Terrorist Watchlist: FBI Should Improve Outreach Efforts to Nonfederal Users
Fast Facts
When state and local law enforcement officers encounter people—e.g., in traffic stops—officers check their names against state database systems. The systems will return an alert if a name potentially matches one on the terrorist watchlist, which is managed by the FBI.
In half of our interviews with law enforcement agencies, officials said their officers may not always know how to properly respond to these alerts.
We recommended that the FBI develop a communications plan to tell law enforcement agencies about the policies around the terrorist watchlist, and a process to review states' training on the policies.
Police officer speaking to a driver of a vehicle through the open driver side window.
Highlights
What GAO Found
Nonfederal law enforcement officers query encountered individuals against the terrorist watchlist during routine police interactions, such as traffic stops. After encountering a potentially terrorist watchlisted individual, nonfederal law enforcement officers receive instructions, via the National Crime Information Center (NCIC), to contact the Federal Bureau of Investigation’s (FBI) Threat Screening Center to determine whether the individual is a positive or negative match to the terrorist watchlist.
GAO found that almost half of the law enforcement entities GAO interviewed in four states (12 of 26 entities, including police and sheriff’s departments) reported that officers were not consistently reporting encounters with potentially terrorist watchlisted individuals in instances where it is warranted. Seeking information to understand the extent to which nonfederal law enforcement entities are consistently reporting terrorist watchlist encounters could improve the accuracy of watchlist records.
Nonfederal Law Enforcement Steps When Responding To Terrorist Watchlist Encounters
aDispatchers may be used by police departments to query the National Crime Information Center instead of the responding officer.
The Threat Screening Center uses outreach efforts to communicate terrorist watchlisting policies to nonfederal law enforcement entities that use the terrorist watchlist. However, GAO found that FBI has not ensured nonfederal law enforcement entities are aware of terrorist watchlist policies and has not taken steps to develop a communication plan for its outreach efforts. Developing a communication plan with goals and measures as well as periodic assessments of progress would help accomplish this. Additionally, FBI’s Criminal Justice Information Services does not ensure states train NCIC users on terrorist watchlist policies. Without developing a process to review states’ efforts to do so, FBI cannot ensure that state training programs instruct nonfederal law enforcement to properly protect and respond to terrorist watchlist information.
Why GAO Did This Study
The Threat Screening Center, administered by FBI, is responsible for managing the terrorist watchlist. In recent years, Members of Congress have raised questions about how nonfederal entities use the terrorist watchlist.
GAO was asked to examine the use of the terrorist watchlist by nonfederal law enforcement entities. This report examines (1) nonfederal entities’ reporting of terrorist watchlist encounters to FBI and opportunities for improvement and (2) steps FBI has taken to ensure nonfederal entities’ awareness of watchlist policies through outreach and state-led trainings.
GAO reviewed watchlist policies and training resources for nonfederal entities and collected encounter data for fiscal years 2019 through 2024. GAO interviewed nonfederal law enforcement officials in four states selected based on the number of encounters and other factors. While not generalizable, these interviews provided insights into officials’ awareness of policies and training.
This is the public version of a sensitive report GAO issued in August 2025. Information on encounter data and official FBI instructions on handling watchlist encounters that FBI deemed sensitive has been omitted.
Recommendations
GAO recommends that FBI (1) seek information to understand the extent to which nonfederal law enforcement entities are consistently reporting terrorist watchlist encounters, (2) develop a communication plan to improve its outreach efforts, and (3) develop a process to review state efforts to instruct NCIC users about watchlist policies. FBI concurred with the recommendations.
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| Federal Bureau of Investigation | The Director of FBI should ensure that the Threat Screening Center seeks information to better understand the extent to which nonfederal law enforcement entities are consistently reporting terrorist watchlist encounters and takes steps to identify and address the reasons, as appropriate, that officers may not report a terrorist watchlist encounter. (Recommendation 1) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
|
| Federal Bureau of Investigation | The Director of FBI should develop and implement a communication plan with clear, measurable goals and periodic assessments of progress to increase nonfederal law enforcement entities' awareness of terrorist watchlist policies. (Recommendation 2) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
|
| Federal Bureau of Investigation | The Director of FBI should develop and implement a process to review the efforts of state systems agencies in instructing NCIC users on how to handle terrorist watchlist information, such as through its training requirements, audits, or training assistance efforts. (Recommendation 3) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
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