With more than 1 million visitors expected ahead of Super Bowl LVII (2023), the Arizona Fusion Center—also known as the Arizona Counter Terrorism Information Center (ACTIC)—knew the Phoenix metro area would be a prime target for criminal and terrorist activity.
One of the most serious challenges impacting homeland security is the timely exchange of intelligence and critical information between state, local, and federal agencies. The ACTIC, a joint effort between the Arizona Department of Public Safety (AZDPS), the Arizona Department of Homeland Security, the Federal Bureau of Investigation (FBI), and other participating agencies, addresses this challenge by providing tactical and strategic intelligence analysis and information sharing to state, local, tribal, and federal law enforcement agencies, as well as other agencies critical to Arizona and the United States’ homeland security efforts.
“Given recent events and the new realities for major events and venues, it is imperative for public safety agencies to partner with our communities to enhance safety, ” said AZDPS Major Jennifer Borquez, ACTIC director.1In the year leading up to Super Bowl LVII, ACTIC called upon the award-winning public safety training offered by the Counterterrorism Education Learning Lab (CELL) to enhance the safety and security of all Super Bowl LVII festivities.
Since it’s inception, the CELL, a nonprofit, nonpartisan institute, has provided a comprehensive look at the threat of terrorism and violent extremism and how individuals can play a role in preventing it. Most notably, the CELL’s Community Awareness Program (CAP)—a U.S. Department of Homeland Security (DHS) SAFETY Act-certified prevention and preparedness training—has served as a crucial resource for law enforcement to educate the public on how to effectively recognize and report suspicious activity. The CAP’s implementation at Super Bowl LVII successfully trained more than 16,000 staff and volunteers, helping to ensure that no significant crimes or acts of terrorism occurred.
In the weeks leading up to Super Bowl Sunday, ACTIC saw a significant increase in both the volume and quality of reports from members of the public to the Arizona Tip Line, as well as to on-site public safety officials. The CAP training enhanced both the collaboration and trust across public safety, event, and venue volunteers and staff and the public throughout Super Bowl LVII events. In fall 2023, this public-private partnership was honored with the IACP’s prestigious Leadership in Homeland Security Award.2
Arizona Cardinals owner Michael Bidwell praised the CAP’s implementation. “Super Bowl LVII was a tremendous success,” said Bidwell. “I believe this is a direct reflection of the leadership exemplified by the CELL through this important public safety initiative.”3
Building on this success and in response to escalating extremist threats, the CELL has developed a new and improved CAP 2.0 that fortifies local preventative frameworks against violent extremism, empowering communities to identify and report the warning signs of radicalization, in addition to offering existing best practices on suspicious activity reporting. CAP 2.0 is a critical tool for police agencies to educate the community on the rising threat posed by extremists to ultimately prevent violent acts before they happen.
Bridging the Gap: The Police & The Community
As FBI Director Christopher Wray stated in 2022, today’s threat landscape leaves police officials with the overwhelming task of preventing nefarious acts perpetrated by lone actors who typically radicalize to violence online.4 These actors are increasingly difficult to identify. In fact, security experts have likened the challenge to trying to find a “needle in a stack of needles.”
In this new reality, agencies must encourage the public to become force multipliers for the public safety community. By doing so, the police can establish a culture of trust. In fact, the very act of reporting useful information allows community members to have positive, nonenforcement interactions with public safety officials and start developing this community-police trust. But how can police agencies effectively educate their local communities on recognizing and reporting suspicious activity while dealing with limited resources?
One answer lies in the CELL’s CAP program, which educates the public on suspicious activities and indicators of terrorism and targeted violence and how to report such events to the appropriate authorities. In fact, the CAP was first developed and deployed in Colorado as a response to a statewide effort to address the communication gap between public safety and the broader community.
In 2007, the Colorado Information Analysis Center (CIAC), part of the state’s Department of Public Safety and a clearinghouse for threat information, developed its Threat Liaison Officer (TLO) program. TLOs serve as the direct points of contact for the CIAC at the local level and establish a two-way flow of information between community members and the CIAC.
However, soon after the program was established, it became clear that TLOs needed a better way to connect with their communities. In short, the quality of the message being delivered by the TLOs to their communities was inconsistent, and, as a result, the reports received from the public were poor—if any reporting took place at all. In turn, this impacted the CIAC’s ability to share useful information with its local, state, and federal partners, which was the entire purpose behind the creation of the CIAC. Thus, the CIAC, in conjunction with the Colorado State Patrol, realized it needed to establish a structured educational program and comprehensive toolkit for TLOs to educate the public on recognizing and reporting suspicious activity effectively.
Around this time, the CELL opened its doors in Denver, Colorado. In partnership with DHS, the CELL had released a video, Recognizing the 8 Signs of Terrorism, which instructed members of the public on how to recognize specific indicators or behaviors that could lead to criminal or terrorist activity and how best to report them.5
“Domestic threat actors often plan and carry out their acts of violence alone and with little apparent warning in ways that limit the effectiveness of traditional police investigation and disruption methods.”
The CIAC and Colorado State Patrol engaged the CELL to expand upon the video in part to create a structured public safety training initiative that could be rolled out to communities across the state in a unified, consistent manner. The team collaborated with the DHS, the U.S. Department of Justice (DOJ), and the FBI Joint Terrorism Task Force to develop the CAP and deploy it to individuals across Colorado and throughout the United States.
The program addresses the communication gap between the public and law enforcement, standardizing messaging and ensuring the preservation of civil liberties protected by the U.S. Constitution. “We need a knowledgeable and engaged citizenry to help us identify when evil is around the corner,” said Colonel Matt Packard of the Colorado State Patrol. “The CAP teaches people what to look for, when to look for it, and how to describe it to first responders.”6
The CAP continues to be relevant today considering evolving threats around the globe. The program undergoes regular updates to ensure alignment with current best practices. It also considers local public safety procedures and reporting protocols and is customizable and scalable to different organizations, municipalities, and communities across the globe.
Adapting to the Evolving Threat
In FBI Director Wray’s 2023 statement before the Committee on the Judiciary, he dubbed “lone actors or small cells who typically radicalize to violence online” as the greatest, most immediate threat to the homeland.7 This perspective is reiterated in the DHS Strategic Framework for Countering Terrorism and Targeted Violence (2019), detailing the “growing threat from domestic terrorism, including the mass attacks that have too frequently struck our houses of worship, our schools, our workplaces, our festivals, and our shopping spaces.”8
Director Wray shared that the number of FBI domestic terrorism investigations has more than doubled since the spring of 2020, and the events of January 6, 2021, further amplify the risk posed by radicalization of individuals and recruitment to domestic extremist groups.9 The FBI and DHS’s Strategic Intelligence Assessment and Data on Domestic Terrorism (2021) asserts that most of these violent extremists are motivated and inspired by a mix of socio-political goals and personal grievances against their targets.10 Domestic threat actors often plan and carry out their acts of violence alone and with little apparent warning in ways that limit the effectiveness of traditional police investigation and disruption methods.
Cities and communities across the United States remain on high alert in response to this threat. In particular, the February 2022 National Terrorism Advisory System Bulletin outlines the specific threats posed by online radicalization via false narratives and conspiracy theories and recruitment from domestic extremists and foreign terrorist organizations alike.11
The CAP’s adaptability allows it to evolve seamlessly to address these emerging threats posed by domestic violent extremists. For instance, following the Boston Marathon bombing in 2013, the curriculum expanded to address the vulnerabilities of large-scale special events and opportunities to engage event volunteers as force multipliers for public safety. With the recent updates to the curriculum to include how to recognize and report the indicators of radicalization, CAP 2.0 is poised to empower the community with the tools to help prevent violent extremism and targeted violence.
What Participants Learn
The CAP addresses public safety considerations across all sectors, including everyday communities, faith-based institutions, schools, critical infrastructure, and large-scale special events and venues. Through the training, community members are provided with important tools to help safeguard their communities, examine today’s evolving threat landscape, and learn how to recognize and report suspicious activity and radicalization indicators.
When assessing a suspicious situation, CAP participants should refrain from considering factors like race, ethnicity, national origin, sexual orientation, or religious affiliation. Instead, they identify behaviors in individuals that may raise concerns related to potential problems or criminal activities. The curriculum emphasizes specific radicalization and mobilization indicators to which individuals should be vigilant. It teaches how to effectively communicate that information to the police or other appropriate channels, fostering a culture of trust and collaboration between the police and the broader community.
For instance, criminals might steal credentials or uniforms to access secured areas, prompting community members to remain watchful for individuals who appear out of place in workplaces, neighborhoods, or business establishments. A person preparing for criminal activities often requires a range of supplies, some of which may be unusual or purchased in large quantities—purchases that vigilant community members might notice. Individuals may observe someone capturing photographs of unconventional areas that deviate from typical tourist shots, such as mobile police command posts, secured access points, or entry gates. Trainees are also encouraged to remain watchful online and on social media platforms for messages endorsing or threatening violence against different faith groups, organizations, or individuals or expressing support for terrorist or criminal groups.
Given the increased security threats and new realities facing major public events, the Special Event CAP was developed and deployed for large-scale and high-profile events, from local marathons and parades to global sporting events and political conventions. This adaptable version of the CAP enables thousands to be trained in a short amount of time with consistent messaging. Community members work together with the police at every event in which the CAP is deployed, serving as additional “eyes and ears on the ground” to help ensure safety and security.
“Multiple organizations throughout the state have standing contracts with the CELL to train their employees and staff annually”
The CELL received grant funding in 2022 from the DOJ to update and expand the CAP to specifically address the current threat landscape posed by terrorism and targeted violence. In addition to continuing to provide training on suspicious activity reporting, CAP 2.0 empowers community members to identify the warning signs of radicalization, report them, and further develop local preventative frameworks against radicalization. The course material and training tools make community members aware of the evolving radicalization-to-violence processes and equip them to safely and effectively communicate this to their local police.
In late 2024, CAP 2.0 will be housed in a dynamic online learning management system, providing an engaging, interactive learning experience. The online platform will make this education accessible across the United States, bringing this critical program to hundreds of thousands of people, including those in diverse, rural, and underserved communities.
Empowering Communities
More than 150,000 people have been trained through the CAP, which fosters community members as force multipliers. It has been implemented across states, community groups, nonprofits, and major sporting events and venues across the United States. Many police agencies currently supplement their safety initiatives by empowering their cities with the CAP.
In Colorado, volunteers and staff have received the CAP training for several high-profile events. The CAP is implemented each year ahead of Denver Day of Rock and Denver PrideFest. In addition, multiple organizations throughout the state have standing contracts with the CELL to train their employees and staff annually. For instance, the Colorado Rockies and Denver Broncos require CAP training for all stadium staff and volunteers. Colorado Rockies employee Jarod Eassa credited the CAP training he received with his survival in the March 2021 shooting at a King Soopers in Boulder, Colorado. “No question,” said Eassa. “If I didn’t have that training, I don’t know what I would have done.”12
In response to increased threats to election security, the CELL trained 3,000 election officials and volunteers across Colorado in 2022 to help secure the state’s primary elections in partnership with the Colorado Department of State. With thousands empowered throughout the community to recognize and report suspicious activity in the lead-up to the elections, no significant crimes occurred. Following this success, the Colorado Department of State renewed its contract with the CELL to train 7,000 elections staff, poll workers, volunteers, and county and municipal election officials before the 2024 U.S. presidential election.
Along with its phenomenal rollout at Super Bowl LVII that resulted in no serious crimes or acts of terrorism, the CAP’s impact has also stretched across other U.S. communities. In 2018, the Minneapolis, Minnesota, Police Department trained more than 16,000 staff and volunteers for Super Bowl LII; 3,000 for the 2019 NCAA Final Four; and 3,000 for the 2014 Major League All-Star Game. Partnerships also were created for the Indianapolis 500, the Republican National Convention, and FIS (International Ski Federation) World Alpine Ski Championship, among other events.
Join Forces to Counter the Threat of Violent Extremism
From acts of terrorism to online radicalization, the impact of violent ideologies has deeply affected communities worldwide. This threat continues to pose a significant threat to global stability. It is crucial now, more than ever, to come together and actively address this issue to ensure the safety and well-being of society. d
Notes:
1Arizona Department of Public Safety, “Arizona Counter Terrorism Information Center Partners with Event Staff and Volunteers for Training to Ensure Safe and Fun Super Bowl LVII,” news release, January 25, 2023.
2International Association of Chiefs of Police, “2023 Winner: Arizona Counter Terrorism Information Center,” IACP Leadership in Homeland Security Award.
3Michael Bidwell (owner, Arizona Cardinals), CELL Letter of Recommendation to IACP, March 31, 2023.
4”The Rising Threat of Domestic Extremism,” Powers of Preparedness (blog), September 19, 2023.
5“Recognizing the 8 Signs of Terrorism – CIAC – Colorado Information Analysis Center with John Elway,” YouTube, 8 min., 3 sec.
6Mizel Institute, ”CELL_2023_Trailer_FIN,” Vimeo, 2:56, September 6, 2023.
7Oversight of the Federal Bureau of Investigation Before the Committee on the Judiciary, 118th Cong. (2023) (statement of Christopher A. Wray, director, Federal Bureau of Investigation).
8U.S. Department of Homeland Security (DHS), Department of Homeland Security Strategic Framework for Countering Terrorism and Targeted Violence (2019), 2.
9Luke Barr and Alexander Mallin, “FBI More Than Doubles Domestic Terrorism Investigations: Christopher Wray,” ABC News, September 21, 2021.
10Federal Bureau of Investigation and DHS, Strategic Intelligence Assessment and Data on Domestic Terrorism (2021).
11DHS, “Summary of Terrorism Threat to the U.S. Homeland,” National Terrorism Advisory System Bulletin, February 7, 2022.
12Courtney Fromm, “Boulder Shooting Survivor Credits Training Through Work For His Survival,”
FOX31 Denver, updated April 1, 2021.
Please cite as
Jennifer Borquez & Melanie Pearlman, “Empowering Communities to Counter Violent Extremism:Enhancing Safety and Strengthening Trust,” Police Chief Online, September 25, 2024.
