1. The Boston Marathon Bombings:
Domestic Terrorism at America’s Oldest Race
Ashley Smith
26 March 2015
Conflict and Crisis Management

2. The Boston Marathon Bombings are a significant case study concerning both critical
incident management as well as domestic terrorism. Addressing both areas of interests, there are
a number of beneficial aspects to the protocols employed, as well as areas that require
improvement. To begin, thoroughly recounting the events of April 15, 2013 will provide the
basis for analysis. Understanding the timeline of events and what actions were taken by the
perpetrators and authorities will establish a foundation for critical analysis. Throughout this
assessment, the event will be considered in terms of critical incident response and management
and will include important concepts concerning this discipline. Applying the Tier Classification
System as well as the Phases of Crisis Management to the Boston Marathon Bombings offers a
comprehensive evaluation in terms of crisis management while leading to recommendations in
protocol and response tactics. In addition to considering the importance of critical incident
response and management, evaluating this event in terms of domestic terrorism is essential.
Understanding the ideology that led the bombers to commit this act of terror is an indispensible
component of deconstructing an attack. Finally, after addressing the aforementioned aspects of
the Boston Marathon Bombings, a comprehensive debriefing and critical analysis will
consolidate research and assessment into concise recommendations.
Understanding the Events
The Boston Marathon is the oldest organized annual marathon in the United States and is
held on Patriots’ Day to “commemorate the American Revolutionary War Battles of Lexington
and Concord” (Ray, 2014). Holding the race on this holiday, commemorating these battles, is
especially significant to Boston’s history, as a small number of colonists in the Boston area were
able to defeat the extensively trained and armed British troops. Furthermore, these battles signify

3. the beginning of the Revolutionary War, an event that began the rise of the United States into a
leading world nation. Spanning over twenty six miles, this 117 year old tradition was attended by
“hundreds of thousands of spectators” and included over twenty six thousand runners (Ray,
2014).
Considering the lengthy history of the marathon, as well as the high level of public
interest and participation in the event, city officials and urban planning committees had
developed historically sound security protocols. Despite the measures in place, the Boston
Marathon of 2013 was attacked, leaving three dead and over two hundred and sixty people
wounded (History, 2015). The attacks transpired on April 15, 2013 nearly five hours into the race
two explosions occurred within seconds of one another at 2:49pm (Morrison & O’Leary, 2015).
The bombs were placed and detonated on Boylston Street, near the finish line of the marathon
(CNN Library, 2015). Following the explosion, emergency personnel responded incredibly
quickly, transforming medical tents into mobile triage centers, allowing for immediate aid to be
applied to those injured in the blast (Biddinger et.al, 2013). Emergency medical personnel were
already standing by in different stages of the race, due to the physical nature of the event and
opportunity for injury. Though a fraction of the overall medical service staff, these responders
were able to begin immediately treating patients. Breaking protocol, emergency medical workers
did not wait until the scene was cleared before attending to the injured, likely one of the reasons
for the high survival rate (Levine, 2014). While medical personnel prepared patients for
transport, federal authorities assisted Boston police officers in crown control and incident
response.
Two hours after the detonation, reports surfaced of a suspect being held in custody
claiming he was injured and under police supervision at the hospital. Throughout the evening

4. and overnight, multi-organizational teams worked to collect evidence and piece the improvised
explosive devices (IED) back together, a daunting task considering the reported crime scene
spanned fifteen square blocks (Ray,2014). On April 19, 2013, police located the suspects by
means of public assistance as well as an informant and engaged in a fire exchange with Tamerlan
Tsarnaev, ultimately resulting in his death. After door-to-door sweeps of the suspected hiding
area, Watertown, a citizen ultimately discovered Dzhokhar Tsarnaev hiding in his boat under the
protective cover. A nearly twenty hours following the death of his brother and accomplice,
Dzhokhar Tsarnaev is taken into custody by officials. (Morrison & O’Leary, 2015).
Tier Classification System Applied
The Tier Classification System is a mechanism used to define and classify critical
incidents. The parameters for each tier indicate the severity of the incident, the frequency of such
an incident occurring, as well as the number and types of agencies that become involved in an
incident. This system is sold in definition, however may be considered fluid in its application, as
the severity of an incident and the necessary response may vary based on an agency’s resources.
Consider the diagram of a triangle, separated into three segments horizontally. The tier at the
point of the pyramid would be considered Tier One. These incidents are the most critical and
require the upmost resources and multi-agency participation. The tier directly under the first is
labeled Tier Two. This tier comprises incidents that are critical in nature, however are
manageable for a single agency to effectively conduct without outside assistance. Finally, Tier
three incidents, the lowest tier, are those incidents that occur within an agency and are the most
common of the critical incidents. (Vecchi, 2010).

5. Without question, the Boston Marathon Bombing would be considered a Tier One
Critical incident. To begin, the event itself required a great deal of city planning and preparation,
facilitating the reduction of Tier One conflict; occurring when conflict develops between
agencies during a Tier One incident, this often can become polarized and detrimental to incident
response (Vecchi, 2010). In response to the event, the Federal Bureau of Investigation (FBI),
Department of Homeland Security (DHS), and Federal Emergency Management Agency
(FEMA), were deployed to assist in the recovery and subsequent manhunt. This collaborative
effort resulted in a four day manhunt for the brother responsible, ending in the shooting death of
older brother Tamerlan Tsarnaev and arrest of younger brother Dzhokhar Tsarnaev.
Within the Tier Classification System, there are a number of other factors that should be
considered. To begin, a Tier One incident is multi-faceted and complex. Conflict between
agencies, though unapparent from reports, often surface during such events. Local enforcement
may develop animosity towards federal agencies, federal agencies may have conflicting strategy
on how to handle the situation at hand and there may be conflict as a result. In order abridge this
opportunity for tension to build, clearly defined roles and protocol that is applicable to a variety
of situations should be developed, considering the needs and abilities of all agencies involved.
Besides Tier One conflict, aspects of Tier Two conflict may also come into play in a catastrophic
event such as the Boston Marathon Bombings. Groups within an agency, whether at the local or
federal level often have various specialized groups with differing paradigms. In the case of an
incident such as the Boston Marathon Bombings, the sheer chaos and instability may cause
groups with opposing paradigms to disagree on strategy and therefore breed conflict between the
two entities. Similar to Tier One conflict, Tier Two conflict should be handled by implementing
protocol, creating clear leadership, and incorporating the goals and missions of each group into

6. the strategy. Finally, there are instances of possible Tier Three conflict in this crisis; most
noteworthy the death of Officer Sean Collier and near death of Officer Richard Donohue. Officer
Collier was allegedly killed by suspects Tamerlan Tsarnaev and Dzhokhar Tsarnaev (History,
2015). Officer Donohue nearly bled out after being shot in a fire exchange with the suspects;
Tamerlan Tsarnaev died in the exchange (Murphy, 2015). Losing a fellow officer is an acute
cause of Tier Three conflict. Chronic examples that may plague the agency would include the
stress associated with the event, either the bombing or shoot out with suspects, and the
ramifications of that stress, such as post-traumatic stress disorder, emotional instability, or
substance abuse. (Vecchi, 2010).
Phases of Crisis Management in Boston
The phases of crisis management are perhaps one of the most significant contributors to
the effective handling of this critical incident. The four phases of crisis management include
mitigation, preparedness, response and recovery (FEMA, 2007). Creating a solid and practiced
set of protocols that may be applied to a critical incident is paramount in urban and city planning.
Though the bombings did occur, breeching security, the ability of the city to mobilize and treat
victims was an incredible testament to the importance of developing a comprehensive crisis
management plan.
Mitigation is the first, fundamental step in crisis management and can be considered the
forethought and preventative measures to reduce the possibility of an attack and the effects if a
critical incident were to occur. In Boston, there were a number of mitigating steps taken to
reduce the possible damage. Prior to the event, millions of dollars in security funding were put
into the event. Additionally, there was the development of a numerous training programs to

7. handle a variety of situations. Furthermore, creating positive relationships with federal
enforcement and incorporating them the day of the event was another significant mitigating
factor.
Following mitigation is preparedness. This stage could be considered the planning,
training, and preparation phase. Preparedness includes the identification of possible threats,
developing strategy and protocol to handle those threats if they were to occur, practicing said
procedure, and being able to execute this method of neutralization. In the case of Boston, the
city’s level of preparedness was exemplary. Training for the parade itself included training that
prepared for the presence of IEDs and ran through drills with the collaboration of FEMA (Pera,
2014). In addition to the training of security personnel, Boston’s medical community had
developed a close relationship with emergency management personnel. In fact, “for more than a
decade, emergency managers in Boston’s medical community have been refining plans for mass-
casualty events,” including consulting literature reviews and symposiums, as well as training and
preparation for events with the potential for multiple incidents (Biddinger et. Al 2013). Having
been prepared for the injuries associated with the race itself, medical personnel were on
heightened alert, facilitating impressive medical response and contributing to the reduction of
casualties.
The response to the bombs detonated at the Boston Marathon was incredibly destructive
for those in the immediate vicinity. Nonetheless, the response to this crisis was impressive.
Response is the literal handling of the critical incident, including the deployment of emergency
personnel, possible federal aid, creating a perimeter to secure the scene, and subsequent pursuit
of the suspects. The response in Boston was unprecedented for the nation. While the actual
response of emergency personnel was admirable, the manhunt for the suspects that ensued

8. following was unlike anything in recent history. Officials began reaching out to the public for
assistance in locating persons of interest, which eventually turned into a viable source and, thus,
suspects. This identification prompted officials to make an unparalleled move by putting the
town of Watertown on lock down, disabling public transportation, and conducting door-to-door
searches for the suspects (Siddiqui, 2013). Once located, a fire exchange ensued between
Tamerlan Tsarnaev, while Dzhokhar Tsarnaev fled in a vehicle before transitioning to a getaway
on foot, however was eventually cornered after hiding out in a resident’s boat. Though
controversial, the response to this critical incident was unquestionably effective.
Following the response to the crisis, recovery is the final step in the emergency
management cycle. Beginning after the incident, this is the effort in the community to “return to
normalcy” following a critical incident (Vecchi, 2010). In Boston, the recovery process was
lengthy, but the city was able to rally around the mantra, “Boston Strong.” Besides raising
morale, this incident highlighted the changes required for future marathons, as well as other large
public gatherings in an undefined public space. Perhaps the most symbolic moment in the
recovery phase was the overwhelming show of support for the marathon and its runners the
following year.
The Boston Marathon Bombings as Domestic Terrorism
The events of April 15, 2013 were an indisputable act of domestic terrorism. Tamerlan
Tsarnaev, while Dzhokhar Tsarnaev, the individuals responsible for the attack, developed an
ideology to justify mass destruction. Ideology is a critical component of a terrorist’s agenda, as
this is the entity that drives their mission and is cause for the incitement of critical incidents. This
concept is a collection of goals held by an individual or group that are developed in the context

9. of intellect and emotion (Vecchi, 2010). The actual mission of the group can vary and have
different motivations; however those involved in the practice are acting by force to achieve that
goal, as they believe it cannot be accomplished otherwise. Domestic terrorism encompasses the
aforementioned delineation of terrorism, however specifies that the terrorist attack is perpetrated
by a citizen of that nation. Originally from Kyrgyzstan and of Chechen decent, Tamerlan
Tsarnaev was awaiting his official citizenship while Dzhokhar Tsarnaev was a naturalized citizen
of the United States, qualifying the attack as an act of domestic terrorism (Committee on
Homeland Security, 2014).
In the case of the Boston Marathon bombings, the Tsarnaev brothers shared an ideology
stemming from extremist Islamic beliefs. Following an investigation, authorities confirmed that
the suspects’ knowledge of bomb construction derived from an al-Qaeda in the Arabian
Peninsula sponsored internet publication (Cooper et. al, 2013). Though the Tsarnaev brothers did
not have confirmed ties with al-Qaeda, their ideology is strikingly similar. Tamerlan Tsarnaev,
especially, developed an extremist ideology; so much so that Russia and the United States were
both monitoring his behavior as a potential threat (Committee on Homeland Security, 2014).
Though there are many similarities in ideology to international Islamic radical groups, ultimately
investigators determined that the brothers “self radicalized” by means of the internet and social
media (Ray, 2014). The internet played a critical role in the radicalization of Tamerlan Tsarnaev.
Following an investigation, a number of extremist videos posted on YouTube were found to be
frequently accessed by the brother. The core of his ideology dealt with his perception of the
vilification of Muslims world-wide and the unfair treatment of this group.
The Boston Bombing was an ideal target for the Tsarnaev brothers in executing their
attack. To begin, this event is of considerable size, providing an increased number of victims.

10. Additionally, the media presence throughout the race is noteworthy. This is an important factor
considering goals of an attack. Despite the ideological mission, the ability to incite fear and
uncertainty throughout a population is incredibly appealing to those who commit such acts.
Furthermore, the spectacle created by the media’s tendency to over sensationalize acts of terror
ensures the scope of the attack to be incredibly magnified. Perhaps a latent appeal of the Boston
Marathon includes the historical value of the race. The Tsarnaev brothers, having lived in the
Boston area for some time, understood the significance of the race in the city’s culture. The
Boston Marathon is the oldest organized race in the world having been held for one hundred and
seventeen years in 2013 when the bombings occurred. Additionally, the significance of the race
falling on Patriot’s Day cannot be ignored, as the occasion celebrates America’s first steps to
independence. This independence would, of course, lead to the rise of the United States as a
major world power, subsequently increasing global reach and influence in the Middle East.
Attacking an event that celebrates the American spirit overtly challenges the ideals of the United
States in an aim to destroy the values Islamic extremists deem as perverted.
Debriefing and Recommendations
The Boston Marathon Bombings certainly demonstrates sound critical incident
management. This event presents a unique security issue, as it is an organized event with clear
boundaries, however is in the midst of the general public. The marathon spans 26.2 miles, a
significant distance, especially when taking into consideration the metropolitan environment
surrounding this route. The urban nature of the track exposes it to the public, therefore increasing
its vulnerability; unlike an event in a structure where the perimeter may be secured. Heightening
security measures as seen in the 2014 Boston Marathon would discourage and likely thwart a

11. significant percentage of attacks. Additionally, including federal agents in large scale events such
as the Boston Marathon would also be incredibly beneficial. Besides fostering an improved
relationship between federal, state and local officials, reducing Tier One conflict; if a critical
incident were to occur representatives from all parties would be present instantaneously. Multi-
agency presence allows for the most immediate and accurate assessment of the necessary
resources.
In addition to security strategy, there was a troublesome issue in monitoring Tamerlan
Tsarnaev. Though indicated as a security threat to Russia as well as the United States, Tsarnaev’s
ability to move discretely was a casualty of human failure, as his name was inputted incorrectly
into the system. The Department of Homeland Security released in a review that as a result of the
Boston Marathon Bombings, it has improved its “name matching capabilities,” a tool that is
paramount in the mitigation of terrorism (Levine, 2014). While this is a notable improvement,
creating a method to fix this problem would prevent attacks such as this in the future. Further
examining the use of databases, creating a database to cross check known terror threats with
major public events could create a list of individuals to monitor, perhaps with the development of
an algorithm to identify those most likely to pose a threat. Though being alerted of such presence
in a public event not requiring tickets is unlikely, employing checks or GPS capability may be a
way to further effectiveness in the prevention of attack.
Overall, the response to the Boston Marathon Bombings was effective and adhered to the
mandates of the National Incident Management System, proving the effectiveness of the
protocols (Leonard et. al 2014). Understanding the elements of the emergency planning that were
effective during this crisis and the ability to identify and improve those elements that were
subpar will assist in the protection of similar events in the future. Boston may demonstrate this

12. notion most effectively, as emergency personnel were able to respond swiftly and efficiently;
ultimately reducing the number of casualties. Additionally, creating a strategy following
concepts of critical incident management, such as the Tier Classification System or the Phases of
Crisis Management, ensure cohesiveness and effectiveness. Finally, and perhaps most pressing,
is the ability to fully understand the ideology of Domestic Terrorists, be able to identify and track
them, and create a system to better identify potential targets. There is no way to completely
remove the threat of attack, however with intelligence gathering, careful planning, and the
execution of strategy; it is possible to reduce both the risk and severity of attack.

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