SOUTH POMFRET, Vt. -- In what may well be the largest expansion of covert action by the armed forces since the Vietnam era, the Bush administration has turned to what the Pentagon calls the "black world" to press the war on terrorism and weapons of mass destruction.
The Defense Department is building up an elite secret army with resources stretching across the full spectrum of covert capabilities. New organizations are being created. The missions of existing units are being revised. Spy planes and ships are being assigned new missions in anti-terror and monitoring the "axis of evil."
The increasingly dominant role of the military, Pentagon officials say, reflects frustration at the highest levels of government with the performance of the intelligence community, law enforcement agencies and much of the burgeoning homeland security apparatus. It also reflects the desire of Secretary of Defense Donald Rumsfeld to gain greater overall control of the war on terror.
Insulated from outside pressures, armed with matchless weapons and technology, trained to operate below the shadow line, the Pentagon's black world of classified operations holds out the hope of swift, decisive action in a struggle against terrorism that often looks more like a family feud than a war.
Coupled with the enormous effort being made throughout the government to improve and link information networks and databases, covert anti-terror operations promise to put better information in the hands of streamlined military teams that can identify, monitor and neutralize terrorist threats.
"Prevention and preemption are ... the only defense against terrorism," Rumsfeld said in May. "Our task is to find and destroy the enemy before they strike us."
The new apparatus for covert operations and the growing government secrecy associated with the war on terrorism reflect the way the Bush administration's most senior officials see today's world:
First, they see fighting terrorism and its challenge to U.S. interests and values as the 21st century equivalent of the Cold War crusade against communism. Second, they believe the magnitude of the threat requires, and thus justifies, aggressive new "off-the-books" tactics.
In their understandable frustration over continued atrocities such as the recent Bali attack, however, U.S. officials might keep two points in mind.
Though covert action can bring quick results, because it is isolated from the normal review processes it can just as quickly bring mistakes and larger problems. Also, the Pentagon is every bit as capable as the civilian side of the government when it comes to creating organization charts and bureaucracy that stifle creative thinking and timely action.
The development of the Pentagon's covert counter-terror capability has its roots in the 1979 Iran hostage crisis. The Army created a highly compartmentalized organization that could collect clandestine intelligence independent of the rest of the U.S. intelligence community and follow through with covert military action.
Known as the Intelligence Support Activity, or ISA, when it was established in 1981, this unit fought in drug wars and counter-terror operations from the Middle East to South America. It built a reputation for daring, flexibility and a degree of lawlessness.
In May 1982, Deputy Secretary of Defense Frank Carlucci called the ISA "uncoordinated and uncontrolled." Though its freelance tendencies were curbed, the ISA continued to operate under different guises through the ill-starred U.S. involvement in Somalia in 1992 and was reportedly active in the hunt for Bosnian Serbs suspected of war crimes.
Today, the ISA operates under the code name Gray Fox. In addition to covert operations, it provides the war on terrorism with the kind of so-called "close-in" signals monitoring -- including the interception of cell phone conversations -- that helped bring down Colombian drug lord Pablo Escobar.
Gray Fox's low-profile eavesdropping planes also fly without military markings. Working closely with Special Forces and the CIA, Gray Fox also places operatives inside hostile territory.
In and around Afghanistan, Gray Fox was part of a secret sphere that included the CIA's paramilitary Special Activities Division and the Pentagon's Joint Special Operations Command.
These commands and "white" Special Forces like the Green Berets, as well as Air Force combat controllers and commandos of eight different nations report to a mind-boggling array of new command cells and coordination units set up after Sept. 11.
An Army brigadier general commands the Joint Interagency Task Force at Bagram air base north of Kabul to coordinate CIA, Defense Department and coalition forces in Afghanistan. A new Campaign Support Group has been established at Ft. Bragg, N.C. The Special Operations Joint Interagency Collaboration Center has been created in Tampa, Fla.
