Material Support of Terrorists and Foreign Terrorist Organizations: Sunset Amendments

^Pr^ep^ar^{ed f}^o^r^M^e^m^b^ers^an^d^Com^mⁱ^t^t^ees^of^C^ong^r^e^ss

Section 6603 of the Intelligence Reform and Terrorism Prevention Act of 2004 (IRTPA)
temporarily amended two federal terrorist assistance prohibitions. Those amendments were to
expire on December 31, 2006, P.L. 108-458, 118 Stat. 3762-764 (2004). P.L. 109-160 extended
their expiration date until February 3, 2006, 119 Stat. 2957 (2005); P.L. 109-170 extended it yet
again until March 10, 2006, 120 Stat. 3 (2006). Section 104 of the USA PATRIOT Improvement
and Reauthorization Actand Terrorism Prevention Reauthorization Act (H.R. 3199), made the
amendments permanent, P.L. 109-177, 120 Stat. 195 (2006).
In response to court decisions that found certain of their central terms unconstitutionally vague,
section 6603 amended the federal statutes that outlaw assistance to terrorists and foreign terrorist
organizations, 18 U.S.C. 2339A, 2339B. Initial judicial reaction suggests they may still be
considered vague. Section 6603 temporarily rejected a narrow construction of the knowledge
requirements under section 2339B, an interpretation which might have dissipated any vagueness
problems.
Section 6603 expanded the overseas application of section 2339B as well. It permits federal
prosecution of an act proscribed in section 2339B and committed entirely abroad by a foreign
national if the offender can be brought to this country for trial.
Section 2339A outlaws providing material support or resources with the intent that they be used
for the commission of certain predicate terrorism offenses. Section 6603 enlarged the list of
predicate offenses to include any federal crime of terrorism (18 U.S.C. 2332b(g)(5)(B)) and
added two crimes to the list, 18 U.S.C. 1361 (destruction of federal property) and 18 U.S.C. 2156
(production of defective national defense material).
Finally, section 6603 added an immunity provision under which an individual or entity who
provides assistance in violation of section 2339B may not be prosecuted in certain instances if the
offense was committed with the prior approval of the Secretary of State and the Attorney General.
This report appears in abridged form—without footnotes, appendix, and some citations to
authority—as CRS Report RS22222, Material Support of Terrorists and Foreign Terrorist
Organizations: Sunset Amendments in Brief.

Introduc tion ............................................................................................................................... 1
Material Support: Definitions...................................................................................................1
Material Support: Knowledge...................................................................................................5
Material Support: Overseas Application...................................................................................5
Federal Crimes of Terrorism.....................................................................................................6
Prosecutorial Forbearance.........................................................................................................8
Appendix. ...................................................................................................................... ................ 10
Author Contact Information..........................................................................................................16

Section 6603 of the Intelligence Reform and Terrorism Prevention Act of 2004 temporarily
amends two federal terrorist assistance prohibitions, P.L. 108-458, 118 Stat. 3762-764 (2004). The
amendments were to expire on December 31, 2006. P.L. 109-160 extended their expiration date
until February 3, 2006, 119 Stat. 2957 (2005); P.L. 109-170 extended it yet again until March 10,
2006, 120 Stat. 3 (2006). Section 104 of the USA PATRIOT Improvement and Reauthorization
Actand Terrorism Prevention Reauthorization Act (H.R. 3199), made the amendments permanent,
P.L. 109-177, 120 Stat. 195 (2006). In their present form the amendments, found in section 6603
of the act:
- amend the definitions of “material support or resources,” “training,” and “expert advice or
assistance” as those terms are used in 18 U.S.C. 2339A and 2339B, and of “personnel” as
used in section 2339B;
- add a more explicit knowledge requirement to section 2339B;
- expand the extraterritorial jurisdiction reach of section 2339B;
- enlarge the list of federal crimes of terrorism, 18 U.S.C. 2332b(g)(5);
- add the enlarged list of federal crimes of terrorism to the inventory of predicate offenses for
18 U.S.C. 2339A (material support for the commission of certain terrorist crimes) and
consequently for 18 U.S.C. 2339B (material support for designated terrorist organizations);
and
- preclude prosecution for certain violations committed with the approval of the Secretary of
State and concurrence of the Attorney General (e.g., stings).
Sections 2339A and 2339B are proximity crimes. They proscribe certain conduct because of its
proximity to other crimes, in this case terrorist offenses. Section 2339A outlaws providing,
attempting to provide, or conspiring to provide, material support or resources for the commission ¹
of any of several designated federal crimes that a terrorist might commit; section 2339B outlaws

¹^{18 U}^.^S.C^.²³³⁹^A⁽^a⁾⁽^“^W^hoe^v^e^r^pr^ov^ide^s^m^a^te^rⁱ^a^l^s^uppor^t^or^r^e^s^o^ur^c^e^s^or^c^on^ceal^{s o}^r^dⁱ^sguⁱ^{ses t}^h^{e nat}^u^re,^l^o^catⁱ^oⁿ^,
^s^our^c^e^,^or^ow^ne^r^s^hip^of^m^a^te^rⁱ^a^l^supp^or^t^or^r^e^s^o^ur^c^e^s^{, k}^now^ing^orⁱⁿ^te^nd^ing^tha^t^the^y^a^r^e^{to be}^us^e^dⁱⁿ^pr^e^p^a^r^a^tⁱ^{on f}^o^r^,
^{or in}^c^a^rry^ing^{out, a}^vⁱ^ola^tioⁿ^of^se^c^{tion 3}²^[de^s^truc^tioⁿ^of^aⁱ^rc^ra^f^t^{or a}ⁱ^rc^ra^f^t^fa^c^ilitie^s]^{, 3}⁷^[^v^iole^nc^e^a^t^inte^rna^tⁱ^ona^l
^aⁱ^r^por^ts^]^,⁸¹^[^a^r^s^{on w}^ithiⁿ^s^p^e^cⁱ^a^l^m^a^r^iti^m^e^a^{nd te}^r^r^itorⁱ^a^l^jurⁱ^s^d^ic^ti^on^]^,¹⁷⁵^[^b^io^logⁱ^c^a^l^w^e^a^pons^of^f^e^ns^e^s^]^,²²⁹
^[^c^he^mⁱ^c^a^l^w^e^a^pons^of^f^e^ns^es^]^,³⁵¹^[^c^oⁿ^g^r^e^s^sⁱ^ona^{l, c}^a^bⁱⁿ^e^t^{, a}ⁿ^d^Su^pr^em^e^C^our^{t a}^s^s^a^s^sⁱ^na^{tion a}^{nd k}ⁱ^dⁿ^a^ping^]^,⁸³¹
^[^nuc^le^a^r^m^a^te^rⁱ^a^l^of^f^e^ns^e^s^]^,⁸⁴²⁽^m⁾^or⁽ⁿ⁾^[^p^la^s^tic^e^x^plos^iv^e^s^of^f^eⁿ^s^e^s^]^,⁸⁴⁴⁽^f⁾^or⁽ⁱ⁾^[^b^urⁿⁱ^ng^or^b^o^m^b^ing^f^e^de^r^a^l
^pro^p^e^r^ty^{or prope}^rty^use^dⁱⁿⁱⁿ^te^rsta^te^{or f}^o^re^ig^{n c}^o^m^m^e^rc^e^]^{, 93}^0(c⁾^[^k^illi^ng^{or a}^tte^m^p^te^{d k}^illi^ng^of^a^not^he^{r d}^u^ring^aⁿ
^a^tta^c^k^{on a}^f^e^de^ra^l^f^a^c^ilit^y^w^{ith a}^da^ng^e^r^{ous w}^e^a^pon^]^,⁹⁵⁶^[^c^oⁿ^spir^a^c^y^{to m}^u^rde^r^{, k}ⁱ^dna^p,^{or m}^aⁱ^m^ov^e^r^se^a^s^]^,¹¹¹⁴
^[^k^illi^ng^{or a}^tte^m^p^te^{d k}^illing^of^f^e^de^ra^{l of}^fⁱ^c^e^{rs a}^{nd e}^m^ploy^e^e^s^]^,¹¹¹⁶^[^m^urde^{r or}^m^a^nsla^ug^hte^r^of^f^o^re^ig^{n of}^fⁱ^cⁱ^a^l^s,
^of^fⁱ^cⁱ^a^l^g^u^e^s^ts^{, or}^inte^rⁿ^a^t^io^na^lly^pr^ote^c^t^e^d^pe^r^s^ons^]^,¹²⁰³^[^h^os^ta^g^e^ta^kⁱ^ng^]^,¹³⁶¹^[^d^e^s^tr^uc^ti^on^of^f^e^de^r^a^{l pr}^ope^r^t^y^]^,¹³⁶²
^[de^s^truc^tio^{n of}^c^o^m^m^unic^a^tion^lin^e^s^{, sta}^tions,^{or sy}^ste^m^s]^,¹³⁶³^[de^s^truc^tio^{n of}^pr^ope^rty^w^{ithin spe}^cⁱ^a^l^m^a^ritim^e^a^nd
^te^rritoria^l^j^u^risdic^ti^on^of^the^Uni^t^e^d^Sta^t^e^s^]^,¹³⁶⁶^[de^s^truc^ti^on^of^aⁿ^eⁿ^e^r^gy^f^a^c^ilit^y^]^{, 17}⁵¹^[^p^re^sideⁿ^tia^{l a}^ssa^ssina^{tion o}^r
^kⁱ^dna^pi^ng^]^,¹⁹⁹²^[^w^r^e^c^k^ing^tr^aⁱ^ns]^,¹⁹⁹³^[^t^e^r^r^o^rⁱ^s^t^a^tta^c^k^s^a^{nd ot}^he^r^a^c^t^s^of^vⁱ^oleⁿ^c^e^a^g^aⁱ^ns^t^m^a^s^s^tr^ans^por^ta^tⁱ^oⁿ
^sy^s^t^em^s^]^,²¹⁵⁵^[^d^e^s^tr^uc^tio^{n of}^na^tiona^{l de}^f^e^ns^e^m^a^te^rⁱ^a^l^]^,²¹⁵⁶^[^p^r^o^duc^ti^{on of}^de^f^e^c^tive^na^tiona^{l de}^f^e^ns^e^m^a^te^rⁱ^a^l^]^,
²²⁸⁰^[^v^io^le^nc^e^a^g^aⁱ^{nst m}^a^riti^m^e^na^vⁱ^g^a^{tion], 2}²⁸¹^[^v^iole^nc^e^agaiⁿ^s^t^m^a^ri^tⁱ^{me f}ⁱ^xed^p^l^at^f^o^rms]^,²³³²^[^vⁱ^o^l^eⁿ^{ce agai}ⁿ^s^t
⁽^c^onti^nue^d.^..)

providing, attempting to provide, or conspiring to provide, material support or resources to a ²
designated foreign terrorist organization.
Section 6603 of the Intelligence Reform and Prevention of Terrorism Act made several
amendments to section 2339A and 2339B in response to judicial decisions that either found them ³
unconstitutionally vague or suggested a demanding mens rea (knowledge) requirement. Section
2339A contains a definition of “material support or resources” that applies to both sections, 18
U.S.C. 2339A(b). Some courts had been particularly troubled by the uncertain sweep of the terms
“training,” “personnel,” and “expert advice or assistance” used in the definition. The Ninth
Circuit, for instance, had found the terms unconstitutionally vague, Humanitarian Law Project v. ^th⁴
Reno, 205 F.3d 1130, 1137-138 (9 Cir. 2000); “personnel” because the term might be thought to ⁵
envelope the efforts of a simple advocate; “training” because the term might be thought to sweep ⁶
in benign academic instruction; and “expert advice or assistance” because, like “personnel” and ⁷
“training,” it might be read to include First Amendment protected pure speech and advocacy.

^(...c^on^tin^ue^d)
^A^m^e^r^ic^aⁿ^s^ov^e^r^s^e^a^s^]^,²³³²^a^[^w^e^a^pons^of^m^a^s^s^de^s^t^ruc^tion^]^{, 2}³³²^b^[^m^ultina^tⁱ^ona^{l te}^rr^oris^m^]^{, 2}³³²^f^[bom^bing^p^ublic
^p^l^{aces o}^r^f^acilities]^{, o}^r²³⁴⁰^A^[^t^o^r^tu^{re] o}^f^th^is^t^{itle, sectio}ⁿ²³⁶^o^f^t^h^{e A}^t^o^mⁱ^c^En^erg^y^A^c^{t o}^f^{1954 (}⁴^{2 U}^.^S.C^.²²⁸⁴⁾
^[^s^a^b^ota^g^e^of^nuc^le^a^r^f^a^c^ilitie^{s or fue}^l^{], se}^c^tion⁴⁶⁵⁰²^[^a^irc^r^a^f^{t pira}^c^y^]^{or 6}⁰¹²³⁽^b)^[^d^e^s^tr^uc^tio^{n of}^g^a^{s pipe}^li^ne^f^a^c^ilitie^s]
^of^title⁴⁹^,^or^any^offe^ns^e^lis^te^{d i}ⁿ^s^e^c^tion²³³²^b(^g)⁽⁵⁾⁽^B)⁽^e^xc^e^p^{t fo}^r^s^e^c^tions²³³⁹^A^an^{d 2}³³⁹^B)^,^orⁱⁿ^pr^e^p^a^r^a^tⁱ^{on f}^o^r^,
^o^rⁱⁿ^carryⁱⁿ^{g o}^u^t^,^t^h^{e c}^oⁿ^ceal^m^eⁿ^t^o^f^an^escap^{e f}^r^o^m^t^h^{e co}^mmⁱ^s^sⁱ^oⁿ^o^f^an^y^su^ch^vi^o^l^atⁱ^oⁿ^,^o^r^at^t^e^m^p^t^s^o^r^coⁿ^s^pⁱ^{res t}^o
^{do s}^u^c^h^aⁿ^a^c^t^,^s^h^a^ll^be^fⁱ^ne^{d u}ⁿ^d^e^r^this^tit^le^{, im}^pr^is^one^d^no^{t m}^o^r^e^thaⁿ¹⁵^y^e^a^r^s^,^or^bot^{h, a}^nd,^if^the^de^a^t^{h of}^aⁿ^y
^pe^r^s^{on r}^e^s^u^l^t^s^,^s^h^a^l^l^be^im^pr^is^one^{d f}^o^r^aⁿ^y^te^r^m^of^y^e^a^r^s^or^f^o^r^lif^e^.^{. .”}⁾⁽^l^aⁿ^g^u^a^g^e^te^m^por^a^r^ily^a^dde^{d by}^s^e^c^{tion 66}⁰³ⁱⁿ
^ita^lic^s).
²^{18 U}^.^S.C^.²³³⁹^B⁽^a⁾⁽¹⁾⁽^“^W^hoe^v^e^r^k^now^ing^l^y^pr^ov^ide^s^m^a^te^rⁱ^a^l^s^u^ppo^r^t^or^r^e^s^our^c^e^s^to^a^f^o^r^e^ig^{n te}^r^r^o^rⁱ^s^t
^or^g^a^niz^a^tion,^or^a^tte^m^p^ts^or^c^o^ns^pⁱ^r^e^s^{to d}^o^s^o^{, s}^h^a^ll^be^fⁱ^ne^d^un^de^r^this^tit^le^or^im^pr^is^oⁿ^e^d^{not m}^o^r^e^t^h^aⁿ¹⁵^y^e^a^r^s^,^or
^bot^{h, a}ⁿ^d,^if^the^de^a^t^h^of^aⁿ^y^pe^r^s^{on r}^e^s^u^l^t^s^,^s^h^a^ll^be^im^pr^is^one^d^f^o^r^aⁿ^y^te^r^m^of^y^e^a^r^s^or^f^o^r^lif^e^.^{. .”}⁾^.
³^{A Re}^vⁱ^e^w^{of t}^h^e^T^ools^{to F}ⁱ^g^h^{t T}^e^r^r^o^rⁱ^s^m^Ac^t:^H^e^ar^{ing Be}^f^o^r^e^the^Se^nate^C^o^m^m^.^oⁿ^t^h^e^J^u^dicⁱ^ar^y⁽^S^e^nate^H^e^arⁱⁿ^g)^,
¹⁰⁸^th^C^o^ng^.,^2d^Se^s^s^.⁽²⁰⁰⁴⁾⁽^j^oi^nt^pr^e^p^a^r^e^d^s^t^a^t^e^m^eⁿ^{t of}^A^s^sⁱ^s^t^aⁿ^{t A}^ttorⁿ^ey^G^e^ne^r^a^{l D}^a^nie^l^J^.^B^r^y^a^{nt a}^nd
^Coun^te^rte^rrorism^Se^c^{tion Ch}^ie^f^Ba^rr^y^Sa^{bin), a}^v^a^ila^ble^oⁿ^July^29,²⁰⁰^{5 a}^t^htt^p^://j^udicⁱ^a^r^y^.^se^na^te^.g^ov^/print_
^te^stim^on^y^.^c^f^m^?^{id =}¹³^01&^w^it_id⁼³¹³^3.
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^mad^e^p^e^rman^en^t^,^{a d}^eci^si^on^w^hⁱ^c^h^agaiⁿ^{a p}^aⁿ^e^l^o^f^t^h^{e Ni}ⁿ^t^h^Ci^rcui^t^affⁱ^r^m^ed^,^H^u^m^anit^a^rⁱ^aⁿ^L^a^w^Pr^oje^c^t^v^.^Uⁿ^ite^d^th
^State^s^D^e^p^a^r^t^m^e^nt^{of J}^u^s^tic^e^,³⁵²^F^.^3d³⁸²⁽⁹^Ci^r.²⁰⁰³⁾^.^T^hⁱ^s^secoⁿ^d^ap^p^e^l^l^a^t^e^d^eci^si^oⁿ^w^a^{s v}^acat^e^dⁱⁿ^f^a^vo^{r o}^f^an^en
^ba^nc^de^cⁱ^sⁱ^oⁿ^w^h^ic^{h a}ⁿ^no^unc^e^d^t^h^a^t^“^[^w^]ⁱ^t^{h r}^e^s^p^e^c^t^t^o^t^h^e^a^ppe^llaⁿ^t^s^’^Fir^s^{t A}^m^e^ndm^eⁿ^{t c}^h^a^lle^ng^e^to^s^e^c^tions³^{02 a}^nd
³⁰³^of^the^Aⁿ^tite^rrorism^a^{nd Ef}^f^e^c^tiv^e^De^a^t^{h P}^e^na^lty^Ac^{t of}¹⁹⁹^6,^w^e^a^f^fⁱ^r^m^the^distric^t^c^ourt’s^orde^{r da}^te^{d Oc}^to^be^{r 2}^,
²⁰⁰^{1, f}^o^r^t^h^e^r^e^a^s^ons^s^e^t^outⁱⁿ^H^u^m^ani^tarⁱ^{an Law}^Pr^oje^c^t^v^.^Reⁿ^o^.^In^lⁱ^g^h^t^o^f^Coⁿ^g^{ress’ recen}^t^am^eⁿ^d^m^en^t^t^o^t^h^e
^ch^al^l^eⁿ^g^ed^st^at^u^t^e,^t^h^{e In}^t^e^l^lⁱ^g^en^{ce Ref}^o^r^m^an^d^T^e^rro^ri^s^m^P^r^even^tⁱ^oⁿ^A^c^t^o^f²⁰⁰⁴^,^w^e^affⁱ^r^m^t^h^{e j}^u^dg^m^eⁿ^tⁱⁿ^p^a^rt^,^as
^set^f^o^rt^h^ab^o^v^e,^vacat^{e t}^h^{e j}^u^d^g^men^t^an^{d i}ⁿ^j^uⁿ^c^tⁱ^oⁿ^regardⁱⁿ^{g t}^h^{e t}^e^r^m^{s ‘p}^ers^onne^l’^aⁿ^{d ‘}^t^r^aⁱⁿ^ing^’^.^.^.”^Hu^man^ita^ri^aⁿ^th
^L^a^{w P}^r^oj^ect^v.^Unⁱ^t^e^d^S^t^a^t^{es Depa}^rt^men^t^of^Ju^stⁱ^c^e^,³⁹^{3 F.}^3d⁹^02,⁹⁰²⁽⁹^Cir.²⁰⁰⁴⁾⁽ⁱ^nte^r^na^{l c}^ita^tⁱ^oⁿ^{s om}^itte^d).
⁵^“^I^{t is}^e^a^s^y^{to s}^e^e^how^s^o^m^e^one^coul^{d be}^uns^ur^e^a^b^o^u^{t w}^h^a^t^A^E^D^P^A^pr^ohibi^ts^w^{ith the}^us^e^of^the^te^r^m^‘^p^e^r^s^onne^l,’^a^s
ⁱ^t^b^l^u^r^{s t}^h^e^lⁱⁿ^e^b^e^t^w^een^p^r^o^t^ect^{ed exp}^r^essi^oⁿ^an^{d un}^p^r^o^t^ect^ed^con^d^u^c^t^.^S^o^m^e^oⁿ^e^w^h^o^ad^vo^cat^{es t}^h^{e cau}^{se o}^f^P^KK
^c^ould^be^s^e^eⁿ^a^s^s^u^pplyⁱ^ng^the^m^w^{ith pe}^r^s^onne^l;^{it e}^v^eⁿ^f^its^un^de^r^the^g^o^v^e^rⁿ^m^e^nt’^s^r^ubr^ic^of^f^r^e^eⁱⁿ^g^{up r}^e^s^o^ur^c^e^s^,
^sinc^e^ha^vⁱ^ng^aⁿⁱⁿ^de^peⁿ^d^eⁿ^{t a}^d^v^o^c^a^t^e^f^r^e^e^s^{up m}^e^m^b^e^r^{s to}^eⁿ^g^a^g^e^{in te}^rrorist^a^c^tiv^itie^{s inste}^a^d^of^a^d^v^o^c^a^c^y^.^But
^ad^vo^cac^yⁱ^s^p^u^r^{e sp}^eech^p^r^ot^ect^ed^b^y^t^h^{e F}ⁱ^rst^A^m^en^d^m^en^t^.^In^o^r^{der t}^o^keep^t^h^{e st}^at^u^t^{e f}^r^o^m^t^r^en^chⁱⁿ^{g o}ⁿ^s^u^ch
^a^d^v^o^c^a^c^y^,^the^g^o^v^e^rⁿ^m^e^{nt ur}^g^e^s^tha^t^w^e^r^e^a^d^{into it}^a^r^e^qu^ir^e^m^eⁿ^{t tha}^t^the^a^c^tiv^ity^pr^ohi^bite^d^be^pe^r^f^or^m^e^{d ‘}^unde^r^t^h^e
^dir^e^c^tion^or^c^ontr^o^l’^of^the^f^o^r^e^ig^{n te}^r^r^o^rⁱ^s^t^or^g^a^niz^a^tio^{n. W}^h^ile^w^e^m^a^y^c^ons^tr^ue^a^s^t^a^t^uteⁱⁿ^s^u^c^h^a^w^a^y^a^s^{to a}^v^oid
^c^onstitu^tio^na^{l q}^u^e^s^tio^{ns, w}^e^a^r^e^{not a}^u^t^horiz^e^d^to^re^w^r^ite^the^la^w^s^o^{it w}^{ill pa}^{ss c}^o^nstitu^tio^na^{l m}^u^ste^r^,”²⁰^{5 F}^.^3d^a^t
¹¹³^7-¹³^{8 (in}^t^e^r^na^{l c}^ita^tio^ns^om^itte^d).
⁶^“^T^he^te^r^m^‘tra^ining^’^f^a^re^{s little}^be^tte^{r. A}^g^aⁱ^{n, it is e}^a^s^y^to^im^a^g^ine^prote^c^t^e^d^e^x^pre^ssion^tha^t^f^a^{lls w}^ithin^the^bo^un^{ds of}
^this^te^rm^{. For e}^x^a^m^ple^,^a^plaⁱ^ntif^{f w}^ho^wⁱ^s^h^e^s^{to ins}^t^ruc^t^m^e^m^b^e^r^s^of^a^de^sⁱ^gⁿ^a^t^e^d^g^r^oup^on^h^o^w^{to p}^e^tition^the^Uⁿ^ite^d
^N^a^tions^t^o^gⁱ^v^e^aⁱ^{d to}^theⁱ^r^g^r^o^u^p^c^ould^pla^u^sⁱ^bly^de^cⁱ^de^tha^t^s^u^c^h^p^r^ote^c^t^e^d^e^x^pr^e^s^sⁱ^{on f}^a^lls^w^{ithin t}^h^e^s^c^ope^of^the
^te^rm^‘tra^ining^.^{’ T}^h^e^g^o^v^e^rn^m^e^{nt insists tha}^t^t^h^e^te^rm^{is be}^{st un}^de^rst^ood^to^f^o^rbid^the^im^pa^rting^of^sk^{ills to f}^o^re^igⁿ
^terro^{rist o}^r^g^aⁿⁱ^zatioⁿ^s^t^h^ro^u^g^h^traⁱⁿⁱⁿ^g^{. Yet,}^p^r^esu^m^ab^ly^{, th}^{is d}^e^fⁱⁿ^itioⁿ^w^o^u^l^d^eⁿ^co^m^p^{ass teach}ⁱⁿ^gⁱⁿ^tern^atioⁿ^a^{l law}^to
⁽^c^onti^nue^d.^..)

Section 6603 supplied a new definition for “training”—“the term ‘training’ means instruction or
teaching designed to impart a specific skill, as opposed to general knowledge,” 18 U.S.C.
2339A(b)(2). As explained by Justice Department witnesses, “[the amendment] would also add a
specific definition of ‘training’ in response to the Ninth Circuit’s decision that this term too was
unconstitutionally vague. . . As an example, the court opined that the term conceivably could
include teaching members of foreign terrorist organizations to use international human rights laws
to resolve conflicts in a peaceful manner. [The amendment] would alleviate such concerns by
limiting the term ‘training’ to ‘instruction or teaching designed to impart a specific skill, as ⁸
opposed to general knowledge’. . .” Critics might argue that the attempted fix appears to turn on
the dubious premise that effective advocacy (e.g., peaceful conflict resolution through the use of
human rights laws) is not a skill.
The same might be said of section 6603’s new definition of “expert advice or assistance” plucked
from the Federal Rules of Evidence—“the term ‘expert advice or assistance’ means advice or
assistance derived from scientific, technical or other specialized knowledge,” 18 U.S.C. ⁹

2339A(b)(3).

In the case of both terms, however, section 6603 may rely on its section 2339B First Amendment
disclaimer clause to answer the concern that the uncertain term might lead to prosecution of mere
advocacy or other First Amendment protected activities—at least with regard to prosecutions
under 2339B: “Nothing in this section shall be construed or applied so as to abridge the exercise
of rights guaranteed under the First Amendment to the Constitution of the United States,” 18 ¹⁰
U.S.C. 2339B(i).

^(...c^on^tin^ue^d)
^m^e^m^b^e^r^s^of^the^de^sⁱ^gⁿ^a^t^e^d^or^g^aⁿⁱ^z^a^tions^{. T}^h^e^r^e^s^u^{lt w}^oul^d^be^dif^f^e^r^e^{nt if}^the^te^r^m^‘^t^r^a^ining^’^w^e^r^e^qua^lif^ie^{d to inc}^l^ude
^only^m^ilita^r^y^traⁱ^ning^{or tra}ⁱⁿⁱ^ngⁱⁿ^te^rrorist^a^c^tiv^itie^s,”²⁰⁵^F.^3d^a^t¹¹³^8.
⁷^“^[^T^]^he^C^o^ur^{t c}^o^nc^lu^de^s^tha^t^t^h^e^t^e^r^m^‘^e^x^p^e^r^{t a}^d^vⁱ^c^e^or^a^s^sⁱ^s^t^aⁿ^c^e^,^’^lik^e^the^te^r^m^s^‘^t^r^a^ining^’^a^{nd ‘}^p^e^r^s^onne^l,’^isⁿ^o^t
^suff^ic^ie^ntl^y^c^l^e^a^r^{so a}^s^{to a}^llow^p^e^{rsons of}^ordⁱ^na^ry^inte^llig^eⁿ^c^e^a^re^a^s^ona^ble^o^p^p^o^rtuⁿ^ity^{to k}^now^wha^t^{is pr}^oh^ibite^d.
^D^e^f^e^nda^nts^ha^v^e^f^a^ile^{d to a}^d^e^q^ua^t^e^l^y^dis^ting^u^is^h^the^pr^ov^is^ioⁿ^of^‘^e^x^p^e^r^{t a}^d^vⁱ^c^e^a^{nd a}^s^sⁱ^s^t^aⁿ^c^e^’^f^r^o^m^the^pr^ov^is^ion^of
^‘t^raiⁿⁱⁿ^{g’ and}^‘p^ers^oⁿⁿ^el^{’ i}ⁿ^{a w}^a^y^t^h^at^a^llow^s^the^{Court t}^o^re^c^onc^il^e^{its pri}^o^{r f}ⁱ^ndi^ng^tha^t^t^h^e^te^rm^{s ‘tra}^ining^’^aⁿ^d
^‘p^ersoⁿⁿ^el^{’ are i}^m^p^e^r^mⁱ^ssi^b^l^y^va^gu^e,^wⁱ^t^h^{a f}ⁱⁿ^dⁱⁿ^g^t^h^at^t^h^{e t}^e^rm^‘exp^ert^ad^vi^{ce o}^r^assi^st^an^{ce’ i}^sⁿ^o^t^.^F^u^rt^h^e^rm^o^r^e,
^De^fe^nda^{nts’ c}^oⁿ^t^ra^dic^t^ory^a^r^g^u^m^e^{nts on}^the^sc^o^p^e^of^the^pro^h^ibi^tio^{n u}^nde^rsc^o^re^t^h^e^v^a^g^u^eⁿ^e^{ss of}^the^pro^h^ib^itio^{n. T}^h^e
^‘e^x^p^e^r^{t a}^d^vⁱ^c^e^{or a}^ssistaⁿ^c^e^’^P^l^aⁱ^ntif^f^s^s^e^e^k^{to off}^e^{r inc}^l^ude^{s a}^d^v^o^c^a^c^y^a^{nd a}^ssocⁱ^a^tiona^{l a}^c^tiv^itie^{s pr}^ote^c^t^e^d^by^the^First
^A^m^e^ndm^eⁿ^{t, w}^h^ic^{h D}^e^f^e^nda^nts^c^onc^e^d^e^a^r^eⁿ^o^{t pr}^oh^ibite^{d u}^nde^r^t^h^e^U^S^A^P^A^T^R^I^O^T^A^c^{t. D}^e^s^p^ite^this^{, t}^h^e^U^S^A
^P^A^T^R^IO^T^A^c^t^p^l^{aces n}^o^lⁱ^mⁱ^t^a^tⁱ^oⁿ^on^t^h^{e t}^y^p^e^o^f^exp^e^rt^ad^vi^{ce an}^d^assi^st^an^ce^w^hⁱ^c^hⁱ^s^p^r^o^hⁱ^bⁱ^t^e^d,^aⁿ^dⁱⁿ^st^ead^b^aⁿ^s^t^h^e
^pr^ov^is^io^{n of}^a^{ll e}^x^pe^r^t^a^d^vⁱ^c^e^aⁿ^d^a^s^sⁱ^s^t^aⁿ^c^e^r^e^g^a^r^d^le^s^s^o^f^its^na^tur^e^{. T}^hus^{, lik}^e^the^te^r^m^s^‘^p^e^r^s^onne^l’^a^{nd ‘}^t^r^aⁱⁿ^ing^,^’
^‘exp^ert^ad^vi^{ce o}^r^assi^st^an^{ce’ co}^u^l^d^b^e^con^s^t^r^u^e^d^t^oⁱⁿ^cl^u^d^e^uⁿ^e^quⁱ^v^o^cal^l^y^p^u^r^{e sp}^eech^an^d^ad^vo^cacy^p^r^o^t^ect^ed^b^y^t^h^e
^Fⁱ^rst^Am^en^d^m^en^t^o^r^en^co^m^p^{ass F}ⁱ^rst^Am^en^d^m^en^t^p^r^o^t^ect^ed^actⁱ^vⁱ^tⁱ^es,^”^Hu^maⁿⁱ^t^a^ri^an^L^a^{w P}^r^oj^ect^v.^A^s^h^c^ro^f^t^,³⁰⁹
^F.Su^pp^.2^{d 1}¹⁸⁵^,¹²^00-²⁰^{1 (}^C^.D^.^C^a^l^{. 20}⁰⁴⁾^{; s}^e^e^a^l^s^o^,^Uⁿⁱ^t^e^d^State^s^v^.^Sat^tar^,²⁷^{2 F}^.^Su^pp^.2^{d 3}⁴⁸^,³⁵⁸^-6^{1 (S.D}^.N^.Y^.
²⁰⁰³⁾^.
⁸^Se^na^te^H^e^arⁱⁿ^g^{, 10}⁸^th^C^ong^.,^2d^Se^s^s^.⁽²⁰⁰⁴⁾⁽^j^oin^t^pr^e^p^a^r^e^d^s^t^a^t^e^m^eⁿ^{t of}^A^s^sⁱ^s^t^aⁿ^{t A}^ttorⁿ^e^y^G^e^ne^r^a^{l D}^a^nie^l^J^.^B^r^y^a^nt
^a^{nd Co}^un^te^rte^rrorism^Se^c^{tion Ch}ⁱ^e^f^Ba^rr^y^Sa^{bin), a}^v^a^ila^ble^oⁿ^July^29,²⁰⁰⁵^a^t^http^://j^udicⁱ^a^r^y^.^se^na^t^e^.g^ov^/print_
^te^stim^on^y^.^c^f^m^?^{id =}¹³^01&^w^it_id⁼³¹³^3.
⁹^Ru^l^e⁷⁰^{2 o}^f^t^h^{e F}^e^d^e^ral^R^u^l^e^{s o}^f^E^vⁱ^d^en^{ce st}^at^es,^“If^scⁱ^e^ntific^{, te}^c^hnic^a^l,^{or ot}^he^{r spe}^cⁱ^alize^d^k^nowl^e^dge^w^{ill a}^ssist
^t^h^{e t}^rⁱ^e^{r o}^f^f^act^t^o^uⁿ^d^e^rst^aⁿ^d^t^h^e^evi^d^en^{ce o}^r^t^o^d^e^t^e^rmⁱⁿ^{e a fact}ⁱⁿⁱ^ssu^e,^{a w}ⁱ^tⁿ^{ess q}^u^a^lⁱ^fⁱ^e^d^{as an}^exp^e^rt^b^y
^k^now^le^dg^e^,^sk^{ill, e}^x^pe^rieⁿ^c^e^,^traⁱ^ning^,^{or e}^d^uc^a^tion^,^m^a^y^te^sti^f^y^th^e^r^e^t^{o in t}^h^e^f^o^rm^of^aⁿ^opini^on^or^othe^rw^ise^,^if⁽¹⁾
^the^te^s^tim^ony^is^ba^s^e^{d upo}^{n s}^u^f^fⁱ^cieⁿ^{t f}^a^c^t^s^or^da^ta^{, (}²⁾^the^te^s^tim^on^y^is^the^pr^od^uc^{t of}^r^e^lia^ble^pr^incⁱ^p^l^e^s^a^{nd m}^e^thods^,
^a^{nd (}³⁾^the^w^itne^s^s^ha^s^a^p^plie^{d t}^h^e^pr^incⁱ^ple^s^a^{nd m}^e^thods^r^e^lⁱ^a^b^ly^{to t}^h^e^f^a^c^t^s^of^the^c^a^s^e^,^”⁽^e^m^pha^sⁱ^s^a^dde^d)^.
¹⁰^T^h^{e d}^eci^si^oⁿ^t^o^lⁱ^mⁱ^t^t^h^e^dⁱ^scl^aⁱ^m^{er cl}^au^{se t}^o^sectⁱ^oⁿ²³³⁹^B^m^a^y^h^a^{ve b}^eenⁱⁿ^f^l^u^eⁿ^ced^b^y^t^h^{e vi}^e^w^t^h^atⁱⁿ^so^m^e
ⁱⁿ^st^an^ces,^t^h^e^uⁿ^cert^aⁱⁿ^t^y^o^f^t^h^{e t}^e^r^m^{s u}^s^ed^t^o^d^e^scri^b^e^“m^at^e^r^ia^{l s}^upp^or^t^or^r^e^s^o^ur^c^e^s^”^m^a^y^be^le^s^s^t^r^ou^blingⁱⁿ^s^e^c^tioⁿ
²³³⁹^A^b^ecau^{se o}^fⁱ^t^s^m^o^{re d}^e^m^aⁿ^dⁱⁿ^{g kn}^o^w^l^e^d^g^{e req}^uⁱ^rem^eⁿ^t^(“kn^o^wⁱⁿ^{g o}^rⁱⁿ^t^eⁿ^dⁱⁿ^g^t^h^at^[^t^h^e^sup^p^o^r^t^o^r^reso^u^r^ces^]
^a^r^e^{to be}^us^e^dⁱⁿ^pr^e^p^a^r^a^tⁱ^{on f}^o^r^,^orⁱⁿ^c^a^r^r^y^ing^{out, a}^vⁱ^ola^tio^n”^of^one^or^m^o^r^e^e^x^pr^e^s^s^l^y^de^sⁱ^gⁿ^a^t^e^d^f^e^de^r^a^{l c}^rⁱ^m^e^s⁾
⁽^c^onti^nue^d.^..)

In any event, section 6603’s new explanation of the scope of the prohibition against providing
“personnel” in section 2339B seems far more specific and to correspond more closely the courts’
concerns:
No person may be prosecuted under this section in connection with the term “personnel”
unless that person has knowingly provided, attempted to provide, or conspired to provide a
foreign terrorist organization with 1 or more individuals (who may be or include himself) to
work under that terrorist organization’s direction or control or to organize, manage,
supervise, or otherwise direct the operation of that organization. Individuals who act entirely
independently of the foreign terrorist organization to advance its goals or objectives shall not
be considered to be working under the foreign terrorist organization’s direction and control.

18 U.S.C. 2339B(h).

Finally, section 6603 addressed an ambiguity inherent in the earlier definition. In its earlier form,
the definition of “material support or resources” in subsection 2339A included a mixture of
tangible things and other things that might more properly be considered benefits or services (e.g.,
currency and training). Yet this defining mixture ended with the catch-all phrase, “and other
physical assets,” 18 U.S.C. 2339A)(b)(2000 ed.). Section 6603 responded with an amendment to
section 2339A stating that “material support or resources” covers services and other intangible ¹¹
property, and that the specific types of property and services mentioned are simply examples.
Critics might contend that by eliminating the ambiguity in favor of the more sweeping
construction (“property, tangible or intangible, or services including” versus “property . . or other
physical assets”) the amendment is more likely to create than dissipate vagueness.
The first court to pass upon the constitutionality of section 6603’s clarifying amendments gave
them a mixed grade: section 6603 did cure the vagueness problems associated with use of the
term “personnel,” but the terms “training” and “expert advice or assistance” remain
unconstitutionally vague notwithstanding the amendments in section 6603, the term “service”
which section 6603 added to the definition of prohibited support or resources is itself
unconstitutionally vague, and the “boilerplate” First Amendment clause does nothing to supply
greater clarity, Humanitarian Law Project v. Gonzales, 380 F.Supp.2d 1134, 1146 n.20 (C.D. Cal.

2005).

The First Amendment clause, in the court’s view, is “inadequate to cure potential vagueness
issues because it does not clarify the prohibited conduct with sufficient definiteness for ordinary
people,” id. By the same token, the court felt that “for the average person with no background in

^(...c^on^tin^ue^d)
^thaⁿⁱⁿ^s^e^c^tio^{n 2}³³⁹^B^w^h^ic^{h a}^t^le^a^s^{t f}^a^cⁱ^a^l^l^y^ha^s^{no s}^u^c^h^k^now^le^dg^e^r^e^quir^e^m^e^nt,^c^o^m^par^e^,^Uⁿ^ite^d^S^t^ate^s^v^.^S^a^tt^ar^,²⁷²
^F.Su^pp^.2^{d 3}⁴⁸^,³^56-⁶¹⁽^S^.D^.N^.Y^.²⁰⁰³⁾⁽^d^is^mⁱ^s^sⁱ^ng^indic^t^m^e^{nt c}^o^uⁿ^ts^u^nde^r^s^e^c^tio^{n 2}³³⁹^B^{on v}^a^g^u^eⁿ^e^s^s^g^r^oun^ds⁾^,
^with^,^Uⁿ^ite^d^St^ate^s^v^.^S^a^ttar^{, 3}¹⁴^F.Su^pp^.2^{d 2}⁷⁹⁽^S^.D^.N^.Y^.²⁰⁰⁴⁾⁽^d^e^c^lining^to^dis^m^is^s^indic^t^m^e^{nt c}^ounts^un^de^r^s^e^c^tion
²³³^9A^{on v}^a^g^u^eⁿ^e^s^s^g^r^oun^ds⁾^;^se^{e a}^l^so^,^Uⁿ^ite^d^St^ate^s^v^.^Al-^A^rⁱ^an^,³⁰⁸^F.^Su^pp.^2d¹³²²^,¹³^34-³³^{5 (}^M^.D^.Fla^.
²⁰⁰⁴⁾⁽ⁿ^o^tⁱⁿ^{g i}ⁿ^resp^on^{se t}^o^{a vagu}^en^{ess ch}^al^l^eⁿ^g^{e t}^o^sectⁱ^o^{n 2}³³⁹^B^tha^t^{, “}ⁱ^f^{this c}^o^urt^inte^rpre^ts^[th^e^sta^t^ute^]^a^s
^re^quiri^ng^a^spe^cⁱ^fⁱ^c^inte^{nt to}^f^u^rth^e^{r the}^ille^g^a^{l a}^c^tiv^itie^{s [}^o^f^the^f^o^re^ig^{n te}^rrorist^org^a^niz^a^tion^]^{, t}^h^eⁿⁿ^o^c^onst^itutⁱ^oⁿ^a^l
^pro^b^le^m^s^e^x^ist”^).
¹¹^“⁽¹⁾^the^te^r^m^“m^a^t^e^r^ia^{l s}^uppor^t^o^r^r^e^s^our^c^e^s^”^m^e^aⁿ^s^any^pro^p^e^r^ty^,^tan^g^ible^{or i}ⁿ^ta^ngi^ble^,^{or se}^rv^ic^e^,^inc^l^u^dⁱⁿ^g
^c^u^rre^nc^y^or^m^one^ta^r^y^instrum^e^{nts or f}ⁱ^na^nc^ia^{l se}^c^u^ritie^s,^fⁱ^na^nc^ia^{l s}^e^rv^ic^e^s^{, lodg}^ing^,^traⁱⁿⁱ^ng^{, e}^x^pe^{rt a}^d^vⁱ^c^e^or
^a^s^sⁱ^s^t^aⁿ^c^e^,^s^a^f^e^hous^e^s^{, f}^a^ls^e^doc^um^eⁿ^ta^tion^{or i}^d^eⁿ^tif^ic^a^tion,^c^o^m^m^unic^a^tions^e^qui^pm^eⁿ^{t, f}^a^c^ilitie^s^,^w^e^a^pons^{, le}^t^h^a^l
^s^ubs^ta^nc^e^s^{, e}^x^plos^iv^e^s^{, pe}^r^s^o^nne^l⁽¹^or^m^o^r^eⁱⁿ^divⁱ^d^uals^w^h^o^m^a^y^b^e^or^inc^l^ude^oⁿ^e^s^e^lf)^aⁿ^d^{, tra}ⁿ^sp^o^r^ta^tion,^A^ND
^OT^{HER P}^HYS^ICA^L^A^S^S^E^T^S^{, ex}^c^e^p^t^m^e^dicⁱ^ne^or^r^e^lig^io^us^m^a^te^rⁱ^a^l^s^,^”^{18 U}^.^S.C^.²³^39A⁽^b⁾⁽¹⁾^.

law,” use of a definition from the Federal Rules of Evidence would do little to clarify the
mysteries of the term “expert advice or assistance,” id. at 1147. And “[e]ven as amended [by
section 6603], the term “training” is not sufficiently clear so that persons of ordinary intelligence
can reasonably understand what conduct the statute prohibits,” particularly when the term “easily
encompasses protected speech and advocacy,” id. Since the term “service” is defined to include
“training” and “expert advice or assistance,” they pull the term down with them, id. at 1148.
Section 2339B outlaws “knowing” violations. Narrowly construed, this might serve as a
counterbalance for the suspect reach of the “material support” element. The temporary
amendment, however, added the caveat that, “[t]o violate this paragraph, a person must have
knowledge that the organization is a designated terrorist organization (as defined in subsection
(g)(6)), that the organization has engaged or engages in terrorist activity (as defined in section
212(a)(3)(B) of the Immigration and Nationality Act), or that the organization has engaged or
engages in terrorism (as defined in section 140(d)(2) of the Foreign Relations Authorization Act,
Fiscal Years 1988 and 1989), 18 U.S.C. 2339B(a)(1),” 18 U.S.C. 2339B(a)(1).
Justice Department officials urged the adoption of the addition in order to avoid case law
indicating that conviction would require either proof of knowledge of the specific facts that led to
a particular entity being designated a terrorist organization or proof of knowledge that the ¹²
assistance provided would be used for terrorist purposes. The change seems to foreclose those
problems, but it does little for any vagueness problems.
As a result of modifications by section 6603, section 2339B describes its overseas application
more explicitly and more expansively than was once the case. It permits federal prosecution of an
act proscribed in section 2339B and committed entirely abroad by a foreign national with no
greater connection to the United States required than that we have been able to bring the offender
to this country for trial, 18 U.S.C. 2339B(d)(1)(D)(“There is jurisdiction over an offense under
subsection (a) if . . . (D) after the conduct required for the offense occurs an offender is brought
into or found in the Untied States, even if the conduct required for the offense occurs outside the
United States”).
In its other modifications to jurisdiction, section 6603 arguably did no more than articulate more
specifically the pre-existing reach of section 2339B. Section 6603 removed the phrase “within the

¹²^“Recen^t^l^y^,ⁱⁿ^t^h^{e sam}^e^d^eci^si^oⁿⁱⁿ^w^hⁱ^c^hⁱ^t^h^e^l^d^t^h^{e t}^e^rm^{s “p}^ers^onne^l”^a^{nd “}^t^r^aⁱⁿ^ing^”^to^be^unc^oⁿ^s^tⁱ^t^utio^na^lly^v^a^g^u^e^,
^t^h^{e Ni}ⁿ^t^h^Ci^rcui^t^al^so^h^e^l^d^t^h^at^{an i}ⁿ^di^vi^d^u^a^l^,^t^o^vi^o^l^at^{e t}^h^{e m}^a^t^e^ri^al^su^pp^o^r^t^st^at^u^t^e,^ei^t^h^{er m}^u^st^h^a^{ve kn}^o^w^l^e^d^g^{e o}^f^an
^org^a^niz^a^tion’s^de^sigⁿ^a^tion^a^s^a^f^o^re^ig^{n te}^{rrorist org}^a^niz^a^tⁱ^on^or^ha^v^e^“^k^now^le^dg^e^o^f^the^unla^w^f^u^{l a}^c^tiv^itie^{s tha}^t^c^a^u^se^d
^the^or^g^a^niz^a^tio^{n t}^o^be^s^o^de^sⁱ^gⁿ^a^t^e^d^.”^H^u^m^a^nita^rⁱ^aⁿ^L^a^w^P^r^oje^c^t^,³⁵²^F.3^d^a^t⁴⁰^{0. U}ⁿ^f^o^r^t^una^te^ly^{, on}^e^c^ould^inte^r^p^r^e^t
^the^la^tte^{r pa}^rt^of^{this re}^q^u^ire^m^eⁿ^{t to m}^e^aⁿ^tha^t^a^de^f^e^nda^nt^m^u^s^t^ha^v^e^k^now^le^dge^of^the^f^a^c^t^s^c^ontaⁱⁿ^e^{d in}^the^g^e^ne^r^a^lly
^cl^assi^fⁱ^ed^,ⁱⁿ^t^e^rn^al^S^t^at^{e Dep}^a^rt^men^t^do^cu^m^eⁿ^t^s,^w^hⁱ^c^h^f^o^r^m^t^h^{e b}^a^si^{s f}^o^{r t}^h^{e S}^ecret^ar^y^o^f^S^t^at^{e’s d}^eci^si^oⁿ^t^o^d^e^si^gn^at^e
^aⁿ^org^a^niz^a^tio^{n a}^s^a^f^o^re^ig^{n te}^rrorⁱ^{st org}^a^niz^a^tion^.^A^dditi^ona^lly^{, the}^Unite^d^Sta^t^e^s^Distric^t^Co^{urt f}^o^{r t}^h^e^Mid^d^le^Distric^t
^of^Flor^ida^e^a^r^lie^r^t^h^is^y^e^a^r^a^dopte^d^aⁿ^e^v^eⁿ^s^t^rⁱ^c^t^e^r^s^c^ie^nte^r^s^t^aⁿ^da^r^d^c^onc^l^udi^ng^tha^t^the^g^o^v^e^rⁿ^m^e^{nt m}^u^s^t^pr^ov^e^un^de^r
^the^m^a^te^ria^l^s^{upport s}^t^a^t^ute^s^tha^t^t^h^e^de^f^e^nda^{nt k}ⁿ^e^w^tha^t^his^a^c^tⁱ^oⁿ^s^w^{ould f}^u^rthe^{r t}^h^e^ille^g^a^{l a}^c^tiv^itie^s^of^aⁿ^de^sⁱ^gⁿ^a^t^e^d
^f^o^r^e^ig^{n te}^r^r^o^rⁱ^s^t^or^g^a^niz^a^tio^{n. Se}^e^Uⁿ^ite^d^Sta^t^e^s^v^.^A^l^-^A^rⁱ^aⁿ^{, 30}^{8 F.}^Sup^p^.^2d¹³²²⁽^M^.D^.F^la^{. 2}⁰⁰⁴⁾^,^”^Se^nate^H^e^arⁱ^ngs^,
^(j^oⁱⁿ^t^p^r^ep^{ared st}^at^em^en^t^o^f^A^ssi^s^t^an^t^A^t^t^o^rn^ey^G^eⁿ^e^ral^Danⁱ^el^J.^Bryan^t^an^d^C^o^un^t^e^rt^erro^ri^sm^S^ectⁱ^oⁿ^Chⁱ^e^f^Barry
^Sa^bin)^.

United States or subject to the jurisdiction of the United States,” from section 2339B(a)(1) and
provided a more explicit list of jurisdictional circumstances in section 2339B(d)(1), i.e., the
offense is committed in whole or in part within the United States; the offender is a U.S. citizen,
permanent resident alien, or habitual U.S. resident; the offense occurs in or affects U.S. interstate
or foreign commerce; the offender is later found or brought to the U.S.; or the offender is an
accomplice or (aider or abetter) or conspirator with respect to a violation of the section by another
over whom the U.S. has subject matter jurisdiction.
Prior to the enactment of section 6603, section 2339B applied to anyone who acted “within the
United States or subject to the jurisdiction of the United States,” when they provided material
support to a foreign terrorist organization, 18 U.S.C. 2339B(a)(1)(2000 ed.). A person “subject to
the jurisdiction of the United States” arguably referred to American citizens, residents of this ¹³
country, and entities organized under our laws. Moreover, if extraterritorial jurisdiction existed
over the underlying offense, it was said to exist over aiding and abetting the commission of the ¹⁴
underlying offense or over conspiracy to commit it.
Section 2339A outlaws providing material support or resources with the intent that they be used
for the commission of certain designated violent crimes (predicate offenses). Section 6603
enlarged the list of predicate offenses to include any “federal crime of terrorism” cited in 18
U.S.C. 2332b(g)(5)(B). Section 2339A already covered assistance rendered for the commission of
the following:

18 U.S.C. 32 (destruction of aircraft)

18 U.S.C. 37 (violence at international airports)

18 U.S.C. 81 (arson within a federal enclave)

18 U.S.C. 175 (biological weapons offenses)

18 U.S.C. 229 (chemical weapons offenses)

18 U.S.C. 351 (murder, kidnaping, or assault upon Members of Congress, etc.)

18 U.S.C. 831(nuclear material offenses)

18 U.S.C. 842(m) or (n) (plastic explosives offenses)

18 U.S.C. 844(f) or (i)(bombing federal property or property in or affecting commerce)

18 U.S.C. 930(c) (homicide with dangerous weapon in a federal facility)

18 U.S.C. 956 (conspiracy to commit certain violent crimes overseas)

18 U.S.C. 1114 (murder of a federal officer or employees)

18 U.S.C. 1116 (murder of a foreign dignitary)

18 U.S.C. 1203 (hostage taking)

18 U.S.C. 1361 (destruction of federal property)

18 U.S.C. 1362 (destruction of communications property)

18 U.S.C. 1363 (destruction of property within a federal enclave)

18 U.S.C. 1366 (destruction of an energy facility),

18 U.S.C. 1751 (murder, kidnaping or assault of the President, etc.),

¹³^Uⁿ^ite^d^St^ate^s^v^.^Br^o^d^ie^{, 4}⁰³^F.^3d¹²^3,¹²^{8 (}³^{d C}ⁱ^r^.²⁰⁰⁵⁾^;³¹^C^.^F.^R^.^§5⁰⁰^.3^29.^Gⁱ^v^e^{n the}^c^our^ts^’^c^o^nc^e^r^ns^of^the
^vagu^en^{ess o}^f^s^ectⁱ^oⁿ²³³⁹^{B no}^t^e^d^earlⁱ^e^r,^t^h^ey^ma^y^h^a^v^e^p^r^o^v^en^r^e^l^u^ct^an^t^t^o^ap^pl^y^t^h^{e sect}ⁱ^oⁿ^b^r^o^a^d^l^y^t^o^t^h^{e o}^v^erseas
^c^ond^uc^{t of}^f^o^r^e^ig^{n na}^tio^na^ls^e^v^eⁿ^thos^e^w^{ho w}^e^r^e^r^e^sⁱ^de^nts^of^the^Uⁿ^ite^d^Sta^t^e^s^.
¹⁴^Uⁿ^ite^d^St^ate^s^v^.^H^ill^,²⁷^{9 F}^.³^d⁷^31,⁷³^{9 (}⁹^th^Cⁱ^r^.²⁰⁰²⁾^;^Uⁿ^ite^d^St^ate^s^v^.^Fe^lix^-Gutie^rre^z^,⁹^{40 F.2}^d¹²⁰^{0, 12}^04-²⁰⁵
⁽⁹^th^Cⁱ^r^.¹⁹⁹¹⁾^.

18 U.S.C. 1992 (train wrecking)

18 U.S.C. 1993 (violent attacks on mass transit)

18 U.S.C. 2155 (destruction of national defense material)

18 U.S.C. 2156 (production of defective national defense material)

18 U.S.C. 2280 (violence against maritime navigation)

18 U.S.C. 2281 (violence against maritime fixed platforms)

18 U.S.C. 2332 (violence against Americans overseas)

18 U.S.C. 2332a (weapons of mass destruction offenses)

18 U.S.C. 2332b (multinational terrorism)

18 U.S.C. 2332f (bombing public places or facilities)

18 U.S.C. 2340A (torture)

42 U.S.C. 2284 (atomic weapons offenses)

49 U.S.C. 46502 (air piracy)

49 U.S.C. 60123(b) (destruction of gas pipeline facilities)

With the addition of the federal crimes of terrorism not already among the enumerated, section

2339A now also condemns assistance relating to:

18 U.S.C. 175b (unlawful possession biological materials)

18 U.S.C. 175c (smallpox virus offenses)

18 U.S.C. 1030(a)(1), (5)(A)(i)(certain computer fraud and abuse offenses)

18 U.S.C. 2332g (anti-aircraft offenses)

18 U.S.C. 2332h (radiological dispersal device offenses)

18 U.S.C. 2339 (harboring terrorists)

18 U.S.C. 2339C (financing of terrorism)

42 U.S.C. 2122 (atomic weapons offenses)

49 U.S.C. 46504 (2d sentence) (assault on a flight crew with a dangerous weapon)

49 U.S.C. 46505(b)(3) or (c) (explosive or incendiary devices, or endangerment of human life
by means of weapons, on an aircraft within U.S. jurisdiction)

49 U.S.C. 46506 (homicide or attempted homicide aboard an aircraft within U.S.

jurisdiction).
In certain of the earlier versions of the intelligence reform legislation, and in various free standing
bills devoted to a similar purpose, proponents would have brought any crime of “international or
domestic terrorism” (18 U.S.C. 2331) rather than “any federal crime of terrorism” (18 U.S.C. ¹⁵

2332b(g)(5)(B)) within the circle of predicate offenses. Use of the phrase “international or ¹⁶

domestic terrorism” has generated considerable debate in the context of the USA PATRIOT

¹⁵^S^{ee e.}^g^.^{, S}^ec.²⁰⁴³⁽^a⁾^,^H.^R^.¹⁰^,¹⁵⁰^C^o^ng^.^R^ec.^H⁸⁷^{42 (}^d^a^ily^e^d^{. O}^c^{t. 7,}²⁰⁰⁴⁾^,^al^soⁱⁿ^{, H}^.^R^e^p^t^.¹⁰^8-⁷²⁴^{, p}^t^.^{5, a}^t³⁷
⁽²⁰⁰⁴⁾^;^S^ec.²⁽^a),^H.^R^.²⁸⁵⁸^(Rep.^G^r^een^(Wⁱ^s^.^));^S^ec.³⁽^a),^H.^R.⁴⁹⁴²^(Rep^.^G^r^een^(Wⁱ^s^.^));^cf^.^,^S^ec.¹¹⁴⁽^a),^S^.²⁶⁷⁹
^(Seⁿ^{. K}^y^l).
¹⁶^{18 U}^.^S.C.²³³¹^(“^A^s^use^d^{in t}^h^is^c^h^a^p^te^{r—(1) t}^h^e^te^rm^‘inte^r^na^tioⁿ^a^{l te}^rrorism^’^m^e^aⁿ^{s a}^c^tⁱ^v^itie^{s tha}^t^—(A⁾^inv^o^lv^e
^vi^o^l^en^t^act^{s o}^r^act^{s d}^aⁿ^g^ero^u^s^t^o^hu^m^aⁿ^lⁱ^f^{e t}^h^at^{are a vi}^o^l^atⁱ^oⁿ^o^f^t^h^{e cri}^mⁱⁿ^al^l^a^w^s^o^f^t^h^{e Un}ⁱ^t^e^d^S^t^at^{es o}^r^o^f^an^y^S^t^at^e,
^{or tha}^t^w^ould^be^a^c^r^im^ina^l^vⁱ^ola^{tion if}^c^o^m^m^itte^{d w}^ithin^the^j^u^risdⁱ^c^tion^of^the^Unite^{d Sta}^t^e^s^or^of^aⁿ^y^Sta^t^e^;^(B)
^a^ppe^a^r^to^beⁱⁿ^te^nde^d—(ⁱ^{) t}^oⁱⁿ^ti^mⁱ^da^te^{or c}^o^e^r^c^e^a^cⁱ^v^iliaⁿ^pop^ula^tion;⁽ⁱⁱ⁾^{to i}ⁿ^f^l^ue^nc^e^the^polic^y^{of a}^g^o^v^e^rnm^e^{nt by}
^intim^ida^tion^or^c^o^e^r^cⁱ^on;^or⁽ⁱⁱⁱ⁾^t^o^a^f^f^e^c^t^the^c^ond^uc^{t of}^a^g^o^v^e^rⁿ^m^e^{nt by}^m^a^s^s^de^s^t^r^u^c^{tion, a}^s^s^a^s^sⁱ^na^tion^,^or^kⁱ^dna^pⁱ^ng^;
^a^{nd (}^C⁾^oc^c^u^r^pr^im^a^r^il^y^outsⁱ^de^th^e^te^r^r^itorⁱ^a^l^j^u^rⁱ^s^d^ic^ti^on^of^the^Uⁿⁱ^t^e^d^Sta^t^e^s^{, or}^tr^aⁿ^s^c^eⁿ^d^na^ti^ona^l^b^oun^da^rⁱ^e^sⁱⁿ
^t^e^{rms o}^f^t^h^{e mean}^{s b}^y^w^hⁱ^c^h^t^h^{ey are acco}^m^p^lⁱ^s^h^e^d^,^t^h^{e p}^e^rson^{s t}^h^e^y^ap^p^{ear i}ⁿ^t^eⁿ^d^e^d^t^oⁱⁿ^tⁱ^mⁱ^d^at^{e o}^r^co^erce,^o^r^t^h^e
^l^o^cal^{e i}ⁿ^w^hⁱ^c^h^t^h^ei^{r p}^e^r^p^et^rat^o^rs^o^p^e^rat^e^o^r^{seek as}^y^l^u^m^.^.^.
^“⁽^{5) the}^te^rm^‘dom^e^s^tic^te^rroris^m^’^m^e^aⁿ^{s a}^c^tiv^itie^{s tha}^t^—(A⁾^inv^o^lve^a^c^t^{s da}^ng^e^r^{ous to}^hum^aⁿ^lif^e^th^a^t^a^r^e^a^vⁱ^ola^tion
^o^f^t^h^{e cri}^mⁱⁿ^al^l^a^w^s^o^f^t^h^{e Un}ⁱ^t^e^{d S}^t^at^{es o}^r^o^f^an^y^S^t^at^e;^{(B) ap}^p^{ear t}^o^b^eⁱⁿ^t^eⁿ^d^e^d^—⁽ⁱ^{) t}^oⁱⁿ^tⁱ^mⁱ^d^at^{e o}^r^co^{erce a}
⁽^c^onti^nue^d.^..)

Act,¹⁷ and it may be for this reason that the more narrowly and precisely defined “federal crime of
terrorism” cross reference was ultimately selected.
Section 6603 also introduced two crimes—18 U.S.C. 1361 (destruction of federal property) and
18 U.S.C. 2156 (production of defective national defense material)—into the family of federal
crimes of terrorism. Both crimes were already predicate offenses in section 2339A, so it was
unnecessary to introduce them into section 2332b(g)(5)(B) in order to bring them within section

2339A.

Of course there are other consequences that flow from including sections 1361 and 2156 within
the definition of federal crimes of terrorism under section 2332b(g)(5)(B). Prior to designation as
federal crimes of terrorism, violations of section 2156 were subject to the general five year statute
of limitations, 18 U.S.C. 3282; now they are subject to an eight year statute of limitations unless
they involve the risk of death or serious bodily injury in which case they may be prosecuted at
any time, 18 U.S.C. 3286. Violations of section 1361 which were already subject to an eight year
statute of limitations, 18 U.S.C. 3286, may now be prosecuted at any time if they involve the risk
of death or serious injury, id.
Prior to designation as a federal crime of terrorism conviction and imprisonment for violation of
either section carried a maximum term of supervised release of not more than three years; the
maximum term is now supervision for life or any term of years following a conviction for
violation of either section that involves the risk of death or serious injury, 18 U.S.C. 3583.
Prior to designation as a federal crime of terrorism, suspects charged with a violation of either
section were entitled to normal bail procedures; now they face the rebuttable presumption of pre-
trial detention, 18 U.S.C. 3142.
Prior to designation as a federal crime of terrorism, neither section appeared as a racketeering
(RICO) predicate offense, 18 U.S.C. 1961 (federal racketeering statutes outlaw the patterned
commission of a predicate offense or offenses to acquire or operate an enterprise in or affecting
interstate commerce, 18 U.S.C. 1961-1962). By designation as a RICO predicate they also
become money laundering predicate offenses under sections 18 U.S.C. 1956, 1957 (18 U.S.C.
1956(c)(7)(A), 1957(f)(3)), a status which section 1361 but not section 2156 already enjoyed, 18
U.S.C. 1956(c) (7)(D).
Section 6603 also added an immunity provision under which an individual or entity who provides
“personnel,” “training,” or “expert advice or assistance” in violation of section 2339B may not be
prosecuted if the offense was committed with the prior approval of the Secretary of State and the
Attorney General as long as the support cannot be used to carry out the various violent acts of

^(...c^on^tin^ue^d)
^cⁱ^v^ilia^{n po}^pula^tⁱ^oⁿ^;⁽ⁱⁱ⁾^to^inf^l^ueⁿ^c^e^the^pol^ic^y^of^a^g^o^v^e^rn^m^e^{nt by}^intim^ida^tion^{or c}^o^e^r^cⁱ^on;^{or (i}^{ii) t}^o^a^f^f^e^c^t^the
^c^ond^uc^{t of}^a^g^o^v^e^rⁿ^m^e^{nt by}^m^a^s^s^de^s^t^r^u^c^tio^{n, a}^s^s^a^s^sⁱ^na^tio^n,^or^kⁱ^dⁿ^a^p^ing^;^aⁿ^{d (}^C⁾^oc^c^u^r^pr^im^a^r^il^y^w^{ithin the}^te^r^rⁱ^t^o^rⁱ^a^l
^jurisdic^ti^on^of^the^Uni^t^e^d^S^t^a^t^e^s^.”⁾
¹⁷^S^{ee e.}^g^.^,^Unⁱ^t^e^{d S}^t^at^{es Dep}^a^rt^m^eⁿ^t^o^f^Ju^stⁱ^ce,^Dispe^l^lⁱⁿ^g^the^M^y^th^{s: Dispe}^llin^{g S}^o^me^of^the^M^a^j^o^r^M^y^{ths abo}^ut^the
^{USA PAT}^{RIOT Ac}^t^,^a^v^a^ila^ble^on^D^e^c^.^17,²⁰^{04 a}^t^{, h}^ttp:/^/w^w^w^.lif^ea^ndli^b^e^r^ty^.g^ov^/^s^ubs^/^a^dd_m^y^t^hs^.htm^.

terrorism described in 8 U.S.C. 1182(a)(3)(B)(iii) (hijacking, sabotage, hostage taking,
assassination and the like), 18 U.S.C. 2339B(j).
The provision is presumably designed to encourage “stings” and other undercover investigations.
It is not clear why it is necessary. No prosecution of 18 U.S.C. 2339B, or any other federal crime
for that matter, is possible without the Attorney General’s approval, ordinarily exercised through
the various United States Attorneys, F.R.Crim.P. 7(c)(indictments must be signed by the attorney
for the government). Of course, the State Department is more likely to be involved in activities
abroad.

18 U.S.C. 2332b(g)(5)(B)

* * *
(g) Definitions.—As used in this section . . .
(5) the term “Federal crime of terrorism” means an offense that . . .
(B) is a violation of—
(i) section 32 (relating to destruction of aircraft or aircraft facilities), 37 (relating to violence
at international airports), 81 (relating to arson within special maritime and territorial jurisdiction),
175 or 175b (relating to biological weapons), 175c (relating to variola virus), 229 (relating to
chemical weapons), subsection (a), (b), (c), or (d) of section 351 (relating to congressional,
cabinet, and Supreme Court assassination and kidnaping), 831 (relating to nuclear materials),
842(m) or (n) (relating to plastic explosives), 844(f)(2) or (3) (relating to arson and bombing of
Government property risking or causing death), 844(i) (relating to arson and bombing of property
used in interstate commerce), 930(c) (relating to killing or attempted killing during an attack on a
Federal facility with a dangerous weapon), 956(a)(1) (relating to conspiracy to murder, kidnap, or
maim persons abroad), 1030(a)(1) (relating to protection of computers) , 1030(a)(5)(A)(i)
resulting in damage as defined in 1030(a)(5)(B)(ii) through (v) (relating to protection of
computers), 1114 (relating to killing or attempted killing of officers and employees of the United
States), 1116 (relating to murder or manslaughter of foreign officials, official guests, or
internationally protected persons), 1203 (relating to hostage taking), (Sec. 6603) 1361 (relating to
government property or contracts), 1362 (relating to destruction of communication lines, stations,
or systems), 1363 (relating to injury to buildings or property within special maritime and
territorial jurisdiction of the United States), 1366(a)(relating to destruction of an energy facility),
1751(a), (b), (c), or (d) (relating to Presidential and Presidential staff assassination and
kidnaping), 1992 (relating to wrecking trains), 1993 (relating to terrorist attacks and other acts of
violence against mass transportation systems), 2155 (relating to destruction of national defense
materials, premises, or utilities), (Sec. 6603) 2156 (relating to national defense material, premises,
or utilities), 2280 (relating to violence against maritime navigation), 2281 (relating to violence
against maritime fixed platforms), 2332 (relating to certain homicides and other violence against
United States nationals occurring outside of the United States), 2332a (relating to use of weapons
of mass destruction), 2332b (relating to acts of terrorism transcending national boundaries), 2332f
(relating to bombing of public places and facilities), 2332g (relating to missile systems designed
to destroy aircraft), 2332h (relating to radiological dispersal devices, 2339 (relating to harboring
terrorists), 2339A (relating to providing material support to terrorists), 2339B (relating to
providing material support to terrorist organizations), 2339C (relating to financing of terrorism, or

2340A (relating to torture) of this title;

(ii) sections 92 (relating to prohibitions governing atomic weapons) or 236 (relating to
sabotage of nuclear facilities or fuel) of the Atomic Energy Act of 1954 (42 U.S.C. 2122 or 2284);
or
(iii) section 46502 (relating to aircraft piracy), the second sentence of section 46504 (relating
to assault on a flight crew with a dangerous weapon), section 46505(b)(3) or (c) (relating to
explosive or incendiary devices, or endangerment of human life by means of weapons, on

aircraft), section 46506 if homicide or attempted homicide is involved (relating to application of
certain criminal laws to acts on aircraft), or section 60123 (b) (relating to destruction of interstate
gas or hazardous liquid pipeline facility) of title 49.
18 U.S.C. 2339A. Providing material support to terrorists (underlined provisions expire and
strike out provision are revived after December 31, 2006)
(a) Offense.—Whoever provides material support or resources or conceals or disguises the
nature, location, source, or ownership of material support or resources, knowing or intending that
they are to be used in preparation for, or in carrying out, a violation of section 32, 37, 81, 175,

229, 351, 831, 842(m) or (n), 844(f) or (i), 930(c), 956, 1114, 1116, 1203, 1361, 1362, 1363,

1366, 1751, 1992, 1993, 2155, 2156, 2280, 2281, 2332, 2332a, 2332b, 2332f, or 2340A of this
title, section 236 of the Atomic Energy Act of 1954 (42 U.S.C. 2284), (Sec. 6603) or section
46502 or 60123(b) of title 49, (Sec. 6603) or any offense listed in section 2332b(g)(5)(B) (except
for sections 2339A and 2339B)[,] or in preparation for, or in carrying out, the concealment of an
escape from the commission of any such violation, or attempts or conspires to do such an act,
shall be fined under this title, imprisoned not more than 15 years, or both, and, if the death of any
person results, shall be imprisoned for any term of years or for life. A violation of this section
may be prosecuted in any Federal judicial district in which the underlying offense was
committed, or in any other Federal judicial district as provided by law.
(b) Definition.—(Sec. 6603) As used in In this section,—
(Sec. 6603) (1) the term “material support or resources” means (Sec. 6603) any property,
tangible or intangible, or service, including currency or monetary instruments or financial
securities, financial services, lodging, training, expert advice or assistance, safehouses, false
documentation or identification, communications equipment, facilities, weapons, lethal
substances, explosives, personnel (Sec. 6603) (1 or more individuals who may be or include
oneself) and, transportation, (Sec. 6603) and other physical assets, except medicine or religious
materials.
(Sec. 6603) (2) the term “training” means instruction or teaching designed to impart a specific
skill, as opposed to general knowledge; and
(Sec. 6603) (3) th term “expert advice or assistance” means advice or assistance derived from
scientific, technical or other specialized knowledge.
18 U.S.C. 2339B. Providing material support or resources to designated foreign terrorist
organizations
(a) Prohibited activities.—
(1) Unlawful conduct.—Whoever, (Sec. 6603) within the United States or subject to the
jurisdiction of the United States, knowingly provides material support or resources to a foreign
terrorist organization, or attempts or conspires to do so, shall be fined under this title or
imprisoned not more than 15 years, or both, and, if the death of any person results, shall be
imprisoned for any term of years or for life. (Sec. 6603) To violate this paragraph, a person must
have knowledge that the organization is a designated terrorist organization (as defined in
subsection (g)(6)), that the organization has engaged or engages in terrorist activity (as defined in
section 212(a)(3)(B) of the Immigration and Nationality Act), or that the organization has

engaged or engages in terrorism (as defined in section 140(d)(2) of the Foreign Relations
Authorization Act, Fiscal Years 1988 and 1989).
(2) Financial institutions.—Except as authorized by the Secretary, any financial institution
that becomes aware that it has possession of, or control over, any funds in which a foreign
terrorist organization, or its agent, has an interest, shall—
(A) retain possession of, or maintain control over, such funds; and
(B) report to the Secretary the existence of such funds in accordance with regulations issued
by the Secretary.
(b) Civil penalty.—Any financial institution that knowingly fails to comply with subsection
(a)(2) shall be subject to a civil penalty in an amount that is the greater of—
(A) $50,000 per violation; or
(B) twice the amount of which the financial institution was required under subsection (a)(2)
to retain possession or control.
(c) Injunction.—Whenever it appears to the Secretary or the Attorney General that any person
is engaged in, or is about to engage in, any act that constitutes, or would constitute, a violation of
this section, the Attorney General may initiate civil action in a district court of the United States
to enjoin such violation.
(d) Extraterritorial jurisdiction.—(Sec. 6603) There (1) In General.—There is jurisdiction
over an offense under subsection (a) if—
(Sec. 6603) (A) an offender is a national of the United States (as defined in section 101(a)(22)
of the Immigration and Nationality Act (8 U.S.C. 1101(a)(22))) or an alien lawfully admitted for
permanent residence in the United States (as defined in section 101(a)((2) of the Immigration and
Nationality Act (8 U.S.C. 1101(a)(20))));
(Sec. 6603) (B) an offender is a stateless person whose habitual residence is in the United
States;
(Sec. 6603) (C) after the conduct required for the offense occurs an offender is brought into or
found in the United States, even if the conduct required for the offense occurs outside the United
States;
(Sec. 6603) (D) the offense occurs in whole or in part within the United States;
(Sec. 6603) (E) the offense occurs in or affects interstate or foreign commerce;
(Sec. 6603) (F) an offender aids or abets any person over whom jurisdiction exists under this
paragraph in committing an offense under subsection (a) or conspires with any person over whom
jurisdiction exists under this paragraph to commit an offense under subjection (a).
(Sec. 6603) (2) Extraterritorial jurisdiction.—There is extraterritorial Federal jurisdiction over
an offense under this section.

(e) Investigations.—
(1) In general.—The Attorney General shall conduct any investigation of a possible violation
of this section, or of any license, order, or regulation issued pursuant to this section.
(2) Coordination with the Department of the Treasury.—The Attorney General shall work in
coordination with the Secretary in investigations relating to—
(A) the compliance or noncompliance by a financial institution with the requirements of
subsection (a)(2); and
(B) civil penalty proceedings authorized under subsection (b).
(3) Referral.—Any evidence of a criminal violation of this section arising in the course of an
investigation by the Secretary or any other Federal agency shall be referred immediately to the
Attorney General for further investigation. The Attorney General shall timely notify the Secretary
of any action taken on referrals from the Secretary, and may refer investigations to the Secretary
for remedial licensing or civil penalty action.
(f) Classified information in civil proceedings brought by the United States.—
(1) Discovery of classified information by defendants.—
(A) Request by United States.—In any civil proceeding under this section, upon request made
ex parte and in writing by the United States, a court, upon a sufficient showing, may authorize the
United States to—
(i) redact specified items of classified information from documents to be introduced into
evidence or made available to the defendant through discovery under the Federal Rules of Civil
Procedure;
(ii) substitute a summary of the information for such classified documents; or
(iii) substitute a statement admitting relevant facts that the classified information would tend
to prove.
(B) Order granting request.—If the court enters an order granting a request under this
paragraph, the entire text of the documents to which the request relates shall be sealed and
preserved in the records of the court to be made available to the appellate court in the event of an
appeal.
(C) Denial of request.—If the court enters an order denying a request of the United States
under this paragraph, the United States may take an immediate, interlocutory appeal in
accordance with paragraph (5). For purposes of such an appeal, the entire text of the documents to
which the request relates, together with any transcripts of arguments made ex parte to the court in
connection therewith, shall be maintained under seal and delivered to the appellate court.
(2) Introduction of classified information; precautions by court.—
(A) Exhibits.—To prevent unnecessary or inadvertent disclosure of classified information in a
civil proceeding brought by the United States under this section, the United States may petition

the court ex parte to admit, in lieu of classified writings, recordings, or photographs, one or more
of the following:
(i) Copies of items from which classified information has been redacted.
(ii) Stipulations admitting relevant facts that specific classified information would tend to
prove.
(iii) A declassified summary of the specific classified information.
(B) Determination by court.—The court shall grant a request under this paragraph if the court
finds that the redacted item, stipulation, or summary is sufficient to allow the defendant to
prepare a defense.
(3) Taking of trial testimony.—
(A) Objection.—During the examination of a witness in any civil proceeding brought by the
United States under this subsection, the United States may object to any question or line of
inquiry that may require the witness to disclose classified information not previously found to be
admissible.
(B) Action by court.—In determining whether a response is admissible, the court shall take
precautions to guard against the compromise of any classified information, including—
(i) permitting the United States to provide the court, ex parte, with a proffer of the witness’s
response to the question or line of inquiry; and
(ii) requiring the defendant to provide the court with a proffer of the nature of the information
that the defendant seeks to elicit.
(C) Obligation of defendant.—In any civil proceeding under this section, it shall be the
defendant’s obligation to establish the relevance and materiality of any classified information
sought to be introduced.
(4) Appeal.—If the court enters an order denying a request of the United States under this
subsection, the United States may take an immediate interlocutory appeal in accordance with
paragraph (5).
(5) Interlocutory appeal.—
(A) Subject of appeal.—An interlocutory appeal by the United States shall lie to a court of
appeals from a decision or order of a district court—
(i) authorizing the disclosure of classified information;
(ii) imposing sanctions for nondisclosure of classified information; or
(iii) refusing a protective order sought by the United States to prevent the disclosure of classified
information.
(B) Expedited consideration.—

(i) In general.—An appeal taken pursuant to this paragraph, either before or during trial, shall
be expedited by the court of appeals.
(ii) Appeals prior to trial.—If an appeal is of an order made prior to trial, an appeal shall be
taken not later than 10 days after the decision or order appealed from, and the trial shall not
commence until the appeal is resolved.
(iii) Appeals during trial.—If an appeal is taken during trial, the trial court shall adjourn the
trial until the appeal is resolved, and the court of appeals—
(I) shall hear argument on such appeal not later than 4 days after the adjournment of the trial;
(II) may dispense with written briefs other than the supporting materials previously submitted
to the trial court;
(III) shall render its decision not later than 4 days after argument on appeal; and
(IV) may dispense with the issuance of a written opinion in rendering its decision.
(C) Effect of ruling.—An interlocutory appeal and decision shall not affect the right of the
defendant, in a subsequent appeal from a final judgment, to claim as error reversal by the trial
court on remand of a ruling appealed from during trial.
(6) Construction.—Nothing in this subsection shall prevent the United States from seeking
protective orders or asserting privileges ordinarily available to the United States to protect against
the disclosure of classified information, including the invocation of the military and State secrets
privilege.
(g) Definitions.—As used in this section—
(1) the term “classified information” has the meaning given that term in section 1(a) of the
Classified Information Procedures Act (18 U.S.C. App.);
(2) the term “financial institution” has the same meaning as in section 5312(a)(2) of title 31,
United States Code;
(3) the term “funds” includes coin or currency of the United States or any other country,
traveler’s checks, personal checks, bank checks, money orders, stocks, bonds, debentures, drafts,
letters of credit, any other negotiable instrument, and any electronic representation of any of the
foregoing;
(Sec. 6603) (4) the term “material support or resources” has the same meaning as in section

2339A (including the definitions of “training” and “expert advice or assistance” in that section);

(5) the term “Secretary” means the Secretary of the Treasury; and
(6) the term “terrorist organization” means an organization designated as a terrorist
organization under section 219 of the Immigration and Nationality Act.
(Sec. 6603) (h) Provision of Personnel.—No person may be prosecuted under this section in
connection with the term “personnel” unless that person has knowingly provided, attempted to

provide, or conspired to provide a foreign terrorist organization with 1 or more individuals (who
may be or include himself) to work under that terrorist organization’s direction or control or to
organize, manage, supervise, or otherwise direct the operation of that organization. Individuals
who act entirely independently of the foreign terrorist organization to advance its goals or
objectives shall not be considered to be working under the foreign terrorist organization’s
direction and control.
(Sec. 6603) (i) Rule of Construction.—Nothing in this section shall be construed or applied so
as to abridge the exercise of rights guaranteed under the First Amendment to the Constitution of
the United States.
(Sec. 6603) (j) Exception.—No person may prosecuted under this section in connection with
the term[s] “personnel”, “training”, or “expert advice or assistance” if the provision of that
material support or resources to a foreign terrorist organization was approved by the Secretary of
State with the concurrence of the Attorney General. The Secretary of State may not approve the
provision of any material support that may be used to carry out terrorist activity (as defined in
section 212(a)(3)(B)(iii) of the Immigration and Nationality Act).
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