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Agricultural Bioterrorism From the pages of Recent titles Agricultural Bioterrorism: A Federal Strategy to Meet the Threat Agricultural in the McNair MCNAIR PAPER 65 Bioterrorism: Paper series: A Federal Strategy to Meet the Threat 64 The United States ignores the The Strategic Implications of a Nuclear-Armed Iran Agricultural potential for agricultural bioter- Kori N. Schake and rorism at its peril. The relative Judith S. Yaphe Bioterrorism: ease of a catastrophic bio- weapons attack against the 63 A Federal Strategy American food and agriculture All Possible Wars? infrastructure, and the devastat- Toward a Consensus View of the Future Security to Meet the Threat ing economic and social conse- Environment, 2001–2025 quences of such an act, demand Sam J. Tangredi that the Nation pursue an aggres- sive, focused, coordinated, and 62 stand-alone national strategy to The Revenge of the Melians: Asymmetric combat agricultural bioterrorism. Threats and the Next QDR The strategy should build on Kenneth F. McKenzie, Jr. counterterrorism initiatives already underway; leverage exist- 61 ing Federal, state, and local pro- Illuminating HENRY S. PARKER grams and capabilities; and Tomorrow’s War Martin C. Libicki involve key customers, stake- PARKER holders, and partners. The U.S. 60 Department of Agriculture The Revolution in should lead the development of Military Affairs: this strategy. Allied Perspectives Robbin F. Laird and Holger H. Mey Institute for National Strategic Studies National Defense University About the Author NATIONAL DEFENSE UNIVERSITY President: Vice Admiral Paul G. Gaffney II, USN Henry S. Parker is National Program Leader for Aquaculture at the Vice President: Ambassador Robin Lynn Raphel Agricultural Research Service in the U.S. Department of Agriculture and has INSTITUTE FOR NATIONAL STRATEGIC STUDIES served in several other positions related to aquaculture and marine science. Director: Stephen J. Flanagan Dr. Parker is a former associate professor at the University of Massachusetts, Dartmouth, and instructor at the University of Rhode Island, where he earned PUBLICATION DIRECTORATE a master’s degree in marine affairs and a doctorate in biological oceanography. Director and Editor, Joint Force Quarterly: Robert A. Silano He retired from the Naval Reserve with the rank of captain. Dr. Parker researched General Editor, NDU Press: William R. Bode and wrote this paper while attending the Industrial College of the Armed Forces, Supervisory Editor, NDU Press: George C. Maerz where he was a distinguished graduate. He is the author of Exploring the Oceans National Defense University Press (Englewood Cliffs, NJ: Prentice-Hall, 1985). ATTN: NDU–NSS–PD IIII 300 Fifth Avenue (Bldg. 62) Fort Lesley J. McNair Washington, D.C. 20319–5066 Telephone: (202) 685–4210 Facsimile: (202) 685–4806 About INSS Publications Print Publications For general information on publications and other programs of the Institute for National Strategic Studies, consult the National Defense University Web site at http://www.ndu.edu. To request a complimentary copy of available NDU Press titles, contact [email protected] via e-mail or leave a voice message at (202) 685–4210. Most NDU Press titles can be purchased from the U.S. Government Printing Office; call (202) 512–1800 or order on-line at The National Defense University (NDU) is a joint professional military education institution http://www.access.gpo.gov. operating under the direction of the Chairman of the Joint Chiefs of Staff. Its purpose is to prepare military and civilian leaders for service at the highest levels of national defense Electronic Publications and security. The principal operating elements of NDU are the Industrial College of the Numerous titles published by NDU Press are available on-line at Armed Forces, National War College, Joint Forces Staff College, Information Resources http://www.ndu.edu/ndu/inss/press/ndup2.html. Management College, Institute for National Strategic Studies, and Center for Hemispheric Defense Studies. Joint Force Quarterly (JFQ) The Institute for National Strategic Studies (INSS) conducts strategic studies for the The journal publishes articles, reviews, professional notes, and other features Secretary of Defense, Chairman of the Joint Chiefs of Staff, and unified commanders in by military officers, defense analysts, and scholars on the integrated employ- chief; supports national strategic components of NDU academic programs; and provides ment of land, sea, air, space, and special operations forces. JFQ focuses on outreach to other governmental agencies and the broader national security community. joint doctrine, coalition warfare, contingency planning, combat operations con- The Publication Directorate of INSS publishes books, monographs, reports, and ducted by unified commands, and joint force development. For current and occasional papers on national security strategy, defense policy, and national military back numbers of the journal, visit the JFQ home page maintained on the Joint strategy through National Defense University Press that reflect the output of university Doctrine Web site at http://www.dtic.mil/doctrine/jel/jfq_pubs/index.htm. research and academic programs. In addition, it produces Joint Force Quarterly, a professional military journal published for the Chairman of the Joint Chiefs of Staff. Agricultural Bioterrorism: A Federal Strategy to Meet the Threat Henry S. Parker McNair Paper 65 INSTITUTE FOR NATIONAL STRATEGIC STUDIES NATIONAL DEFENSE UNIVERSITY WASHINGTON, D.C. 2002 The opinions, conclusions, and recommendations expressed or implied within are those of the contributors and do not necessarily reflect the views of the Department of Defense or any other department or agency of the Federal Government. This publication is cleared for public release; distribution unlimited. Portions of this work may be quoted or reprinted without further permission, with credit to the Institute for National Strategic Studies. A courtesy copy of any reviews and tearsheets would be appreciated. Second printing with revisions, June 2003 First printing, March 2002 For sale by the U.S. Government Printing Office. To order, contact Superintendent of Documents, Mail Stop: SSOP, Washington, D.C. 20402–9328 (ISSN 1071–7552) Contents Foreword ................................ v Acknowledgments ........................ vii Introduction ............................. ix Chapter One Bioterrorism, Biowarfare, and National Security ...................... 1 Chapter Two An Emerging Threat to Food Security ........ 11 Chapter Three Countering the Threat ..................... 25 Chapter Four Recommendations and Conclusion ......... 47 Appendix A Framework for National Coordination for Security, Critical Infrastructure, and Counterterrorism ..................... 55 Appendix B High-Priority Research Needs .............. 57 iii iv CONTENTS Appendix C Federal Agencies with Counterterrorism Responsibilities ........... 59 Appendix D Key Federal Programs and Capabilities to Combat Bioterrorism ................... 63 Appendix E Selected Agricultural and Environmental Organizations .............. 65 Appendix F Acronyms ................................ 69 Endnotes ................................ 71 References ............................... 79 Foreword he astonishing specter of September 11, 2001, jarred America and, indeed, all free nations, into accepting the previously unthink- T able—the world’s only remaining superpower is vulnerable to cat- astrophic attack and asymmetric warfare, even within its own borders. In a few short hours Americans came to realize that, for a fanatical, resource- ful, and patient enemy, there are neither ethical bounds nor societal mores to delineate the nature of the target, the weapon of choice, or the scale of the violence. To put it another way, for these enemies there are no rules of engagement and there is no honor. Since September 11, our national sense of vulnerability has steadily risen. We have been in a near-constant state of high alert because of credible threats to our Nation’s nuclear installations, power plants, transportation nodes, and other critical national infrastructures. We know that at least nine countries support offensive terrorism programs, and that Al Qaeda—Osama bin Laden’s international terrorist organiza- tion—has been committed to developing and deploying weapons of mass destruction against U.S. targets. And the possibility that the recent an- thrax attacks were perpetrated by a domestic terrorist with access to a Federal Government, academic, or private laboratory that possessed an- thrax for legitimate scientific reasons has brought fear to the doorsteps of virtually every home, business, and public institution in the country. We are now also facing up to a less publicized, but potentially devastating threat—terrorism directed against the Nation’s food and agricultural infrastructure. As this paper elucidates, American farms, food, and agriculture systems are exceedingly vulnerable to deliberate disruption by hostile interests intent on undermining confidence in food supplies or wreaking havoc on the agricultural sector of the American economy, which accounts for one-sixth of our gross domestic product. v vi FOREWORD Because of its breadth, diversity, and unparalleled success, U.S. agriculture is an inviting target for terrorists. Not only are food supplies vital for feeding our own population and others around the world, and important for the Nation’s economic health, but American agriculture is a vivid example of the capabilities of modern
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