DTIC ADA409307: Agricultural Bioterrorism: A Federal Strategy to Meet the Threat

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by  Defense Technical Information Center

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combat agricultural bioterrorism. e
Threats and the Next QDR
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The strategy should build on h
Kenneth F. McKenzie, Jr. r
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61
already underway; leverage exist-
Illuminating H E N R Y S. P A R K E R
ing Federal, state, and local pro-
Tomorrow’s War
grams and capabilities; and
Martin C. Libicki
involve key customers, stake-
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holders, and partners. The U.S. 60 AR
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Department of Agriculture The Revolution in ER
should lead the development of Military Affairs:
Allied Perspectives
this strategy.
Robbin F. Laird and
Holger H. Mey
Institute for National Strategic Studies
National Defense University
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Agricultural Bioterrorism: A Federal Strategy to Meet the
Threat
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Parker, Henry S.
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13. ABSTRACT (Maximum 200 Words)
The attacks of September 11, 2001, have made Americans acutely aware of their vulnerability
to terrorism. Now the Nation is focused on improving defensive measures and rooting out and
destroying the global infrastructure of terrorism. In response to the terrorist offensive,
the Bush administration has engineered an international coalition against terrorism;
dedicated substantial new resources to prevent or deter this blight; undertaken military
action against blatant practitioners
of terrorism; and established a new Office of Homeland Security, under the leadership of
former Pennsylvania governor Tom Ridge, to coordinate the Federal response to terrorism.
14. SUBJECT TERMS 15. NUMBER OF PAGES
IATAC Collection, terrorism, agriculture, bioterrorism
113
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About the Author NATIONAL DEFENSE UNIVERSITY
President: Vice Admiral Paul G.Gaffney II,USN
Henry S. Parker is National Program Leader for Aquaculture at the Vice President: Ambassador Robin Lynn Raphel
Agricultural Research Service in the U.S. Department of Agriculture and has
INSTITUTE FOR NATIONAL STRATEGIC STUDIES
served in several other positions related to aquaculture and marine science.
Director: Stephen J.Flanagan
Dr. Parker is a former associate professor at the University of Massachusetts,
Dartmouth, and instructor at the University of Rhode Island, where he earned PUBLICATION DIRECTORATE
a master’s degree in marine affairs and a doctorate in biological oceanography. Director and Editor,Joint Force Quarterly: Robert A.Silano
He retired from the Naval Reserve with the rank of captain. Dr. Parker researched General Editor,NDU Press: William R.Bode
and wrote this paper while attending the Industrial College of the Armed Forces, Supervisory Editor,NDU Press: George C.Maerz
where he was a distinguished graduate. He is the author of Exploring the Oceans
National Defense University Press
(Englewood Cliffs, NJ: Prentice-Hall, 1985).
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Agricultural
Bioterrorism:
A Federal Strategy
to Meet the Threat
Henry S. Parker
McNair Paper 65
INSTITUTE FOR NATIONAL STRATEGIC STUDIES
NATIONAL DEFENSE UNIVERSITY
WASHINGTON,D.C.
2002
The opinions, conclusions, and recommendations expressed or implied within
are those of the contributors and do not necessarily reflect the views of the
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Contents
Foreword
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . v
Acknowledgments
. . . . . . . . . . . . . . . . . . . . . . . . vii
Introduction
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . ix
Chapter One
Bioterrorism, Biowarfare,
andNational Security
. . . . . . . . . . . . . . . . . . . . . . 1
Chapter Two
An Emerging Threat to Food Security
. . . . . . . . 11
Chapter Three
Countering the Threat
. . . . . . . . . . . . . . . . . . . . . 25
Chapter Four
Recommendations and Conclusion
. . . . . . . . . 47
Appendix A
Framework for National Coordination
for Security, Critical Infrastructure,
and Counterterrorism
. . . . . . . . . . . . . . . . . . . . . 55
Appendix B
High-Priority Research Needs
. . . . . . . . . . . . . . 57
iii
iv CONTENTS
Appendix C
Federal Agencies with
Counterterrorism Responsibilities
. . . . . . . . . . . 59
Appendix D
Key Federal Programs and Capabilities
to Combat Bioterrorism
. . . . . . . . . . . . . . . . . . . 63
Appendix E
Selected Agricultural and
Environmental Organizations
. . . . . . . . . . . . . . 65
Appendix F
Acronyms
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 69
Endnotes
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 71
References
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 79
Foreword
The astonishing specter of September 11,2001,jarred America and,
indeed, all free nations, into accepting the previously unthink-
able—the world’s only remaining superpower is vulnerable to cat-
astrophic attack and asymmetric warfare,even within its own borders.In
a few short hours Americans came to realize that,for a fanatical,resource-
ful, and patient enemy, there are neither ethical bounds nor societal
mores to delineate the nature of the target, the weapon of choice, or the
scale of the violence.To put it another way,for these enemies there are no
rules ofengagement and there is no honor.
Since September 11, our national sense of vulnerability has
steadily risen.We have been in a near-constant state of high alert because
of credible threats to our Nation’s nuclear installations, power plants,
transportation nodes, and other critical national infrastructures. We
know that at least nine countries support offensive terrorism programs,
and that Al Qaeda—Osama bin Laden’s international terrorist organiza-
tion—has been committed to developing and deploying weapons of mass
destruction against U.S. targets. And the possibility that the recent an-
thrax attacks were perpetrated by a domestic terrorist with access to a
Federal Government, academic, or private laboratory that possessed an-
thrax for legitimate scientific reasons has brought fear to the doorsteps of
virtually every home,business,and public institution in the country.
We are now also facing up to a less publicized, but potentially
devastating threat—terrorism directed against the Nation’s food and
agricultural infrastructure. As this paper elucidates, American farms,
food, and agriculture systems are exceedingly vulnerable to deliberate
disruption by hostile interests intent on undermining confidence in food
supplies or wreaking havoc on the agricultural sector of the American
economy,which accounts for one-sixth ofour gross domestic product.
v
vi FOREWORD
Because of its breadth, diversity, and unparalleled success, U.S.
agriculture is an inviting target for terrorists. Not only are food supplies
vital for feeding our own population and others around the world, and
important for the Nation’s economic health,but American agriculture is a
vivid example of the capabilities of modern scientific farming.Intelligence
reports indicate that a number of countries have active research programs
that could produce biological agents to threaten crops and livestock.
Naturally occurring outbreaks of diseases signal the devastation
that could result from a carefully choreographed intentional release.Thus
the recent Foot and mouth disease epidemics in Taiwan and Great
Britain, or hog cholera in the Netherlands, or the infection of Florida
citrus trees with citrus canker, aptly demonstrate the vulnerability of
living targets to biological pathogens and the economic chaos that can
result from an outbreak—intentional or otherwise.
Floyd P.Horn
Director for Food,Agriculture,and Water Security
Office ofHomeland Security
Executive Office ofthe President
Acknowledgments
Many individuals and organizations supported, encouraged, and
assisted in the research that led to this paper.I am grateful to the
U.S. Department of Agriculture and the Agricultural Research
Service (ARS) for the opportunity to attend the Industrial College of the
Armed Forces (ICAF), where this research was conducted. I particularly
appreciate the support and encouragement of Floyd Horn,ARS Adminis-
trator, and Caird Rexroad, ARS Associate Deputy Administrator for Ani-
mal Production,Product Value,and Safety.I am also grateful to Lew Smith
for assuming my duties on the ARS National Program Staff while I was on
assignment at ICAF.
I benefited from the expertise of a number of authorities in the
public and private sectors.In particular,Norm Steele of ARS freely shared
his extensive knowledge ofagricultural biotechnology and bioterrorism is-
sues,suggested valuable contacts,and reviewed drafts of the report manu-
script thoroughly. I appreciate the perspective, suggestions, and time of
Michael Goldblatt of the Defense Advanced Research Projects Agency and
Randall Murch of the Defense Threat Reduction Agency.I am also obliged
to Terry Wilson of the Animal and Plant Health Inspection Service at the
U.S.Department ofAgriculture for his encouragement,time,information,
and draft manuscript on agricultural bioterrorism.
I am indebted to many individuals at ICAF for their support and
assistance. The ICAF program successfully combines strong scholarship,
professional and personal development, and fun—a combination often
aspired to but seldom achieved. I appreciate the leadership of the ICAF
Commandant,Major General Richard Engel,USAF,during my tenure in
the program.My research advisor,Joseph Goldberg,was always accessible
and helpful, providing sound advice for the original research proposal,
scrupulously reviewing and offering valuable suggestions on report
vii