Agroterrorism: Threats and Preparedness
The potential for terrorist attacks against agricultural targets (agroterrorism) is
increasingly recognized as a national security threat, especially after the events of
September 11, 2001. Agroterrorism is a subset of bioterrorism, and is defined as the
deliberate introduction of an animal or plant disease with the goal of generating fear,
causing economic losses, and/or undermining social stability.
The goal of agroterrorism is not to kill cows or plants. These are the means to
the end of causing economic damage, social unrest, and loss of confidence in
government. Human health could be at risk if contaminated food reaches the table
or if an animal pathogen is transmissible to humans (zoonotic). While agriculture
may not be a terrorist's first choice because it lacks the "shock factor" of more
traditional terrorist targets, many analysts consider it a viable secondary target.
Agriculture has several characteristics that pose unique vulnerabilities. Farms
are geographically disbursed in unsecured environments. Livestock are frequently
concentrated in confined locations, and transported or commingled with other herds.
Many agricultural diseases can be obtained, handled, and distributed easily.
International trade in food products often is tied to disease-free status, which could
be jeopardized by an attack. Many veterinarians lack experience with foreign animal
diseases that are eradicated domestically but remain endemic in foreign countries.
In the past five years, "food defense" has received increasing attention in the
counterterrorism and bioterrorism communities. Laboratory and response capacity
are being upgraded to address the reality of agroterrorism, and national response
plans now incorporate agroterrorism.
Congress has held hearings on agroterrorism and enacted laws and
appropriations with agroterrorism-related provisions. The executive branch has
responded by implementing the new laws, issuing several presidential directives, and
creating liaison and coordination offices. The Government Accountability Office
(GAO) has studied several issues related to agroterrorism.
Appropriations and user fees for agriculture-related homeland security activities
in USDA and DHS have more than tripled from a $225 million "pre-September 11"
baseline in FY2002 to $818 million in FY2007. Agriculture now receives about
2.1% of the total non-defense budget authority for homeland security.
Increasing the level of agroterrorism preparedness remains a concern, as do
interagency coordination and adequate border inspections. The 110th Congress may
consider bills or oversight hearings to address funding and the level of preparedness
or coordination to respond to an agroterrorist attack.
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This document is classified within these themes:
Homeland Security
Biosecurity
Congressional Research Service
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