Evaluating Novel Threats to the Homeland: Unmanned Aerial

130 Pages·2008·0.85 MB·English

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EVALUATING
NOVEL THREATS
TO THE HOMELAND
UNMANNED AERIAL VEHICLES
AND CRUISE MISSILES
Brian A. Jackson, David R. Frelinger
Michael J. Lostumbo, Robert W. Button
Prepared for the Defense Threat Reduction Agency
Approved for public release; distribution unlimited
NATIONAL DEFENSE RESEARCH INSTITUTE
The research described in this report was prepared for the Defense
Threat Reduction Agency. The research was conducted in the RAND
National Defense Research Institute, a federally funded research and
development center sponsored by the Office of the Secretary of Defense,
the Joint Staff, the Unified Combatant Commands, the Department
of the Navy, the Marine Corps, the defense agencies, and the defense
Intelligence Community under Contract W74V8H-06-C-0002.
Library of Congress Cataloging-in-Publication Data is available for this publication.
ISBN 978-0-8330-4169-2
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objective analysis and effective solutions that address the challenges
facing the public and private sectors around the world. RAND’s
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Preface
Deciding how to invest homeland security resources wisely in the
United States can often appear to be an intractable problem because
the large, open American society seems to be so vulnerable to so many
threats in every corner of the country. This monograph is intended to
help bound the problem in order to aid policy and resource decisions
about one type of potential threat to the homeland: cruise missiles
and unmanned aerial vehicles (UAVs). Importantly, the methodology
used can be applied to other modes of attack, and the insights gained
from this methodology extend to other threats as well. The focus of
the research is on a specific class of weapons, but those weapons are
not assessed in isolation; rather, it considers class of weapons as one of
many options open to a potential attacker and seeks to identify invest-
ment strategies that are effective against multiple threats.
This monograph should be of interest to homeland security poli-
cymakers, military and defense planners, analysts examining the ter-
rorist threat, technology and defense system designers, and individuals
charged with protecting potential targets in the U.S. homeland from
terrorist attack.
This research was sponsored by the Defense Threat Reduction
Agency (DTRA) and conducted within the International Security and
Defense Policy Center of the RAND National Defense Research Insti-
tute, a federally funded research and development center sponsored
by the Office of the Secretary of Defense, the Joint Staff, the Uni-
fied Combatant Commands, the Department of the Navy, the Marine
Corps, the defense agencies, and the defense Intelligence Community.
iii
iv Evaluating Novel Threats to the Homeland
For more information on RAND’s International Security and
Defense Policy Center, contact the Director, James Dobbins. He can
be reached by email at [email protected]; by phone at 703-413-1100,
extension 5134; or by mail at RAND, 1200 South Hayes Street, Arling-
ton, Virginia 22202. More information about RAND is available at
www.rand.org.
Contents
Preface ............................................................................. iii
Summary .........................................................................xiii
Acknowledgments .............................................................. xix
Abbreviations .................................................................... xxi
CHAPTER ONE
Introduction ....................................................................... 1
Unmanned Aerial Vehicles and Cruise Missiles: Technological Change
Producing a Potential Threat ................................................ 2
The RAND Approach ............................................................. 7
Task 1: Conduct a Red Analysis of Alternatives .............................. 8
Task 2: Assess the Implications for the Defense .............................. 8
About This Report ................................................................. 9
CHAPTER TWO
UAVs and Cruise Missiles as Asymmetric Threats: How Do These
Systems Compare with Alternative Attack Modes?...................11
Characteristics of UAVs and Cruise Missiles ..................................14
Comparing the Capabilities of UAVs and Cruise Missiles in Attack
Scenarios to Those of Alternative Attack Modes .........................16
Direct Attack ....................................................................18
Indirect Attack ................................................................. 23
Aerial Dispersal .................................................................25
Conclusions ........................................................................25
v
vi Evaluating Novel Threats to the Homeland
CHAPTER THREE
What Adversary Operational Problems Can UAVs and Cruise
Missiles Best Solve and How Do UAVs and Cruise Missiles
Compare with Alternative Solutions? .................................. 27
1. Enable Attack over Perimeter Defenses ......................................29
Alternative Means for Defeating Perimeter Defenses.......................31
Assessment of Options for Defeating Perimeter Defenses .................35
2. Enable Attack over National Borders ........................................37
Alternative Means for Attacking Across National Borders ................39
Assessment of Options for Attacking Across National Borders ...........41
3. Enable Multiple Simultaneous Attacks ..................................... 42
Alternative Means for Staging Multiple Simultaneous Attacks .......... 43
Assessment of Options for Staging Multiple Simultaneous Attacks ......45
4. Enable an Attack Campaign ..................................................47
Alternative Means for Sustaining an Attack Campaign ....................49
Assessment of Options for Sustaining an Attack Campaign ..............51
5. Enable Aerial Attack of Area Targets with Unconventional Weapons ...52
Alternative Means for Dispersing Weapons over Area Targets ............53
Assessment of Options for Dispersing Weapons over Area Targets .......55
Conclusions ........................................................................57
CHAPTER FOUR
What Are the Terrorist Group Characteristics and Preferences
Relevant to the Acquisition and Use of Technology? ................61
Access to and Costs Associated with UAV and Cruise-Missile
Technologies ..................................................................62
Access to and Costs Associated with Alternative Technologies ............. 64
Ability and Willingness to Develop the Expertise Necessary to
Operate the Systems .........................................................65
Technological Preferences ....................................................... 66
Conclusions: Two Decisionmaking Pathways ................................ 66
Path I ............................................................................ 68
Path II ............................................................................69
Contents vii
CHAPTER FIVE
Considering Defensive Strategies and Options ............................71
Options Available to the Defender ..............................................73
Identifying and Catching the Perpetrators: Intelligence, Law
Enforcement, and Forensics ..............................................73
Controlling the Spread of UAVs and Cruise Missiles:
Counterproliferation .......................................................76
Enabling Targeted Sites to React Before Impact: Detection and
Warning .................................................................... 77
Acting Against the Incoming Weapon or the Launcher: Active
Defenses and Prelaunch Engagement ...................................79
Strengthening Targets to Survive Attack: Passive Defenses .............. 80
Bouncing Back from Attack: Response, Recovery, and
Reconstitution ..............................................................81
Comparing the Options: Bases for a Blue Analysis of Alternatives .........82
How Do the Options Differ in Their Effect on the Threat from
UAVs and Cruise Missiles? ................................................83
Do the Options Provide Defensive Benefits with Respect to Other
Forms of Attack Beyond UAVs and Cruise Missiles? ..................85
How Do the Costs Compare? ................................................ 86
Are the Solutions Appropriate for the Homeland? ......................... 88
Are There Technical or Organizational Challenges That Might
Threaten the Benefits of an Option’s Being Realized? .................89
Defense Conclusions: Choosing Among Available Options .................89
Deterring Asymmetrtic Use of UAVs and Cruise Missiles? ................. 94
Deterrence by Punishment ................................................... 94
Deterrence by Denial ...........................................................95
CHAPTER SIX
Conclusions ...................................................................... 97
Anticipating the Attractiveness of a Novel Threat to Adversaries .......... 98
Implications for the Defense .................................................... 98
Bibliography .................................................................... 101
vii