Domestic Terrorism: Further Actions Needed to Strengthen FBI and DHS Collaboration to Counter Threats
Incidents of domestic terrorism increased by 357% between 2013 and 2021. The FBI and the Department of Homeland Security are charged with collaborating to prevent domestic threats.
Although they work together to counter threats, the agencies may need to update their current agreements to specify how they should collaborate to better address the constantly evolving threat of domestic terrorism. In addition, neither agency regularly assesses how effective they are at working together.
We recommended that the FBI and DHS address these issues.
What GAO Found
According to U.S. law, domestic terrorism is generally defined as involving criminal acts dangerous to human life occurring in the U.S. that appear intended to coerce a civilian population or influence or affect the conduct of government. The Federal Bureau of Investigation (FBI) tracks cases (which it defines as investigations and disruptions) consistent with its investigative mission. The Department of Homeland Security (DHS) Office of Intelligence and Analysis (I&A) tracks incidents which it defines attacks or plots, consistent with its definition of domestic terrorism. From fiscal years 2013 through 2021, the FBI's number of open domestic terrorism-related cases grew by 357 percent from 1,981 to 9,049, From calendar year 2010 to 2021, I&A tracked a total of 231 domestic terrorism incidents, with racially- or ethnically-motivated violent extremists committing the most violent incidents during the time period.
Domestic Terrorism Incidents by State, Calendar Years 2010 through 2021
The FBI and DHS I&A collaborate via headquarters staff, fusion centers, and through serving on task forces, to identify and counter domestic terrorism threats. GAO found that they generally followed leading collaboration practices, but challenges remain. For example, FBI and DHS have agreements in place, but they have not assessed if these agreements fully reflect how their personnel should collaborate on their shared charge of preventing domestic terrorism. Due to the rapidly evolving threat landscape, having up-to-date, comprehensive formal agreements would enhance the two entities' collaboration. Further, FBI and DHS I&A have evaluated individual activities but have not consistently assessed the overall effectiveness of their collaborative efforts. Doing so can ensure both agencies are capitalizing on efforts that may lead to improved information to counter domestic terrorism threats.
Why GAO Did This Study
Domestic terrorism investigations have more than doubled since 2020, according to the FBI. FBI and DHS are the main federal entities charged with preventing terrorist attacks in the U.S. FBI has lead responsibility for federal domestic terrorism investigations and domestic intelligence efforts. DHS is responsible for producing terrorist threat information in coordination with federal, state and local government agencies, and private entities.
GAO was asked to review domestic terrorism threats, incidents, and related federal cases and charges. This report addresses, among other objectives, the extent to which the FBI and DHS I&A (1) track domestic terrorism investigations and incidents, and (2) followed leading collaboration practices in their efforts to counter domestic terrorism threats.
GAO reviewed FBI and DHS policies and guidance related to domestic terrorism, and analyzed FBI investigation data from fiscal year 2013-2021 and DHS incident data from 2010 to 2021, the most recent available. GAO also interviewed with FBI and DHS headquarters officials and field personnel from five Joint Terrorism Task Forces and fusion centers. GAO selected these five based on the number of domestic terrorism incidents in their locations, among other factors.
Recommendations
GAO is making six recommendations, three each to the FBI and DHS, including to assess agreements in place and evaluate collaborative efforts.
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| Federal Bureau of Investigation | The Director of the FBI should, in coordination with the DHS Undersecretary for Intelligence and Analysis, report domestic terrorism incident data from both agencies in response to the annual update requirement in the NDAA for fiscal year 2020. (Recommendation 1) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information..
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| Office of Intelligence and Analysis | The Under Secretary for Intelligence and Analysis should, in coordination with the Director of the FBI, report domestic terrorism incident data from both agencies in response to the annual update requirement in the NDAA for fiscal year 2020. (Recommendation 2) |
As of April 2023, DHS reported that its Office of Intelligence and Analysis and the FBI are working collaboratively to develop the 2023 Strategic Intelligence Assessment report, which according to DHS will reflect both organizations' input regarding significant domestic terrorism incidents during fiscal year 2022. When we confirm the implementation of this action and any additional actions DHS has taken in response to this recommendation, we will provide updated information.
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| Federal Bureau of Investigation | The Director of the FBI should, in collaboration with the DHS Under Secretary for Intelligence and Analysis, implement a process to periodically evaluate the effectiveness of collaborative practices to identify and counter domestic terrorism threats. (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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| Office of Intelligence and Analysis | The DHS Under Secretary for Intelligence and Analysis should, in collaboration with the Director of the FBI, implement a process to periodically evaluate the effectiveness of collaborative practices to identify and counter domestic terrorism threats. (Recommendation 4) |
As of April 2023, DHS noted that DHS and FBI domestic terrorism issue managers and counterterrorism senior leaders have regular meetings, in which ongoing collaboration practices are evaluated, and adjustments to processes are subsequently made, as appropriate. When we confirm the implementation of this action and any additional actions DHS has taken in response to this recommendation, we will provide updated information.
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| Federal Bureau of Investigation | The Director of the FBI should, in collaboration with the DHS Under Secretary for Intelligence and Analysis, assess existing formal agreements to determine if they fully articulate a joint process for working together to counter domestic terrorism threats and sharing relevant domestic terrorism-related information and update and revise accordingly. (Recommendation 5) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
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| Office of Intelligence and Analysis | The DHS Under Secretary for Intelligence and Analysis should, in collaboration with the Director of the FBI, assess existing formal agreements to determine if they fully articulate a joint process for working together to counter domestic terrorism threats and sharing relevant domestic terrorism-related information and update and revise accordingly. (Recommendation 6) |
As of April 2023, DHS stated that it has reviewed its formal agreements with the FBI and is taking steps to strengthen collaboration and coordination on domestic terrorism threats. For example, DHS is establishing a Deputy Under Secretary for Intelligence Partnerships to elevate partner engagement efforts with federal and other partners. Also, according to DHS, FBI is working to identify an FBI Counterterrorism Division employee to be co-located with DHS's Office of Intelligence and Analysis Counterterrorism Mission Center to provide on-site access and support. Additionally, DHS stated that it continues to work with the FBI on certain DHS employees obtaining direct access to FBI investigative data. When we confirm the implementation of these actions and any additional actions DHS has taken in response to this recommendation, we will provide updated information.
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