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August 18, 2017
State Department Country Report on Terrorism: 2001–2016 Trends
Overview
to collect data for the Country Reports using its unclassified
By April 30 of each year, the Secretary of State is required
Global Terrorism Database (GTD). GTD statistics are
by law to provide Congress a Country Report on Terrorism.
derived from open-source reporting and are available on
According to 22 U.S.C. §2656f, the report must contain
START’s website.
“detailed assessments with respect to each foreign country
The trends contained in this In Focus begin with the year
in which acts of international terrorism occurred, which
2001 due to the post-9/11 increased interest in the findings
were, in the opinion of the Secretary, of major
significance.”
contained in the country reports. Following the terrorist
While the report does not speak to the
attacks on September 11, 2001, reporting requirements for
effectiveness of U.S. counterterrorism strategies, policies,
the country reports changed. The Intelligence Reform and
or operations, it does offer a perspective of general trends
Terrorist Prevention Act of 2004 (P.L. 108-458) mandated
of global casualties resulting from terrorist attacks. By law,
assessments of countries with territory being used as
the Country Report on Terrorism must include
terrorist “sanctuary,” and the Intelligence Authorization Act
an examination of foreign counterterrorism efforts;
for Fiscal Year 2005 (P.L. 108-487) required a report on
terrorist groups that possess or are attempting to obtain
any judicial responses of foreign countries regarding
weapons of mass destruction (WMD). Although the
terrorism affecting American citizens or facilities;
statutory requirements have not changed since 2004, the
a list of countries that support terrorist groups;
reports have been adapted to include information on more
recent phenomena, such as online recruitment by terrorist
an assessment of countries in which terrorists operate,
groups.
including actions taken by those governments;
a report on terrorism-related deaths, injuries, and
2001–2003
kidnappings;
Data for 2001 reflect many casualties from the September
11 attacks in the United States. Over the next two years,
a strategy for addressing terrorist sanctuaries; and
attacks and casualties decreased. The 2002 report cited a
an analysis of international terrorism trends.
decline in bombings of U.S.-protected oil pipelines in
Colombia as an example of what the State Department
For a violent act to be designated as terrorism and included
assessed was a decrease in anti-U.S. attacks. In 2003, the
in the report, it must meet all of the following criteria:
State Department reported a low of 1,900 terrorism-related
casualties (see Figure 1).
the attack was aimed at attaining a political, economic,
religious, or social goal;
2004–2006
The period between 2004 and 2006, characterized by heavy
the attack demonstrated evidence of an intention to
fighting and increased violence in Iraq and Afghanistan,
coerce, intimidate, or convey some other message to a
was associated with a steep increase in casualties. During
larger audience (or audiences) other than the immediate
this time, many viewed Al Qaeda (AQ) as a primary threat
victims; and
to international security. According to the State
the attack was conducted outside the precepts of
Department, after suffering losses in 2003, AQ focused on
International Humanitarian Law insofar as it targeted
spreading its ideology to other countries and establishing
noncombatants.
affiliate groups. In doing so, AQ transitioned to “guerilla
terrorism” and used propaganda to brand AQ as a sort of
The report defines casualties as “people killed and injured,”
“global insurgency,” according to the State Department.
but does not specify the criteria used to determine whether
The 2005 country report indicated an increase in suicide
casualties directly resulted from terrorist attacks. Casualty
bombings, of which there was a “marked increase” in
figures include perpetrator(s), when applicable.
Afghanistan, and a concentration of terrorist attacks in Iraq
(30% of worldwide attacks). In 2006, the State Department
Data Collection
noted that AQ’s misinformation and propaganda efforts
Over the past 16 years, several different entities have been
“accelerated” through its focus on “propaganda warfare.”
responsible for Country Report on Terrorism data
collection. From 2001 to 2004, it was largely the
2007–2011
responsibility of the State Department’s Coordinator for
In 2007, the State Department reported a then-record high
Counterterrorism. After it was established in 2004, the
of 66,995 terrorism-related casualties. Trends in 2007
National Counterterrorism Center (NCTC) assumed this
included continued AQ activity, including its “guerilla
responsibility and contributed data to the reports with the
terrorism” strategy and affiliations with regional groups.
University of Maryland’s National Consortium for the
That year, nearly 43% and 13% of attacks occurred in Iraq
Study of Terrorism and Responses to Terrorism (START)
and Afghanistan, respectively. After 2007, attacks followed
https://crsreports.congress.gov
State Department Country Report on Terrorism: 2001–2016 Trends
a general downward trend and casualties dropped each year
casualties between 2001 and 2016. However, this trend is
until 2012. The 2008 report stated that Al Qaeda “remained
marked by numerous peaks and dips with respect to
the greatest terrorist threat to the United States and its
casualties. In some years, a majority of casualties resulted
partners,” and the reports for 2009 and 2010 cited the
from few particularly destructive events and in other years,
continued challenge of Al Qaeda activity and safe havens in
attacks were concentrated in certain geographic areas.
Pakistan. In 2011, the State Department reported the
Other factors may have contributed to this apparent upward
operational weakening of Al Qaeda in Pakistan and the
trend. These include new developments that have improved
death of several senior leaders, including Osama bin Laden.
data collection and availability, including the growth of the
2012–2016
internet and social media and a concentration of effort on
discovering and reporting attacks. Improved technologies
From 2012 to 2014, attacks and casualties increased.
and increased awareness may be reflected in higher
During this time, the Islamic State (IS) expanded under the
numbers, whereas data from earlier years may not be as
direction of its designated caliph Abu Bakr al-Baghdadi.
complete or reflective of terrorism statistics at the time.
The Nigerian terrorist organization Boko Haram operated
using “brutal tactics,” including stoning and kidnapping,
Congressional Concern
according to the State Department. In 2014, the State
Congressional proceedings have referenced information
Department reported over 67,500 casualties, the highest in
from the country reports on several occasions, to include
the 16-year period. Trends in 2014 included continued
bills and resolutions. For example, in September 2016,
Boko Haram activity, instability in Syria, the Islamic
State’s
country report language was quoted in the text of H.R.
seizure of territory in Iraq and Syria, and the
5931, Prohibiting Future Ransom Payments to Iran Act
continued flow of foreign fighters travelling to join IS. In
(114th Congress).
2014, the United States began Operation Inherent Resolve
to combat the Islamic State and formed the Global
While the country reports continue to be used by Congress,
Coalition to Counter ISIS with international partners.
some observers have questioned the reliability and
In 2015 and 2016, attacks and casualties declined. The 2015
completeness of START data, and have stated a need for an
report cited a weakening of AQ leadership and a loss of
unclassified, U.S. government-sourced terrorism database.
territory controlled by IS. In the 2016 report, released in
Some viewed the shift in country report data collection
July 2017, the State Department reported a recapture of IS-
from NCTC to START in 2012 as a failure by NCTC to
controlled territory and a decrease in foreign fighters
provide terrorism information to the public. Others believe
travelling to join IS, which led to a reduction in the group’s
that this improved efficiency by allowing NCTC to focus
battlefield strength. That year, IS remained “the most potent
on different activities.
terrorist threat to global security” with its “central” social
Natalie Bloy, CRS research associate, provided significant
media recruitment campaign, according to the 2016 report.
contributions to this piece.
General Trends
According to data from the country reports, there has been a
general trend of increase in terrorist attacks and associated
Figure 1. Trends in Terrorism, 2001–2016
Attacks and Casualties
Source: Graph prepared by CRS, based on information derived from State Department and START reporting.
Notes: Data for 2004 is derived solely from START’s Global Terrorism Database (GTD), University of Maryland.
IF10710
John W. Rollins, Specialist in Terrorism and National
Security
https://crsreports.congress.gov
State Department Country Report on Terrorism: 2001–2016 Trends
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
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