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TABLE OF CONTENTS LEAD ICITECH

- Letter of Transmittal to the President and Congress
- Executive Summary
- Preface

ONE A new kind of war

1.1 Inside the aircraft Johnstone/Raidt Caroline
1.2 Improvising a homeland defense Azzarello Caroline
1.3 National crisis management Hyde Gordon

TWO The foundation of the new terrorism

2.1 A declaration of war May Serena
2.2 Bin Ladin's appeal in the Islamic world May Serena
2.3 The rise of Bin Ladin and al Qaeda (1988-1992) MacEachin Caroline
2.4 Building an organization, declaring war on the United State? Dowling Raj
2.5 Al Qaeda's renewal in Afghanistan (1 996-1 998) MacEachin Alexis

THREE Counterterrorism evolves

3.1 From the old terrorism to the new: the first World Trade Ce Tobin Serena
3.2 Adaptation - or non-adaptation - in the law enforcement co FO Serena
3.3 ... the Intelligence Community FO Caroline
3.4 ... the State Department and the Defense Department FO Caroline
3.5 ... the White House FO Caroline
3.6 ... Congress Kojm Caroline

FOUR U.S. responses to al Qaeda's initial assaults

4.1 Before the bombings in Kenya and Tanzania Albion Serena
4.2 Crisis: August 1998 Bass Steve
4.3 Diplomacy Allan Yoel
4.4 Covert action Jenkins Gordon
4.5 Searching for fresh options Albion Raj

FIVE Al Qaeda aims at the American homeland

5.1 Terrorist entrepreneurs Snell Serena
5.2 The "planes operation" De Gordon
5.3 The Hamburg contingent De Alexis
5.4 A money trail? Roth Yoel

SIX From threat to threat

6.1 The Millennium crisis Linden Alexis
6.2 Post-crisis reflection: an agenda for 2000 Albion Yoel
6.3 The attack on the U.S.S. Cole Grandrimo Gordon
6.4 Change and continuity Hurley Yoel
6.5 A new strategy? Bass Gordon

SEVEN The attack looms

7.1 First arrivals in California Snell Serena
7.2 The 9/1 1 pilots in the United States Jacobson Gordon
7.3 Assembling the teams Kim Serena
7.4 Final strategies and tactics Kim Serena

EIGHT "The system was blinking red"

8.1 The summer of threat Grewe Raj
8.2 Late leads? Mihdhar and Moussaoui Grewe Raj

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TABLE OF CONTENTS LEAD CITE CHECKER

NINE Heroism and horror
9.1 Emergency plans Caspersen Gordon
9.2 Agencies and firms implement the plans Caspersen Gordon
9.3 The World Trade Center Caspersen Gordon
9.4 Fateful choices in emergency response Caspersen Gordon

TEN Wartime
10.1 Crisis management and domestic responses Hyde Yoel
10.2 Initial war planning and the invasion of Afghanistan Hurley Yoel
10.3 The emerging shape of a war on terror Byman Yoel

ELEVEN Foresight, and Hindsight FO Gordon

TWELVE National strategy FO Gordon

THIRTEEN A different kind of government FO Gordon

Table of Names Falk

B List of Commission Hearings and Witnesses Campagna

Endnotes

COMMISSION SENSITIVE
Standard Endnote Examples
(as of July 9, 2004)

AAL; CIA; DCI; DHS; DOD; DOJ; DOS; DOT; FAA; FBI; FDNY; GAO; INS;
NORAD; NSA; NSC; NTSB; NYPD; Port Authority; SEC; Treasury; TSA; UAL; USSS.

Sept. 11,2001. Jan. Feb. Mar. Apr. May June July Aug. Sept. Oct. Nov. Dec.

pp. 24-26; pp. 125-129; 1998-1999; 2001-2004.

Albert Gore interview (May 3, 2004).

Richard B. interview (Feb. 15, 2004).

Richard Clarke interview (Jan. 11, 2004).

Thomas Ridge testimony, May 19,2004.

George Tenet prepared statement, Apr. 14, 2004, p. 5.

Joint Inquiry interview of Richard Clarke, Dec. 15, 2002.

Joint Inquiry testimony of George Tenet, Jan. 15, 2003 (closed hearing).

DOJ Inspector General interview of John Smith, Oct. 20, 2003.

Testimony of George Tenet before the Senate Select Committee on Intelligence, Mar. 15,
2004, p. 12.

Steve Coll, Ghost Wars: The Secret History of the CIA, Afghanistan, and bin Laden, from
the Soviet Invasion to September 10, 2001 (Penguin, 2004), p. 63.

[subsequent short form:] Coll, Ghost Wars, p. 631, n. 29.

Mark LeVine, "The UN Arab Human Development Report: A Critique," Middle East
Report, July 26, 2002, p. 5 (online at www.merip.org/mero/mero072602.html).

DOS cable, London 12345, "Nothing on Moussaoui," Sept. 5, 2001. (S)

CIA cable,[
CHANGE TO: CIA cable, "Update on Camps/1 j

NSC memo, Clarke to Rice, "Not a Plan," Jan. 27, 2001. (TS)

NSC email, Clarke to Berger, "Hair on Fire," Dec. 15, 1999. <SJ

9/11 Classified Information

 9/11 Classified Information

DCI letter, Tenet to Berger, "Transmittal of Rejiort," Jan. 1, 2000.

FBI report of investigation, interview of John jSMith, Oct. 4, 2001.

FBI electronic communication, "Notice to Jiffs/' July 1, 2001.

FBI letterhead memorandum, UBL investigation, Jan. 1, 2001.

FBI report, "Summary of Penttbom Investigation," Feb. 29, 2004 (classified version), pp.
20-29. (S,NF,OC) j \I report, "Hijackers Timeline," Nov. 14, 200^ (ciiing 265A-

4062; 265A-NY-280350-302, Serial 7134). [if the date of the timeline entry is not
clear from the text, add "Apr. 1,1998 entry" iat th'ip beginning of the parenthetical]

CIA report, interrogation ofKSMj JMar. 1. 2004. (S,HCS;NF)

CHANGE TO: Intelligence report, interrogation of K$M\. 1, 2004.

CIA analytic reportj

CIA analytic report, "The Plot and the Plotters," June 1,2003, p. 5. (S)

Ibid., p. 12. (S) \, SEIB,|

CIA, NID,|

CIA briefing materials, "The Threat," undated (appears to be from July 2001).

NSC talking points, "Meeting with Bandar," undated, p. 2.

See, e.g., DOS, Patterns of Global Terrorism 2002, Apr. 2003, p. 83 (online at
www.state.gov/s/ct/rls/).

See Thomas H. Kean and Lee H. Hamilton, "Progress Report," Washington Post, Mar.
15, 2004, p. Al 2.

German BKA report, investigative summary re Binalshibh, pp. 4-10.

German BKA investigation of Said Bahaji, summary of interrogation of Shahid Nickels

on Oct. 30, 200 1, p. 8.

[Don't cite Staff Statements!]

[Cite team comments in square brackets, bold]

-2-
Standard Endnote Examples
(as of June 25, 2004)

AAL; CIA; DCI; DHS; DOD; DOJ; DOS; DOT; FAA; FBI; FDNY; GAO; INS;
NORAD; NSA; NSC; NTSB; NYPD; Port Authority; SEC; Treasury; TSA; UAL; USSS.

Sept. 11, 2001. Jan. Feb. Mar. Apr. May June July Aug. Sept. Oct. Nov. Dec.

pp. 24-26; pp. 125-129; 1998-1999; 2001-2004.

Albert Gore interview (May 3, 2004).'

Richard B. interview (Feb. 15, 2004).

Richard Clarke interview (Jan. 11, 2004).

Thomas Ridge testimony, May 19,2004.

George Tenet prepared statement, Apr. 14, 2004, p. 5.

Joint Inquiry interview of Richard Clarke, Dec. 15, 2002.

Joint Inquiry testimony of George Tenet, Jan. 15, 2003 (closed hearing).

DOJ Inspector General interview of John Smith, Oct. 20, 2003.

Testimony of George Tenet before the Senate Select Committee on Intelligence, Mar. 15,
2004, p. 12.

Steve Coll, Ghost Wars: The Secret History of the CIA, Afghanistan, and bin Laden, from
the Soviet Invasion to September 10, 2001 (Penguin, 2004), p. 63.

[subsequent short form:] Coll, Ghost Wars, p. 631, n. 29.

Mark LeVine, "The UN Arab Human Development Report: A Critique," Middle East
Report, July 26, 2002, p. 5 (online at www.merip.org/mero/mero072602.html).

DOS cable, London 12345, "Nothing on Moussaoui," Sept. 5, 2001. (S)

CIA cable,! I

NSC memo, Clarke to Rice, "Not a Plan," Jan. 27, 2001. (TS)

NSC email, Clarke to Berger, "Hair on Fire," Dec. 15, 1999. (S).

9/11 Classified Information

 9/11 Classified Information

DCI letter, Tenet to Berger, "Transmittal of Report," Jan. 1, 2000.

FBI report of investigation, interview of John $m#h, Oct.. 4, 2001.

FBI electronic communication, "Notice to JTTps,*' July I, 2001.

FBI letterhead memorandum, UBL investigation, Jan. 1, 2001;

FBI report, "Summary of Penttbom Investigation," F,eb. 29,2004, pp. 20-29. (S,NF,OC)

FBI report, "Hijackers Timeline," Nov. 14,200? (citing 265A-NY-280350-CG, Serial

4062; 265A-NY-280350-302, Serial 7134). [if the date of the timeline entry is not
clear from the text, add "Apr. 1,1998 entry" iat the beginning of the parenthetical]

CIA report, interrogation ofKSM| | Mar. 1, 2\004. (S,HCS,NF)

CIA analytic report, | \

CIA analytic report, "The Plot and the Plotters," June 1, 2003, p. 5. (S)

Ibid., p. 12. (S) \, SEIB,[

CIA,N1D,£

CIA briefing materials, "The Threat," undated (appears to be from July 2001).

NSC talking points, "Meeting with Bandar," undated, p. 2.

See, e.g., DOS, Patterns of Global Terrorism 2002, Apr. 2003, p. 83 (online at
www. state, gov/s/ct/rl s/).

See Thomas H. Kean and Lee H. Hamilton, "Progress Report," Washington Post, Mar.
15, 2004, p. Al2.

German BKA report, investigative summary re Binalshibh, pp. 4-10.

German BKA investigation of Said Bahaji, summary of interrogation of Shahid Nickels

on Oct. 30, 2001, p. 8.

[Don't cite Staff Statements!]

[Cite team comments in square brackets, bold]

-2-
Standard Endnote Examples
(as of June 2, 2004)

AAL; CIA; DCI; DHS; DOD; DOJ; DOS; DOT; FAA; FBI; FDNY; GAO; INS;
NORAD; NSA; NSC; NTSB; NYPD; Port Authority; SEC; Treasury; TSA; UAL; USSS.

Sept. 11, 2001. Jan. Feb. Mar. Apr. May June July Aug. Sept. Oct. Nov. Dec.

pp. 24-26; pp. 125-129; 1998-1999; 2001-2004.

Albert Gore interview (May 3, 2004).

Richard B. interview (Feb. 15, 2004).

Richard Clarke interview (Jan. 11, 2004).

Thomas Ridge testimony, May 19,2004.

George Tenet prepared statement, Apr. 14, 2004, p. 5.

Joint Inquiry interview of Richard Clarke, Dec. 15, 2002.

Joint Inquiry testimony of George Tenet, Jan. 15, 2003 (closed hearing).

DOJ Inspector General interview of John Smith, Oct. 20,2003.

Testimony of George Tenet before the Senate Select Committee on Intelligence, Mar. 15,
2004, p. 12.

Steve Coll, Ghost Wars: The Secret History of the CIA, Afghanistan, and bin Laden, from
the Soviet Invasion to September 10, 2001 (Penguin, 2004), p. 63.

[subsequent short form:] Coll, Ghost Wars, p. 631, n. 29.

Mark LeVine, "The UN Arab Human Development Report: A Critique," Middle East
Report, July 26, 2002, p. 5 (online at http://www.merip.org/mero/mero072602.html).

DOS cable, London 12345, "Nothing on Moussaoui," Sept. 5, 2001. (S)

CIA cablej_

NSC memo, Clarke to Rice, "Not a Plan," Jan. 27, 2001. (TS)

NSC email, Clarke to Berger, "Hair on Fire," Dec. 15, 1999. (S)

9/11 Classified Information

 QUICK STYLE GUIDE

Table of Contents

Introduction 1

Formatting Guidelines 1

9/11-Related Terms 1-2

9/11 Hijackers and Conspirators 2

Other Spelling and Usage Suggestions 3

Numbers 3

Commas (or Semicolons) in a Series 3

Dashes 4

U.S. or United States? 4

Titles and Offices 4

Citation Guidelines 5-6

INTRODUCTION

The purpose of a "house" style guide is to help an organization communicate with its
many audiences in a clear and consistent voice. The Commission Style Guide generally
follows the Chicago Manual of Style (15th edition). A copy of the Chicago Manual is
available in each Commission office.

Style guides are sometimes long and cumbersome. This version has been condensed to
highlight the most common usage errors and standardize terminology related to the
Commission's work. If you have a question about something that doesn't appear in this
guide, please consult with Stephanie Kaplan.

FORMATTING GUIDELINES

• Prepare your draft in 12 pt. Times New Roman, single-spaced.

• The paragraphs, titles, and subtitles should be left-justified.
• Insert one space between a period and the beginning of a new sentence.
• Should you choose to use subtitles, try to use consistent formatting throughout the text.
• Insert "SUBJECT TO CLASSIFICATION REVIEW" in the header and footer.
• Insert page numbers in the bottom left-hand corner.

9/ll-RELATED TERMS

Instead of: Use:

commission, commissioners Commission, Commissioners

911,9-11 9/11
Sept. 11, September 11th September 11
11th eleventh

Write a cardinal rather than an ordinal, even though the number may be pronounced as
an ordinal, for example:

September 11 attacks the events of September 11

September 11, 2001 attacks the September 11 tragedy

Instead of: Use:

al Qa'ida
al-Qa'ida
al-Qaida 'f*- al Qaeda
Al Qaeda
Al-Qaeda

Commission Style Guide

Instead of: Use:

Osama bin Laden

Osama Bin Laden
Usama bin Laden Usama Bin Ladin, Bin Ladin, UBL
Usama Bin Laden

9/11 HIJACKERS AND CONSPIRATORS

American Airlines Flight 11

Mohamed Atta Hijacker (Pilot)
Abdul Aziz al Omari Hijacker
Waleed al Shehri Hijacker
Satam al Suqami Hijacker
Wail al Shehri Hijacker

American Airlines Flight 77

Hani Hanjour Hijacker (Pilot)
Khalid al Mihdhar Hijacker
Majed Moqed Hijacker
Nawaf al Hazmi Hijacker
Salem al Hazmi Hijacker

United Airlines Flight 93

Ziad Samir Jarrah Hijacker (Pilot)
Saeed al Ghamdi Hijacker
Ahmed al Nami Hijacker
Ahmad al Haznawi Hijacker

United Airlines Flight 175

Marwan al Shehhi Hijacker (Pilot)
Mohand al Shehri Hijacker
Hamza al Ghamdi Hijacker
Fayez Banihammad Hijacker
Ahmed al Ghamdi Hijacker

Other Conspirators
Khalid Sheikh Mohamed, KSM
Ramzi Binalshibh
Zakariya Essabar
Saeed "Jihad" al Gamdi
Ali Abdul Aziz Ali
Mohamed al Kahtani
Mustafa al Hawsawi
Mounir el Motassadeq
Abdelghani Mzoudi
Mastermind
Potential Pilot
Potential Pilot/Hijacker
Potential Hijacker
Financial Facilitator
Potential Hijacker
Facilitator
Associate
Associate

Commission Style Guide

OTHER SPELLING AND USAGE SUGGESTIONS

Instead of: Use:

1%, 13% 1 percent, 13 percent

21st century twenty-first century
America (noun) the United States (unless awkward in a specific context)
American (adj.) U.S. (unless awkward in a specific context)
advisor adviser
Congressional congressional
counter-terrorism counterterrorism
decision-maker decisionmaker, decisionmaking
e-mail email
internet Internet
per cent percent
policy maker policymaker, policymaking
on-line online
towards toward
U.N. UN
US U.S.
U.S.G. USG
vice-president vice president
website Web site

NUMBERS

Many rules govern the use of numbers in a text, but remember four basic ones:

1) Spell out numbers ten and under; use numerals for 11 and higher.
2) Use numerals for all percents, regardless of value (i.e., 1 percent or 19 percent).
3) A sentence must never begin with a numeral (i.e., Two-thousand and one was...).
4) For time, use "a.m." and "p.m."

COMMAS (OR SEMICOLONS) IN A SERIES

Use commas between each item in a series:

A, B, and C not A, BandC

1, 2, 3, or 4 not 1, 2, 3 or 4

Use semicolons when the elements in a series involve internal punctuation or are very
long and complex.

Commission Style Guide

DASHES

An em dash (—) or pair of em dashes set off an amplifying or explanatory element.

(Commas, parentheses, or a colon may perform a similar function.)

You should use the em dash, not en dashes (-) or two hyphens (--). The em dash should
not be set off by spaces, for example:

The chancellor—he had been awake half the night—came down in an angry
mood.

The easiest way to insert an em dash is to activate the conversion function. In Microsoft
Word, go to Insert, AutoText, and then AutoText again. Click on the AutoFormat tab,
and under Replace, check the box beside "Hyphens (--) with dash (—)." With this
function activated, two dashes will be converted into an em dash automatically.

U.S. OR UNITED STATES?

The term "U.S." appears with periods (unlike the acronym USG) and should only be used
as an adjective.

Al Qaeda considered several U.S. targets.

When the United States is the noun or the direct object in a sentence, it should be written
out. (The same logic applies to the United Nations)

Al Qaeda considered several targets in the United States.

The United States is the world's only superpower.

TITLES AND OFFICES (TREATMENT IN TEXT, NOT IN FORMAL LISTS)

Capitalize titles—civil, military, religious, and professional—when they immediately

precede a person's name as part of the name:

President George W. Bush, Governor Thomas H. Kean

Titles are not capitalized when they are used in apposition to the name (not as part of the
name):

The governor, who is also a university president, said...

Tony Blain, the British prime minister, flew to Duluth.

Titles following a name or used alone in place of a name are usually lowercased:

the president, the ambassador, the senator, the chief justice of the Supreme Court
Gen. Richard B. Myers, chairman of the Joint Chiefs of Staff

Commission Style Guide 4

CITATION GUIDELINES

The integrity of the Commission's final report and monographs will depend in part on the
rigorous and accurate citation of source material. Citations serve a secondary purpose by
facilitating the declassification and fact-checking process.

General Comments

• Use endnotes, not footnotes or parenthetical citations. Use endnotes so that our
copyeditor can use footnotes to insert comments and queries during the editorial
process. If you have already started drafting with footnotes or you simply prefer
footnotes, you should convert them into endnotes before submitting your draft to the
front office. (To convert existing footnotes into endnotes, go to Insert, Reference,
Footnote, and click on Convert.)

• Add supplementary information at the end in boldface. After you have completed
the formal citation, you should add the following information, in bold, at the end:

o The classification of the source

o Internal reference numbers that can help you or your colleagues retrieve the
document (i.e. Commission document numbers, agency Bates numbers). Note
that Commission document numbers are much more reliable than agency
numbers.

This information will be deleted for the final report, but it will facilitate the
declassification and fact-checking process.

• More information is better. It is easier to pare down a citation than it is to add

information after the fact. When in doubt, keep in the information in, and the
endnotes will be streamlined and formatted during the copyediting process.

Government Documents

The vast majority of citations will be government documents and Commission

interviews. There are too many variations of government documents to provide a
template for each citation, but your formal citation must include the following
information at a minimum:

Author/Agency, Document/Publication Title, Date, p. x.

You should use "quotes" for a document titles and italics for titles of a published work.

Bates numbers (either from the originating agency or the Commission) should not/not be
included in the formal citation. If you wish to note these reference numbers, please do so
in bold after the citation. For example:

Author/Agency, Document/Publication Title, Date, p. x. S, RDOS 03001478

Commission Style Guide 5

The Commission's copyeditor will evaluate and rework the information provided into a
standard format across the board. The key is to be forthcoming with the basic elements of
the formal citation.

Interviews & Briefings

Commission interviews and briefings should be documented as follows:

Commission interview/briefing with [person, location, date].

MFRs are not/not part of the formal citation, although if you wish to note the page
number of the reference in the MFR, please do so in bold after the citation. For example:

Commission interview with William J. Clinton, Washington, DC, April 8, 2004.

MFR, p. 3

Other Source Material

All other source material, particularly open sources such as books, articles, and electronic
media, should follow the Chicago Manual of Style, 15th edition. A copy of the manual is
available at each of the Commission offices.

Questions

If you have any questions about citations, please feel free to consult with Stephanie
Kaplan. She and the copyeditor are always available to discuss agency-specific source
material.

Commission Style Guide