International special events

FBI Law Enforcement Bulletin,The, Jan, 2006 by James A. McGee

The Summer Olympic Games ceremoniously concluded on August 29, 2004, in the heart of Athens, Greece. The culmination of the event was celebrated as testimony to peace and world unity. In retrospect, what factors were employed to ensure a safe and secure athletic contest? This question requires a close examination of the measures taken to address an international special event. (1) It also reveals the necessity to begin security preparations early, well before the occurrence, allowing adequate time to address potential training requirements, exercise emergency response capabilities, and implement appropriate corrective actions. Multiagency and multinational cooperation, coordination, and communication are critically important pieces of the security equation.

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The environment for terrorism changed dramatically throughout the world after Greece was awarded the 2004 Summer Olympic Games in 1997. In fact, the tragic events of September 11, 2001, redefined the role and responsibilities of the U.S. government (USG) when addressing special events in foreign countries, and the threat of terrorist attacks against U.S. citizens and interests escalated. The risk of deadly aggression during special events increased as the capability of mass media improved, allowing live broadcasts on a worldwide scale. Further, an elevated tendency for terrorist groups to resort to acts of violence and the continued proliferation and accessibility of weapons of mass destruction (WMD) contributed to the threat as well.

Terrorist attacks extended geographically during the months leading up to the opening ceremonies for the 2004 Summer Olympic Games. The escalation of tension due to the war in Iraq and the bombings in Istanbul, Turkey, and Madrid, Spain, raised concerns in Athens. Under the direction of the U.S. Department of State (DOS), unprecedented security measures were employed to prevent a terrorist attack against the Olympic Games.

Historically, the FBI fulfills a fundamental role during USG involvement with special events management, including all of those potentially requiring federal assistance. The FBI's function in special events is defined within numerous statutes and presidential directives. These authorities, combined with the FBI's responsibilities in combating terrorism, provide the predication for FBI commitment.

The Olympic Games represent the clearest example of a special event given the international participation and broad-based viewing audience. Such a scene provides the perfect stage for a terrorist seeking global recognition and a platform to voice political demands. A less obvious example of a special event includes the trial of Timothy McVey, accused and convicted of the April 19, 1995, bombing of the Alfred P. Murrah federal building in Oklahoma City, Oklahoma. Such a setting also represents an active target for terrorist attack by individuals sympathetic to antigovernment ideologies who seek an opportunity for mass media recognition.

DOMESTIC SPECIAL EVENTS

FBI involvement in special events is generally within the continental United States (CONUS). Given the complexities associated with security preparations and logistics, it is important to understand the protocols in place that provide direction when addressing a domestic special event before examining the enhanced challenges associated with addressing international ones.

Each special event is evaluated in terms of size, threat, significance, duration, location, attendance, media coverage, dignitaries, and viewing audience. The FBI assigns a special event readiness level (SERL) to those that require counterterrorism (CT) support. The SERLs are divided into four categories. SERL I events require the full support of the USG and significant predeployment of USG CT response assets. The Olympic Games fall within this category. Until the 2004 Olympics in Athens, this designation applied to Olympic Games occurring only within the United States. The 2004 Summer Olympics demonstrated the need to expand this designation to international special events.

SERL II events are of lesser magnitude but still require augmentation of CT response assets. Political conventions, presidential inaugurations, and economic summits fit within this category.

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SERL III and IV events require minimal USG agency support and, frequently, receive adequate support by state and local resources. Most special events fall within one of these two categories. Examples include Super Bowls, high-profile trials, the Indianapolis 500, the Goodwill Games, and World Trade Organization conferences.

Presidential Decision Directives (PDD) 39 and 62 designate the FBI as the lead federal agency for crisis management and intelligence related to terrorism during domestic special events. Additional authorities are delegated to the Federal Emergency Management Agency (FEMA) regarding consequence management (the first response to a terrorist incident and the follow-on efforts to preserve life) and coordination. The U.S. Secret Service is designated the lead agency for security design, planning, and implementation.