations Children’s Fund (UNICEF) National Geospatial-Intelligence Agency (NGA) United Nations Convention on the Laws of the Sea National Organization for Defending Rights and (UNCLOS) Freedom (HOOD) United Nations Convention on the Suppression National Reconnaissance Offi ce (NRO) of Unlawful Acts Against the Safety of Maritime National Security Council (NSC) Navigation (SUA Convention) Navigation (SUA Convention) United Nations Development Program (UNDP) Network Centric Warfare (NCW) United Nations Development Programme (UNDP) Network Intelligence (NETINT) United Nations Offi ce on Drugs and Crime North Atlantic Treaty Organization (NATO) (UNODC) Nuclear Aircraft Carrier (CVN) United Nations Political Offi ce for Somalia (UNPOS) Offi ce of Foreign Disaster Assistance (OFDA) United Nations Security Council (UNSC) Offi ce of Naval Intelligence (ONI) United States Africa Command (AFCOM) Offi ce of the Director of National Intelligence United States Central Command (CENTCOM) (ODNI) United States Coast Guard (USCG) Ogaden National Liberation Front (ONLF) United States Department of Defense (DoD) Open Source Intelligence (OSINT) United States Department of Homeland Security (DHS) Parallel Command Structure (PCS) United States Department of Justice (DoJ) Private Maritime Security Company (PMSC) United States Department of State (DoS) Private Military Contractors (PMC) United States Department of Transportation Private Security Contractor (PSC) (USDOT) Privately Contracted Armed Security Personnel United States Dollars (USD) (PCASP) United States Government (USG) Public International Law Policy Group (PILPG) United States Navy (USN) Public Private Partnership (PPP) United States Navy Maritime Liaison Offi ce Puntland Maritime Police Force (PMPF) (MARLO) Unmanned Aerial Systems (UAS). Radar Cross Section (RCS) Unmanned Aerial Vehicles (UAV) Recognized Maritime Picture (RMP) Regional Agreement on Combating Piracy and Vehicle Mounted Active Defense System Armed Robbery (ReCAPP) (V-MADS) Rocket-Propelled Grenade (RPG) Visit Board Search and Seizure (VBSS) Rules of Engagement (ROE) Voice of America (VOA) Safe Muster Point (SMP) Worldwide Somali Students & Professionals Security Association for the Maritime Industry (WSSP) (SAMI) Shared Awareness and Deconfl iction (SHADE) Ship Protection Measures (SPM) Ship Security Alert Systems (SSAS) Ship Security Assessment (SSA) Ship Security Plan (SSP) Signals Intelligence (SIGINT) Small Tactical Unmanned Aerial System (STUAS) Special Forces Operations Group (SFOG) Special Warfare Combat Crew (SWCC) Standard Operating Procedure (SOP) vi EXECUTIVE SUMMARY Executive Summary: Th e Challenge of Piracy off the Horn of Africa By Natalie Block and Erika Maskal In the failed state of Somalia, piracy is increasing at an alarming rate, impacting all nations that engage in trade or travel in the region. In 2011, Somali pirates attacked 122 vessels and successfully hijacked 28. Since the problem of piracy fi rst escalated in 2008, thousands of hostages have been taken, including a number of American citizens. Th ese hostages have oft en suff ered systematic abuse and torture, and have on some occasions been used as hu- man shields. In the last year alone, four American hostages were murdered by their captors. Although the economic cost of piracy is comparatively low for the U.S., it is imperative to address the issue before the economic and human costs of piracy become overwhelming. From 2010 to 2011, total ransom payouts to Somali pirates increased from $111 million USD to $160 million USD, raising the global cost of piracy in 2011 to approximately $6.75 billion USD. In response to the three international task forces protecting ships in the Gulf of Aden, pirates have expanded their attack areas and are
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