Patrick T. Cannon University of Maryland: CCJS 498D Crises Management and

Leadership

BESLAN HOSTAGE CRISES OF 2004 A Case Study in Tragedy

Abstract

In September 2004, 32 terrorists took over 1200 men, women, and children hostage in a

public school gymnasium in the border town of Beslan in North Ossetia. For three days, these

hostages were deprived food, water, and even a place to go to the bathroom. Negations were

tenses and finally on the third day, hell broke loose. To this day there is no official number of

how many died. We do know that almost half were children. This paper will look into questions

asked by the public. How did this tragedy happen? Where there any lessons learned? Will there

be justice?

1. Background: The Russo-Chechen Conflict and Radical Islam.

a. History of Russia and Chechnya

b. Influence of Islam and Nationalism

2. The Crises: “We Desire Death More Then You”

a. The Sleeper Stage

b. The Big Bang

3. The Lingering Cloud: Tragedy in the School Yard

a. Memorials and Tears/Russia’s Retaliation

4. Resolution for Beslan: Was there Justice?

5. Lessons Learned in Bloodshed

a. Intelligence Failure

b. Counter-Terror Response and Policy

6. Communication and Leadership

7. Conclusion: How big is the War on Terror?

Background: The Russo-Chechen Conflict and Radical Islam

The history between Russia and Chechnya is a long and bloody one spanning back to the

mid 1800’s. Persecution by Russia over this time had created deep rooted hatred by the time the

Soviet Union collapsed. In the fall they sought independence but were met with more opposition

and bloodshed, war became insurgency and insurgency became terrorism that thrived under the

banner of radical Islam. History and radical Islamic influence are the key to understanding why

the Beslan Hostage Crises took place, and why it ended the way it did. Beslan is located in North

Ossetia, it plays the role of a border town between Chechnya and Russia. Beslan is no stranger to

violence, countless other attacks have taken place between Russian and Chechnya’s forces.

Map of Conflict Area (Banovac, et al., 2007 )

History of Russia and Chechnya

Chechnya was officially declared a part of the former Soviet Union in 1934, but was

conjured by Russia in 1858. During Joseph Stalin’s reign many Chechnya’s were exiled form

their homeland under accusations of treason against the Russian government. They were

eventually let back into the cachous in 1957 by Nikita Khrushchev. Like many other soviet

satellites, once the berlin wall came down and the Soviet Union collapsed Chechnya declared

independence in 1991 from Russia.

By 1992 they had ratified a constitution declaring themselves an independent and

sovereign state. The 1st Russo-Chechen conflict began in 1994 when Russia sent troops into the

now independent Chechnya to reclaim it. This first war ended in 1996 when President Dzhokhar

Dudayev was assassinated in a Russian missile strike. In May of that year President Boris Yeltsin

and ZemlikhanYandarbiyev sign a peace agreement that does not last long, but ultimately a cease

fire is declared in November. In 1998 conflict would resume, igniting the second Chechen-Russo

conflict. This war would have two phase: a battle phase and an insurgency phase. After the first

year Russian forces were so overwhelming that Chechen rebels resort to insurgent/guerilla style

warfare. This would carry on until 2009.

Influence of Islam and Nationalism

Chechnya has always had a distinctive Muslim population within its borders. Even in

1858 when the state was conquered by Russia, the people of Chechnya wished to establish it as

an Islamic state. In 1999, President Aslan Maskhadov declared that Shri’alaw (Islamic law

according to the Quran) would be phased in within a three year period (BBC News , 2014).

Some rebels even went to the extent of forming another government centered on Islamic law.

When Chechnya first sought independence it was purely on the basis of Nationalist/Separatist

ideology. Simply put they wanted a free and independent Chechnya, at the same time this

occurred radical Islam was on the rise an unknown to most of the world a small group of jihadist

just formed the world’s largest Islamic movement; known today as Al-Qaeda.

There are a few terrorist/insurgent groups in Chechnya but three are very influential and

work with each other very closely. The Islamic International Peacekeeping Brigade (IIPB) is one

of the largest, founded by Shamil Basyev in 1998. The group has made it known that “the IIPB

main objective is not only the creation of an independent Chechen state, but one that is governed

by Islamic fundamentalist law” (National Consortium for The Study of Terrorism and Responce

to Terrorism , 2014). They share members with the Special Purpose Islamic Regiment (SPIR),

and through this many terrorist scholars believe a third group was formed as a result; the

Riyadus-Salikhin Martyrs' Brigade. This was the group responsible for the Beslan attack, they

are famous for their use of Shahidka or “Black Widows” in their operations.

The Crises: “We Desire Death More Then You”

The three day siege that took place in the town of Beslan was horrific and forever

changed the perspective of the populace. The three day siege was a bloody turning point in the

second Russo-Chechen war. This attack was highly coordinated and measures were taken before

hand to ensure the initial attack went off without a hitch. During the actual siege the fog of war

played a role, creating tense situations that proved to be fatal.

The Sleeper Stage

Several measure were taken by the terrorists before September 1st that allowed a smooth

take over. First the night before on August 31st the terrorist snuck into the school to stash

weapons, explosives, and ammunition in the floor boards and ceilings within the school. “The

intelligence indicating that the perpetrators had previously entered the school was later

confirmed by hostages who testified that they were ordered to help remove the weapons…”

(Banovac, et al., 2007 ). The wiring of explosives was also premeditated, intelligence confirmed

that all wires and necessary triggers were premade and precut to correct lengths. Russian

intelligence would also confirm that the group had schematics of the school and that one member

of the group was a former student years before.

“Russian forces retrieved a video cassette showing a recorded instruction session for the

group that carried out the attack on Beslan.” (Banovac, et al., 2007 ). Though this was recovered

after the incident it plays into the sleeper stage by highlighting the fact that this attack was

planned down to the tiniest detail. This was no random act “On August 18, 2004, the MVD

confirmed that an attack was being planned” (Banovac, et al., 2007 ). Reports later showed that

police officers in the town were killed prior to the attack, delaying a counter response. One report

indicated that “In the hours prior to the attack, further investigation revealed that the perpetrators

would have needed to pass through four police checkpoints” (Banovac, et al., 2007 ).

The Big Bang

Day One: September 1st 2004, it is the first day of school, also known as the “Day of

Knowledge”. Thousands gather, parents, young school children, and teachers gather outside to

celebrate. At 9:30am arriving in vans and an armored truck, 32 heavily armed terrorist split into

two teams. Team one begins herding the large crowd into the school shooting rounds into the air.

The second team slips into the school to prevent any escapes and begins to set up explosives on

all the windows and doorways. The 1200 hostages are corralled into the school gymnasium,

during the chaos 50 young children and adults managed to escape undetected.

Tactical Sketch of Scene inside the Gymnasium (Best, 2013).

Once inside the terrorists also rigged explosives in the basketball hoops above the huddled mass

of hostages. They then began to execute any adult males they deemed would become “trouble”

some of the bodies they threw out of the second floor windows. Not actual security response or

communication occurred until 4:30pm that day. An account of a survivor of the incident later

stated “perpetrators were organized into distinct groups: the leaders, those specialized in

explosives, the jailers, and finally, a group organized to ward off any Russian response”

(Banovac, et al., 2007 ).

Day Two: September 2nd 2004, Temperatures inside the gymnasium reached over 100

degrees, many of the hostages begin to become dehydrated, and defecate where they sit. Many

have not eaten in almost 48 hours. The second day was filled with back and forth negotiations

between Russian forces and the terrorists. At first Leonid Roshal, a doctor got on the phone with

the terrorists and initiated negations. Nothing came of these talks, later that day the following

statement was released to Russian forces.

From Allah's servant Shamil Basayev to President Putin.

“Vladimir Putin, it wasn't you who started this war. But you can finish it if you have

enough courage and determination of de Gaulle. We offer you a sensible peace based on mutual

benefit by the principle independence in exchange for security. In case of troops withdrawal and

acknowledgement of independence of Chechen Republic of Ichkeria, we are obliged not to make

any political, military or economic treaties with anyone against Russia, not to accommodate

foreign military bases on our territory even temporarily, not to support and not to finance groups

or organizations carrying out a military struggle against RF, to be present in the united rouble

zone, to enter CIS. Besides, we can sign a treaty even though a neutral state status is more

acceptable to us. We can also guarantee a renunciation of armed struggle against RF by all

Muslims of Russia for at least 10 to 15 years under condition of freedom of faith. We are not

related to the apartment bombings in Moscow and Volgodonsk, but we can take responsibility

for this in an acceptable way. The Chechen people are leading a nation-liberating struggle for

its freedom and independence, for its self-protection rather than for destruction or humiliation of

Russia. We offer you peace, but the choice is yours” (Banovac, et al., 2007 ).

Allahu Akbar

Former Soviet General Ruslan Aushev, was the only qualified negotiator sent and the only

person to have face to face contact with the terrorists. He helped negotiate the release of 26

hostages, who were predominantly nursing mothers and infants.

Day Three: September 3rd 2004, terrorists allow medical personnel to approach the

school to remove the dead in the front yard form two days earlier. Upon this approach around

10:30 am, two explosions occurred. These explosions set the school ablaze and a firefight began

between Russian forces and the Terrorists inside lasting from 10:30am-11:30am. During the

chaos not only did Russian forces move in to takedown fleeing terrorists, parents and onlookers

who armed themselves jumped into the fray as well. While this was all going on the fire raged on

collapsing the roof of the school collapsed inward. Fighting continued till well past 2100 hours,

early that afternoon the fire was extinguished. Russian forces perused fleeing suspects and killed

31 terrorists and captured one, he was then taken into custody 25 year old Nur-Pasha Kulayev.

Hundreds of children and adults were taken to nearby hospitals for treatment and care.

The Lingering Cloud: Tragedy in the School Yard

With an estimated 250-330 dead (an estimate that is still disputed) the lingering cloud

over Beslan did and does continue to cast a shadow over its people. Even to this day the people

of Beslan still feel that it could happen again. Days of memorial, years of tears, and counter-

terror policy changes took place following the tragedy. The question some experts still ponder is

whether this cloud ever really went away.

Memorials and Tears/Russia’s Retaliation

On order of President Vladimir Putin, the people of Russia publicly mourned the tragedy.

The public cried out for answers. The government was silent at best, tracking down know

associates but providing the public much. Many questioned how this could happen. Temporary

memorials in the town of Beslan were erected for families of the victims to morn. After the

incident Russian authorities tracked down organizer and financers of the attack:

Kameal Rabat Bouralha- suspected organizer, smoked checked September 2004

Abu Omar al-Saif- accused financer, smoked checked December 2005

Abu Zaid Al-Kuwaiti- accused organizer, smoke checked February 2005

None of these players were not Chechnya born, this was due to the financer of the groups

involved. Al-Qaeda is a major component of the lingering cloud, there backing of Chechen

Nationalist groups allows groups like IIPB and SPIR to continue to operate and be effective in

the region, and this can be seen as the conflict continued until 2009. Russia still deems these

groups a threat despite the assassinations of key leaders such as Shamil Basyev in 2006. Russia

also declare Chechnya as part of the “War on Terror”.

Resolution for Beslan: Was there Justice?

Many things occurred years after Beslan in attempt to resolve the tragedy. The first was

the life sentence handed down to Nur-Pasha Kulayev, the only terrorist captured alive that day.

Economical resolutions were also given to the victims though the amounts were minimal and not

substantial to assist in personnel recovery of victim’s families. The town itself used local funds

to erect lasting memorials, the first being the “City of Angels”, the second being the gymnasium

itself. Despite this many locals feel nothing had changed, Russia’s change in counter-terror

policy to some has not helped not improved tensions. Many laws were passed, the Russian

government continued to pursue terrorist groups, but the War on Terror still rages. In away with

Russia still plagued by terrorist groups like IIPB and SPIR a resolution has not come to pass, and

the shadow of that day still lingers, recreating a new sleeper stage.

Lessons Learned in Bloodshed

Those who do not learn from history are doomed to repeat it. From Beslan many tactical

and intelligence based lessons were learned. Ironically these are similar lessons learned by the

United States post 9/11. Many scholars have listed Beslan as part of a 9/11 series of attacks

following the attack on the United States. These include:

1. Bali Night Club Bombing of 2002

2. Beslan Hostage Crises 2004

3. Madrid Train Bombing 2004

4. London Subway Attack 2005

The commonality in these attacks is all country’s had troops deployed in the Middle East

conducting counter operations against Al-Qaeda and associated groups.

Intelligence Failure

One lesson learned was that of intelligence. Investigation post crises revealed that

relevant and important intelligence was gathered that may have led to the prevention of the

school take over. Months leading up to the crises there were event that indicated that an attack

like this was in the works and the groups had intentions of executing it:

June 21st-22nd, a raid occurs on a military armory in Ingushetian, armored

vehicles, weapons, and ammunition are seized.

August 18th, Russian Ministry of Internal Affairs (MVD) intelligence

confirms the possibility of an attack and relays this intelligence to all regional

police commanders.

August 21st, MVD officials release another statement saying “security

services in the region to provide or increase security at educational facilities”

(Banovac, et al., 2007 ).

August 31st, MVD official release the august 21st statement again.

We can see from this timeline that the information was present, warnings were issued, but

something got lost in translation. The intelligence theory Richard Betts discuss three levels of

intelligence failure, collection, analysis, and decision-makers (Gill & Phythian, 2012). According

this was a failure at the decision maker, but not federal, it was a local decision maker’s failure.

Not only was the attack confirmed but twice regional police commanders were warned to

heighten security around educational facilities.

Counter-Terror Response and Policy

In the wake of the Beslan incident, President Putin issued new polices involving counter-

terrorism law in Russia. After the event “President Putin embarrassed by its inability to prevent

and respond to terrorist threat pledged to strengthen the state authority” (Omelicheva, 2012).

Before and during Beslan Russia’s counter-terrorism approach was primitive, “The lack of a

comprehensive program of prevention and the use of excessive force as a primary means of

combating terrorism have undermined Russia’s efforts to limit the growth of terrorism in

Russia’s regions” (Omelicheva, 2012). In the wake of this tragedy Russia developed more long

term approaches, labeling Chechnya as part of the “War on Terror” and allying themselves with

the United States and England for counter-terrorism approach.

Communication and Leadership

During this crises communication and leadership had analytic pitfalls abound. Before we

discuss the bad, there were some positive aspects. Some successful negations allowed the release

of 26 hostages from the school and establishment of who the terrorist were. Aside from this

communication and leadership were almost non-exist. As stated in the learning section regional

police commanders did not head federal warnings for an attack, this crippled the local counter-

terrorism response. On the federal level President Putin believed the attack to first be a diversion

for a secondary attack on the Kremlin, only realizing on day two that federal troops were needed.

On scene the lack of unified command among the dozens of local and federal troops

present created a disorganized command scene (a giant cluster fuck). Even with all these troops

and police on scene, they still could not stop civilians from arming themselves and joining in the

fray when the firefight began. While civilian assistance is admirable and courageous, it often will

impede military or law enforcement intervention, causing more harm than good. A final failure

in both areas was the lacked/nonexistent border security between Chechnya and North Ossetia.

Had proper border polices been enforced, these 32 terrorists would not been able to cross into

Beslan. Many of the perpetrators were wanted or had previously been detained by security

forces.

Conclusion: How big is the War on Terror?

Terrorist and all its grammatical variations, is the buzzword of the day. Terrorism has

existed long before modern history, but it has gained momentum over the last 150 years as a

means of political change and protest. In the rubric we are asked if the crises was resolved, the

answer is simple; no. despite changes in strategy, policy and advances in the field of terrorism

studies, we are a behind the eight ball. This is the new enemy, average everyday citizens who

blend in with the rest of society, and whether it’s the Russians or us here in the United States this

new violent extremism is everywhere. The good news is we may not be able to stop it completely

but we can fight it. We need to continue to learn and adapt out strategy, todays effective plan

won’t work to on tomorrow’s group. It biology, we have to continue to evolve and adapt if we

wish to limit the damage and turn the tide. The future is here, and be need to get ready.

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