If you were working in their shoes and, by chance, you came across a group of men who had photographs of police, etc. doing whatever AND maps, training manuals and fake passports, what would you do with them?
(the key word is 'and')
I worked in law enforcement for a decade or so. I don't know everything about law enforcement, and my knowledge isn't current, but I know some things.
A lot depends upon the circumstances under which I came in contact with them. At the very least, I'd make field interview cards on them, no matter what else I did. I'd also check them for wants and warrants. But I'd do that with nearly anyone I came in contact with. If they were wanted for any crimes, I'd take them into custody on that basis.
Let's presume that they were
'behaving suspiciously' and attracted my attention, and during the course of my interviewing them, one of them spilled a bag with the items you described in them. A fake US passport is illegal in and of itself, so that would give me probable cause for an arrest. However, if I could not determine the passport's authenticity, and they had committed no crimes that I could ascertain, I would make notes about what I found and release them.
I would of course file an incident report with my department and if I thought they might be involved in terrorist activity, I'd notify the DHS or their local representative. If I could reach the DHS during working hours and they requested a hold be put on the men, I'd do that.
Laws have to be for the purpose they say they're intended for, or I believe they will not pass a test for constitutionality. You cannot make laws prohibiting photography of police officers (for example) when what you really want to do is not prohibit photography of police officers, but catch terrorists who photograph police officers. It doesn't work that way. That's making a status criminal out of every photographer who happens to have a police officer somewhere in his or her frame when they snap a shutter, and making it possible for the Barney Fife's in the LEO world to decide to enforce it 'as written' instead of as you intended it.
In the past, there were laws such as you describe. They were known under the catch-all of 'Jim Crow' laws in the USA. Laws requiring literacy tests prior to voting were not 'really' to make sure people could read before voting, they were to make sure blacks didn't vote. Such laws have been struck down, and rightfully so.
Terrorists and would-be terrorists are caught by good intelligence, good investigative work, good cooperation between local, state, and federal law enforcement agencies, and thorough understanding of the people they are trying to catch. They are not caught (to the best of my knowledge) by rousting random citizens who take photos of police officers until one of them just happens to be a bad guy - in my opinion.