National Strategy for Combating Terrorism: September 2006

In Short

Published five years after the attacks of September 11, 2001, this executive document outlines the executive branch’s updated framework for winning the War on Terror. Moving beyond initial crisis responses, the text frames the conflict as both a military campaign and a long-term battle of ideas. It details how the United States intends to disrupt transnational extremist networks, isolate state sponsors, secure potential weapons of mass destruction, and eliminate safe havens. The document stands as a foundational record of post-9/11 defense policy, capturing the shifting doctrines, institutional realignments, and diplomatic strategies of early twenty-first-century national security.

The Story

The document begins by reflecting on five years of conflict since September 11, 2001, defining the threat not merely as a single organization, but as a broad, transnational movement of extremist groups united by a violent ideology that distorts Islam. It reviews key operational successes, including the disruption of central leadership in groups like al-Qaida, the removal of the Taliban in Afghanistan, the dismantling of major financial channels, and the capture or death of key figures like Khalid Shaykh Muhammad and Abu Musab al-Zarqawi. Despite these achievements, the analysis notes evolving challenges: terrorist networks have become more dispersed, relying on localized cells, online propaganda, and decentralized command structures while continuing to target soft civic locations globally.

To counter this evolving threat, the text presents a two-pronged strategy. The primary long-term solution is the advancement of effective democracy. The argument asserts that genuine democratic governance—defined not just by elections, but by human rights, impartial justice, and civil liberties—serves as the ultimate antidote to extremist ideologies. It counters common misconceptions, arguing that terrorism is not caused by poverty or foreign policy grievances, but stems from political alienation, subcultures of conspiracy, and violent ideologies. Democracy addresses these underlying conditions by granting citizens an ownership stake in society, peaceful resolution mechanisms, and a transparent marketplace of ideas.

To allow time for democratic institutions to take root, the document establishes four short-term operational priorities: preventing attacks by hunting down network foot soldiers and disrupting their travel; denying weapons of mass destruction to rogue actors through tight material security and global initiatives; isolating state sponsors of terrorism like Iran and Syria while encouraging compliant behavior as demonstrated by Libya and post-war Iraq; and eliminating physical, legal, cyber, and financial safe havens.

The concluding phase of the strategy focuses on institutionalizing these efforts for a prolonged conflict. It details the structural transformations across major federal agencies—including the intelligence integration of the Federal Bureau of Investigation, the Treasury Department’s financial targeting units, the Department of Defense’s shift toward irregular warfare and expanded Special Operations Forces, and the State Department’s focus on transformational diplomacy. Finally, it calls for a national "Culture of Preparedness" involving every level of government, foreign partners, and private citizens to sustain long-term resilience.

How It Unfolds

Assessing the evolving adversary The text opens with an inventory of achievements since 2001, acknowledging degraded terrorist networks alongside new risks posed by decentralized, internet-enabled cells and persistent state sponsors.

Promoting democratic governance The core strategic shift presents effective democracy as the long-term cure for terrorism, asserting that fundamental civil freedoms directly undermine the alienation and conspiracy theories that drive extremist recruitment.

Disrupting networks and weapons access Short-term priorities dictate aggressive interdiction of terrorist logistics, cutting off financing, restricting international travel, securing soft targets, and enforcing international initiatives to keep nuclear and biological materials out of hostile hands.

Eliminating sanctuaries and state support The argument addresses state sponsors through targeted sanctions while detailing plans to eradicate physical and virtual safe havens across legal systems, financial networks, and online communication channels.

Building enduring institutions The final section outlines structural reforms across the CIA, FBI, Pentagon, and State Department, establishing interagency cooperation, expanded language education, and a civic culture of preparedness to sustain a prolonged global effort.

The People

The Transnational Terrorist Enemy This collective adversary consists of extremist organizations, decentralized cells, and state supporters driven by a violent, totalitarian ideology. Seeking to exploit divisions within and outside the Muslim world, it relies on suicide bombings, media propaganda, and safe havens to inflict mass casualties and disrupt free societies.

Effective Democracies Framed as the primary constructive actor in the struggle, the effective democracy represents a system built on sovereign accountability, human rights, impartial justice, and individual dignity. Its expansion serves as the primary structural alternative to extremist governance.

Rogue States and Sponsors Governments designated as state sponsors—specifically including Syria and Iran—provide critical resources, funding, transit, and potential access to weapons of mass destruction. Their continued isolation remains a core focus until they renounce support for violence.

The Reformed National Security Apparatus Comprising transformed agencies—including the Department of Defense, the FBI, the Department of the Treasury, and the Department of State—this collective entity adapts traditional warfare and law enforcement mechanisms to meet asymmetric, long-term global security challenges.

In Its Own Voice

"The paradigm for combating terrorism now involves the application of all elements of our national power and influence."

This statement frames the strategy's core shift away from treating counterterrorism solely as a criminal justice issue, calling instead for unified military, financial, diplomatic, and intelligence action.

"Elections are the most visible sign of a free society and can play a critical role in advancing effective democracy. But elections alone are not enough."

Here the document clarifies its political philosophy, emphasizing that true democratic stability requires institutional protections like independent justice and human rights alongside voting.

"The hard core among our terrorist enemies cannot be reformed or deterred; they will be tracked down, captured, or killed."

This direct policy assertion justifies immediate, offensive short-term operations alongside long-term diplomatic initiatives.

What It's Really About

The document explores the fundamental conflict between open, democratic societies and totalitarian political ideologies that use indiscriminate violence. It argues that physical force alone cannot eliminate modern security threats without addressing the political vacuums, conspiratorial subcultures, and institutional gaps where extremism breeds.

Underneath its tactical guidelines, the text addresses the responsibilities of national sovereignty in an interconnected world. It asserts that state legitimacy requires governments to maintain internal order, suppress illicit financing, and refuse sanctuary to non-state actors. Ultimately, the strategy advances the thesis that long-term national security depends on building flexible, interagency government structures and fostering resilient civil institutions capable of enduring asymmetric, prolonged global conflicts.

Why Read It Today

This document offers readers a clear, unvarnished look at the formal policy logic that governed American counterterrorism during a crucial historic pivot point. Rather than relying on secondary commentary, engaging directly with this executive strategy illuminates how federal leaders framed international conflicts, state sovereignty, and foreign democracy promotion in the years following the initial post-9/11 operations.

Reading the policy provides valuable insight into the origins of modern national security infrastructure. It clearly traces how interagency intelligence sharing, financial tracking, border controls, and cyber monitoring were systematically integrated into daily governance. While the writing maintains the measured tone of an official state publication, its organized structure and direct prose make complex strategic concepts easily accessible to historians, political scientists, and general readers seeking to understand the institutional foundations of twenty-first-century foreign policy.