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January 2000 Volume 69 Number 1 United States Department of Justice Federal Bureau of Investigation Washington, DC 20535-0001 Louis J. Freeh Director Features Contributors' opinions and statements should not be considered an endorsement by the FBI for any policy, program, or service. Training for Terrorism All levels of government worked together to manage a terrorist attack in The Attorney General has By Gary J. Rohen 1 determined that the publication exercise “Baseline.” of this periodical is necessary in the transaction of the public business required by law. Use of funds for printing this periodical Reducing Violent Bank Law enforcement agencies and financial has been approved by the Robberies in Los Angeles 13 institutions in Los Angeles significantly Director of the Office of reduced bank robberies in Southern Management and Budget. By William J. Rehder California. The FBI Law Enforcement Bulletin (ISSN-0014-5688) is British police forces face the difficulties published monthly by the British Policing and Federal Bureau of Investigation, the Ottawa Shift System 19 of matching the demand for police 935 Pennsylvania Avenue, services with the supply of police N.W., Washington, D.C. By Mike Simpson resources. 20535-0001. Periodical postage and Suzanne Richbell paid at Washington, D.C., and additional mailing offices. Postmaster: Send address changes to Editor, FBI Law Drug Detection Dogs Drug detection dogs have proven to be an invaluable asset to law enforcement Enforcement Bulletin, FBI By Michael J. Bulzomi 27 Academy, Madison Building, officers determining probable cause for Room 209, Quantico, VA 22135. contraband searches. Editor John E. Ott Managing Editor Departments Kim Waggoner Associate Editors Glen Bartolomei 8 Perspective 26 Snap Shots Cynthia L. Lewis Bunny S. Morris Planning for the Future Police Officer Mannequin Art Director Brian K. Parnell 18 Book Review Assistant Art Director Gang Intelligence Manual Denise B. Smith Staff Assistant Linda W. Szumilo Internet Address [email protected] Cover photo © Don Ennis Send article submissions to Editor, FBI Law Enforcement Bulletin, FBI Academy, Madison Building, Room 209, Quantico, VA 22135. ISSN 0014-5688 USPS 383-310 Exercise “Baseline” Training for Terrorism By GARY J. ROHEN, M.S. his broadcast interrupted city and town leaders, must con- Dateline: November 19, 1997, the workday for hundreds of sider how they would manage a New London, Connecticut. At local, state, and federal law WMD attack, especially how they approximately 11:30 this morning, T enforcement officers, military per- would make a successful transition the U.S. Naval Submarine Base from crisis management at the at New London, Connecticut, sonnel, and public safety employ- became the target of a possible ees. Fortunately, the scenario was scene to consequence management terrorist attack. Initial reports fictitious; it was, in fact, a training (i.e., managing the aftermath of a indicate that hostages may have exercise designed to test the ability crisis, including tending to the been taken, although the number of jurisdictions to respond to the needs of the population) after the of hostages is unknown, and the terrorist attacks that many experts attack. terrorists have not made public believe are inevitable. Without such Recent legislation has ad- demands at this time. A railroad training scenarios, American towns dressed these areas by 1) designat- tanker carrying hazardous remain vulnerable to a terrorist at- ing the FBI as the lead federal materials appears to have tack employing weapons of mass agency for the crisis management of derailed inside the base; however, 1 it remains unclear if this derail- destruction (WMD). All levels of any domestic terrorism incident, in- ment is related to the hostage government, from the executive cluding any incidents that occur on 2 taking.... branch of the federal government to military facilities; 2) tasking the January 2000 / 1 • the establishment of an Incident Command System For training (ICS) by local and state “ to provide agencies, set up soon after significant the incident occurs; value, realism • the FBI’s crisis management must play a response; and central role. • FEMA’s consequence man- agement infrastructure. Overlap occurs during all three phases across almost all agencies. Formerly the Assistant Special Agent in Charge of the FBI’s New Haven Proper JOC site selection must in- Field Office, Special Agent Rohen currently serves in the National volve all administration levels, Security Division, FBI Headquarters, Washington, DC. ” from local agencies to the executive branch of the federal government. THE SCENARIO U.S. Department of Defense with for all participating agencies; and For training to provide signifi- providing training and equipment to coordinate all crisis resolution and cant value, realism must play a civilian first responders, such as subsequent consequence manage- central role. The planning and emergency medical technicians, ment operations. preparation phase took place over firefighters, police officers, and an 18-month period and included emergency management person- ESTABLISHING multiagency crisis management nel;3 and 3) delegating to the Fed- THE BASELINE training. This training involved les- eral Emergency Management In June 1996, the FBI’s New sons the FBI learned from actual Agency (FEMA)4 the development Haven Field Office conducted an WMD incidents. To foster the inter- of a federal response plan that ad- assessment survey that identified est of all participants, each partici- dresses both crisis management and the U.S. Navy Submarine Base at pating agency had potential emer- the subsequent transition to conse- New London as a high-value gency management responsibilities quence management. facility vulnerable to terrorist ac- for the area and provided input to Yet, for all the legislation, tion. In addition, the New London develop the scenario, as well as its funding, and memorandums of un- area serves as home to the company goals and objectives, to ensure derstanding, nothing provides a that builds and fits many of the applicability for their respective more effective preparation than an nation’s nuclear submarines. Be- agency functions. Agencies from actual hands-on exercise. One such cause of the FBI’s lead role in ter- the state of Connecticut, the federal exercise, “Baseline,” involved the rorist incidents, a senior-level FBI government, and the military, as FBI’s New Haven, Connecticut, agent served as the on-scene com- well as local police and fire ser- Field Office, and the U.S. Naval mander. He coordinated with the vices, provided participants. The Submarine Base at New London, base commander, who played an in- exercise intended to facilitate a Connecticut. It became the first test tegral role in the JOC command positive interaction among all agen- of the FBI WMD Joint Operations group and participated in all critical cies and to familiarize other agen- Center (JOC) model,5 which seeks decisions during the exercise. A cies with the FBI’s crisis manage- to integrate interagency emergency JOC should accommodate the in- ment model. management functions; provide a frastructure for all three phases To reinforce basic crisis man- command, control, communica- of WMD operational management, agement principles and to foster im- tions, and intelligence architecture including— proved liaison during an actual 2 / FBI Law Enforcement Bulletin WMD incident, all agencies with diseased livestock. From a psycho- exposed to Agent Orange and potential emergency management logical perspective, the general Gulf War Syndrome (GWS). responsibilities for the area were in- public almost universally recog- Additionally, they each had chil- vited. Ultimately, 16 agencies, with nizes and fears rabies, adding to the dren who suffered from GWS over 100 representatives, partici- scenario’s reality. symptoms. Because of their back- pated in the scenario. In addition, a technician work- grounds and beliefs, the characters A multiagency working group ing with bomb experts devised, pro- demanded immediate government developed scenario requirements, duced, and tested a realistic, practi- acknowledgment of GWS and paid which focused on a credible chemi- cal delivery system at the FBI medical treatment for veterans and cal/biological threat from a domes- Academy. Each delivery device their families. tic terrorist group. The scenario contained liquid rabies, placed in included an explosion and a derail- 20-ounce soda bottles and separated Agency Coordination ment of railroad cars carrying haz- by a contoured freezer pack con- To ensure involvement by all ardous material (HazMat) on the taining plastic explosives, all of exercise participants, the scenario submarine base. This served as a which was packed inside a soft, six- required action and coordination diversion and gave sufficient expe- pack-size beverage cooler. The de- among all agencies. The exercise rience to state and local responders vice used a blasting cap and a stan- involved two related events at the for consequence management of a dard antipersonnel mine to generate submarine base. The first event, the HazMat/WMD incident. Addition- a charge. Upon command detona- deliberate derailment of a train, in- ally, the terrorist group took control tion, the device would release an cluded a number of tank cars that of a building on the base and held aerosol mist of the deadly rabies contained very large quantities of hostages. This increased the threat virus. hazardous compounds. The derail-