The document summarizes the Beslan hostage crisis that occurred in 2004 when terrorists took over 1200 people hostage in a school in Beslan, Russia for three days. Over half of the hostages were children. The crisis resulted in over 330 deaths. The document provides background on the conflict between Russia and Chechnya and the influence of radical Islam. It describes the planning of the attack and each day of the siege. It discusses the aftermath and memorials, as well as lessons learned about intelligence failures and the need to improve counter-terrorism policies and response.

1. Patrick T. Cannon
University of Maryland:CCJS 498D Crises Management and
Leadership
BESLAN HOSTAGE CRISES OF 2004
A Case Study in Tragedy

2. 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?

3. 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

4. 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.

5. 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 SleeperStage
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

6. 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.

7. 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.

8. “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

9. 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

10. 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

11. 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.

12. 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

13. 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.

14. Bibliography
Banovac,S., Dillon,P.,Hennessy,M.,Idoko,R.,Patters,C.,Paul,A.,.. . Stubbe,K.(2007 ). Anatomy of a
Terrorist Attack:Terror at Beslan A Chronicle of an On-Going Tragedy and GovermentsFailed
Responce. Pittsburg:MatthewB. RidgwayCenter.
BBC News.(2014, March 18). Chechnya profle.RetrievedfromBBCnews.com:
http://www.bbc.com/news/world-europe-18188085
Best,S. T. (2013, April ).Beslan:A School Tragedy. Gaithersburg:GaithersburgCityPolice Department.
Dunlop,J.B. (2009 ). The 2004 Beslan Incident:New Findings. Stanford: StanfordUniversity.Retrieved
fromhttp://iis-db.stanford.edu/pubs/22577/No_115_Dunlop_Beslan_2004.pdf
Gill,P.,& Phythian,M.(2012). Intelligence in a InsecureWorld. Mladen:PolityPress.
Gillmore,J., &Bazelies,B.(2014, April 29). Beslan SchoolHostageCrises. RetrievedfromCrimetv.com:
http://www.crimetv.com/page/true/massacres/beslan-school-hostage-crisis/877
Lukov,Y. (2005, September2). Beslan Siege Still a Mystery.RetrievedfromBBCnews.com:
http://news.bbc.co.uk/2/hi/europe/4205208.stm
Lynch,D. (2003). The Enemy is at The Gate: Russia AfterBeslan . Chatamhouse.org.
National ConsortiumforThe Studyof TerrorismandResponce toTerrorism. (2014, April 2). Terrorist
OrganzationsProfile.Retrievedfromstart.umd.edu:
http://www.start.umd.edu/tops/terrorist_organization_profile.asp?id=55
Omelicheva,M.Y. (2012, October15). AfterBeslan:Changesin Russia’sCounterterrorismPolicy.
RetrievedfromE-International Relations:http://www.e-ir.info/2012/10/15/after-beslan-
changes-in-russias-counterterrorism-policy/