	Introduction

The purpose of this report is to provide Congress with an overview of the nature and statusof the designated foreign terrorist organizations list (FTO list), as a potential tool in overseeing theimplementation and effects of U.S. legislation designed as a basis for imposing sanctions onterrorists. The report centers on the list of terrorist groups that are formally designated by theSecretary of State pursuant to section 219 of the Immigration and Nationality Act (8 U.S.C. ), as amended under the Antiterrorism and Effective Death Penalty Act of 1996 ( P.L.104-132 ). These groups are often collectively referred to as the "terrorist group list" or "FTO list." (1) Next follows a sectionexplaining the distinctions between the FTO list and other terrorist lists that are maintained by theU.S. The report concludeswith a discussion of potential policy options for Congress, including some of the recently proposedamendments to the legislation that establishes it. This report will be updated as events warrant. Designations last for two years, at which time they may be renewed. (3) Designations normally occur after an involved interagency process; but the Secretary of State makesthe ultimate decision. A variety of different agencies in the Department of Homeland Security are then involved in carryingout immigration sanctions, including deportations. Not the Only U.S. "Terrorist List"

The FTO list is not the only so-called "terrorist list" that the U.S. government keeps. (6) There are a number of others,and it is important to clarify the distinctions among them. (7) 
Probably the best known is the "state-sponsors of terrorism" list, which is pursuant to section6(j) of the Export Administration Act of 1979 ( P.L. 96-72 ; 50 U.S.C. app. 2405(j)(asamended)). The "specially designatedterrorists" (SDTs) list was generated pursuant to the International Emergency Economic Powers Act( P.L. 95-223 ; 50 U.S.C. 1701 et seq .). It was initiated under Presidential Executive Order 12947 on25 January 1995 and was specifically oriented toward persons (individuals and entities) who threatento disrupt the Middle East Peace Process. (13) 
The SDT, SDGT, state sponsors, and (as of October 2002) FTO lists were placed togetherin a new, larger roster called the "Specially Designated Nationals and Blocked Persons" (SDN) listmaintained by the Office of Foreign Assets Control of the Treasury Department. (15) 
There is also the so-called "Terrorist Exclusion List" or "TEL," which is pursuant to Section411 of the USA Patriot Act of 2001 ( P.L. The State Department maintains theTEL list. (See Appendix A.) The groups on the FTO list are stigmatized. It is true that the FTO list is generally considered the primarymeans of imposing sanctions against terrorist organizations. (27) Of course, the publicattention and diplomatic leverage that goes along with being on the better-known FTO list is notequalled; however, the point is that in terms of the results with respect to fighting an organization'sactivities, the U.S. sanctions regime is far more complicated than either being "on" the list or "off"the list would imply.
The purpose of this report is to provide Congress with an overview of the nature and statusof the designated foreign terrorist organizations list, as a potential tool in overseeing theimplementation and effects of U.S. legislation designed to sanction terrorists. It centers on the listof terrorist groups that are formally designated by the Secretary of State pursuant to section 219 ofthe Immigration and Nationality Act, as amended under the Antiterrorism and Effective DeathPenalty Act of 1996 ( P.L. 104-132 ). These groups are often collectively referred to as the "FTO list."
FTO list designations, which last for two years and must be renewed, occur after aninteragency process involving the departments of State, Justice, Homeland Security, and theTreasury. Since the designations can be challenged in court, they require a detailed administrativerecord often based on classified information. An organization that is placed on the FTO list issubject to financial and immigration sanctions, potentially including the blocking of assets, theprosecution of supporters who provide funds, refusal of visas, and deportations of members. Therehave been a number of designations and changes since the list was established, but it currentlyincludes thirty-six organizations. (See Appendix A.)
The FTO list is often confused with some of the other "terrorist lists" that are maintained bythe U.S. government. These include the "state-sponsors of terrorism" list, which is pursuant toSection 6(j) of the 1979 Export Administration Act ( P.L. 96-72 ; 50 U.S.C. app. 2405(6)(j)); the"Specially Designated Terrorists" (SDTs) list, which is pursuant to the International EmergencyEconomic Powers Act ( P.L. 95-223 ; 50 U.S.C. 1701 et seq .) and was initiated in 1995 underPresidential Executive Order 12947; the "Specially Designated Global Terrorists" (SDGT) list,initiated in 2001 under Presidential Executive Order 13224; and, finally, the "Specially DesignatedNationals and Blocked Persons" (SDN) list, a master list that contains the other lists. All of theseare summarized and maintained by the Office of Foreign Assets Control of the Treasury Department. Lastly, the "Terrorist Exclusion List" or "TEL," which relates to immigration and is pursuant toSection 411 of the USA Patriot Act of 2001 (8 U.S.C.1182) is maintained by the State Department. Like the FTO list, the TEL includes the names of terrorist organizations, but it has a broader standardfor inclusion, is subject to less stringent administrative requirements, and is not challengeable incourt. There is a complicated interplay among all of these lists, and it is important to distinguishthem from the better-known FTO list.
The FTO list has been of considerable interest to Congress, and there are arguments in favorand against it. It publicly stigmatizes groups and provides a clear focal point for interagencycooperation on terrorist sanctions; however, some argue that it is inflexible and misleading, sincegroups that are not on the list are still often subject to U.S. sanctions. The report concludes with adiscussion of potential policy options for Congress, including some of the recently proposedamendments to the legislation that establishes it. It will be updated as events warrant.