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You don't think acts like that terrorize the masses at large?
I have to address this separately. With terrorism, the result doesn't always matter. The behaviors of some Blackhawk contractors intended to commit the criminal act - not send a message to the masses. This is a distractor and why people have difficult labeling terrorists.
People in American cities have been terrorized over serial killers at large. Does this mean that the serial killer is a terrorist? Does he really intend to act out his bad behaviors to convince or terrorize anybody other than his victim? The result isn't what makes a terrorist.