[Analytical Perspectives]
[Crosscutting Programs]
[3. Homeland Security Funding Analysis]
[From the U.S. Government Printing Office, www.gpo.gov]
Since the terrorist attacks of September 11, 2001, America has engaged
in a broad, determined effort to thwart terrorism, identifying and
pursuing terrorists abroad and implementing an array of measures to
secure our citizens and resources at home. The Administration has worked
with the Congress to reorganize the Federal Government, acquire
countermeasures to biological weapons, enhance security at our borders,
transportation systems, critical infrastructure and local communities,
and strengthen America's preparedness and response capabilities. To
build upon these accomplishments, the President signed landmark
legislation to reorganize America's intelligence agencies and implement
other recommendations of the 9/11 Commission, the Intelligence Reform
and Terrorism Prevention Act of 2004. These are elements of our national
homeland security strategy--to prevent terrorist attacks within the
United States, reduce America's vulnerability to terrorism, and minimize
the damage from attacks that may occur--involving every level of
government, the private sector, and individual citizens. Since September
11th, homeland security has remained a major policy focus for all levels
of government, and one of the President's highest priorities.
To underscore the importance of homeland security as a crosscutting
Government-wide function, section 889 of the Homeland Security Act of
2002 requires a homeland security funding analysis to be incorporated in
the President's Budget. This analysis addresses that legislative
requirement. It covers the homeland security funding and activities of
all Federal agencies, not only those carried out by the Department of
Homeland Security (DHS), and discusses State, local, and private sector
expenditures. In addition, not all activities carried out by DHS
constitute homeland security funding (e.g., Coast Guard search and
rescue activities), so DHS estimates in this section do not represent
the entire DHS budget.
Federal Expenditures
The Federal spending estimates in this analysis utilize funding and
programmatic information collected on the Executive Branch's homeland
security efforts. \1\ Throughout the budget formulation process, the
Office of Management and Budget (OMB) collects three-year funding
estimates and associated programmatic information from all Federal
agencies with homeland security responsibilities. These estimates do not
include the efforts of the Legislative or Judicial branches. Information
in this chapter is augmented by a detailed appendix of account-level
funding estimates, which is available on the Analytical Perspectives CD
ROM.
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\1\ All data in the Federal expenditures section are based on the
President's policy for the 2006 Budget. Additional policy and baseline
data is presented in the ``Additional Tables'' section. Due to rounding
differences, data in this section may not add to totals in other Budget
volumes.
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To compile these data, agencies report information using standardized
definitions for homeland security. The data provided by the agencies are
developed at the ``activity level,'' which is a set of like programs or
projects that make up a coherent effort, at a level of detail sufficient
to analyze total governmental spending on homeland security.
To the extent possible, this analysis maintains programmatic and
funding consistency with previous estimates. Some discrepancies from
data reported in earlier years arise due to agencies' improved ability
to extract terrorism-related activities from host programs and refine
their characterizations. \2\ As in the Budget, where appropriate, the
data is also updated to reflect agency activities, Congressional action,
and technical re-estimates. In addition, the Administration may refine
definitions or mission area estimates over time based on additional
analysis or changes in the way specific activities are characterized,
aggregated, or disaggregated. Activities in many of the mission areas
are closely related. For example, information gleaned from activities in
the intelligence and warning category may be utilized to inform law
enforcement activities in the domestic counterterrorism category.
Augmentation of pharmaceutical stockpiles, categorized as emergency
preparedness and response, may address agents that represent
catastrophic threats.
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\2\ For the estimates in this section, the significant changes of this
type are: 1) a change to estimates in the U.S. Coast Guard to reflect
distribution of defense-related funding consistent with appropriations,
2) a change to estimates to capture additional resources for plant and
animal monitoring and surveillance programs in the Animal and Plant
Health Inspection Service, and 3) a change to estimates to remove
resources for the Health Resources and Services Administration's poison
control activities. Historical data has been adjusted to reflect these
changes. Major changes to the classification of homeland security
activities will be reviewed pursuant to section 889 of the Homeland
Security Act of 2002.
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Total funding for homeland security has grown significantly since the
attacks of September 11, 2001. For 2006, the President's Budget includes
$49.9 billion for homeland security activities, a $3.9 billion (8.6
percent) increase over the 2005 level, excluding DHS' Project BioShield.
\3\ The 2006 level is more than $29 billion above, or approximately 240
percent, of the 2002 level of $20.7 billion. Excluding mandatory
funding, the Department of Defense, and DHS' Project BioShield, the 2006
Budget proposes a gross discretionary increase of $2.9 billion (8.3
percent) over the 2005 level. The Budget also proposes to increase
aviation security fees to allow the Government to recover most of the
cost of Federal aviation screening operations. Including this
[[Page 38]]
fee proposal, the net non-defense discretionary increase from 2005 to
2006 is 3.1 percent.
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\3\ The Department of Homeland Security Appropriations Act, 2004,
provided $5.6 billion for Project BioShield, to remain available through
2013. Pursuant to that Act, specific amounts became available in 2004
($0.9 billion) and 2005 ($2.5 billion) that are intended to cover
programmatic activities through 2008. The remainder will become
available in 2009. Including this uneven funding stream can distort
year-over-year comparisons.
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A total of 33 agencies comprise Federal homeland security funding. Of
those, five agencies--the Departments of Homeland Security (DHS),
Defense (DOD), Health and Human Services (HHS), Justice (DOJ) and Energy
(DOE)--account for approximately 92 percent of total Government-wide
homeland security funding in 2006:
Table 3-1. HOMELAND SECURITY FUNDING BY AGENCY
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2004 2004 2005 2006
Budget Authority Enacted Supplemental Enacted * Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture.................................. 411.1 ............ 599.9 703.7
Department of Commerce..................................... 124.6 ............ 166.7 183.2
Department of Defense...................................... 7,024.0 ............ 8,570.1 9,513.5
Department of Education.................................... 8.0 ............ 23.8 22.7
Department of Energy....................................... 1,364.0 ............ 1,562.0 1,665.8
Department of Health and Human Services.................... 4,062.2 ............ 4,230.3 4,406.7
Department of Homeland Security............................ 22,832.7 90.7 24,870.7 27,332.5
Department of Housing and Urban Development................ 1.7 ............ 2.0 1.9
Department of the Interior................................. 82.9 ............ 65.0 57.1
Department of Justice...................................... 2,164.9 15.5 2,677.8 3,103.6
Department of Labor........................................ 52.4 ............ 56.1 47.9
Department of State........................................ 696.4 ............ 824.1 938.1
Department of Transportation............................... 283.5 ............ 181.7 191.5
Department of the Treasury................................. 90.4 ............ 101.1 110.5
Department of Veterans Affairs............................. 271.3 ............ 280.4 298.9
Corps of Engineers......................................... 101.5 ............ 89.0 72.0
Environmental Protection Agency............................ 131.0 ............ 106.8 184.3
Executive Office of the President.......................... 35.0 ............ 29.5 22.4
General Services Administration............................ 78.9 ............ 65.2 79.8
National Aeronautics and Space Administration.............. 207.0 ............ 218.0 205.0
National Science Foundation................................ 340.0 ............ 342.2 344.2
Office of Personnel Management............................. 3.0 ............ 3.0 3.8
Social Security Administration............................. 143.4 ............ 159.4 177.5
District of Columbia....................................... 19.0 ............ 15.0 15.0
Federal Communications Commission.......................... 1.0 ............ 1.6 3.5
Intelligence Community Management Account.................. 1.0 ............ 72.4 55.8
National Archives and Records Administration............... 16.0 ............ 17.1 20.2
Nuclear Regulatory Commission.............................. 66.8 ............ 59.2 61.0
Postal Service............................................. ........... ............ 503.0 ...........
Securities and Exchange Commission......................... 5.0 ............ 5.0 5.0
Smithsonian Institution.................................... 78.3 ............ 75.0 86.6
United States Holocaust Memorial Museum.................... 8.0 ............ 8.0 8.7
Corporation for National and Community Service............. 22.8 ............ 17.0 20.4
----------------------------------------------------
Total, Homeland Security Budget Authority.................. 40,727.7 106.2 45,998.2 49,942.9
Less Department of Defense............................... -7,024.0 ............ -8,570.1 -9,513.5
----------------------------------------------------
Non-Defense Homeland Security Budget Authority excluding 33,703.7 106.2 37,428.1 40,429.5
BioShield.................................................
Less Fee-Funded Homeland Security Programs............... -3,289.1 ............ -3,941.0 -5,889.5
Less Mandatory Homeland Security Programs................ -1,940.2 ............ -2,225.1 -2,302.0
----------------------------------------------------
Net Non-Defense Discretionary, Homeland Security Budget 28,474.4 106.2 31,262.0 32,237.9
Authority excluding BioShield.............................
Plus BioShield........................................... 885.0 ............ 2,508.0 ...........
Net Non-Defense Discretionary, Homeland Security Budget 29,359.4 106.2 33,770.0 32,237.9
Authority including BioShield.............................
----------------------------------------------------
Obligations Limitations
Department of Transportation Obligations Limitation...... 139.8 ............ 57.7 54.6
----------------------------------------------------------------------------------------------------------------
* Excludes $16M in supplemental appropriations provided to the Coast Guard in 2005.
The growth in Federal homeland security funding is indicative of the
efforts that have been initiated to secure our Nation. However, it
should be recognized that fully developing the strategic capacity to
protect America is a complex effort. There is a wide range of potential
threats and risks from terrorism. To optimize limited resources and
minimize the potential social costs to our free and open society,
homeland security activities should be prioritized based on the highest
threats and risks. Homeland security represents a partnership among the
Federal Government, State and local govern
[[Page 39]]
ments, the private sector, and individual citizens, each with a unique
role in protecting our Nation.
The National Strategy for Homeland Security provides a framework for
addressing these challenges. It guides the highest priority requirements
for securing the Nation. As demonstrated below, the Federal Government
has used the National Strategy to guide its homeland security efforts.
For this analysis, agencies categorize their funding data based on the
critical mission areas defined in the National Strategy: intelligence
and warning, border and transportation security, domestic
counterterrorism, protecting critical infrastructures and key assets,
defending against catastrophic threats, and emergency preparedness and
response. In all tables, classified funding for the Intelligence
Community is combined with the Department of Defense and titled
``Department of Defense.''
The National Strategy is a dynamic document; it includes actions that
agencies use and must build upon to measure progress. In some cases,
progress may be easily measured. In others, Federal agencies, along with
State and local governments and the private sector, are working together
to develop measurable goals. Finally, in some areas, Federal agencies
and partners must continue to develop a better understanding of risks
and threats--such as the biological agents most likely to be used by a
terrorist group or the highest-risk critical infrastructure targets--in
order to develop benchmarks.
This chapter highlights some significant results from OMB's
Performance Assessment Rating Tool (PART), as well as some major
performance metrics and milestones. These are not an exhaustive list of
homeland security PART results, measures, or milestones; nor are they
exempt from the performance measurement challenges highlighted above.
However, they do illustrate the Government's efforts in building a more
robust architecture to measure homeland security performance.
The following table summarizes funding levels by the National
Strategy's mission areas; more detailed analysis is provided in
subsequent mission-specific analysis sections.
Table 3-2. HOMELAND SECURITY FUNDING BY NATIONAL STRATEGY MISSION AREA
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2004 2004 2005 2006
Agency Enacted Supplemental Enacted Request
----------------------------------------------------------------------------------------------------------------
Intelligence and Warning................................... 242.2 ............ 349.8 431.9
Border and Transportation Security......................... 15,840.8 90.7 17,550.2 19,285.8
Domestic Counterterrorism.................................. 3,379.3 12.3 3,944.5 4,468.7
Protecting Critical Infrastructure and Key Assets.......... 12,279.1 2.5 14,939.4 15,632.2
Defending Against Catastrophic Threats..................... 2,974.2 0.7 3,399.2 3,898.3
Emergency Preparedness and Response........................ 6,002.6 ............ 5,765.2 6,121.6
Other...................................................... 9.6 ............ 49.8 104.5
----------------------------------------------------
Total, Homeland Security Budget Authority................ 40,727.7 106.2 45,998.2 49,942.9
Plus BioShield........................................... 885.0 ............ 2,508.0 ...........
----------------------------------------------------
Total, Homeland Security Budget Authority, including 41,612.7 106.2 48,506.2 49,942.9
BioShield...............................................
----------------------------------------------------------------------------------------------------------------
National Strategy Mission Area: Intelligence and Warning
The intelligence and warning mission area covers activities to detect
terrorist threats and disseminate terrorist-threat information. The
category includes intelligence collection, risk analysis, and threat-
vulnerability integration activities for preventing terrorist attacks.
It also includes information sharing activities among Federal, State,
and local governments, relevant private sector entities (particularly
custodians of critical infrastructure), and the public at large. It does
not include most foreign intelligence collection--although the resulting
intelligence may inform homeland security activities--nor does it fully
capture classified intelligence activities. In 2006, the bulk of the
funding for intelligence and warning is in DHS (61 percent in 2006),
primarily in the Information Analysis and Infrastructure Protection
(IAIP) Directorate and the Secret Service, DOJ (21 percent in 2006),
primarily in the Federal Bureau of Investigation (FBI), and the
Intelligence Community Management Account (13 percent in 2006). 2006
funding for intelligence and warning activities would increase by 23
percent over the 2005 level.
Table 3-3. INTELLIGENCE AND WARNING FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2004 2004 2005 2006
Agency Enacted Supplemental Enacted Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture.................................. 0.8 ............ 6.3 22.3
Department of Homeland Security............................ 236.0 ............ 226.4 262.4
Department of Justice...................................... 2.0 ............ 44.2 90.9
Department of the Treasury................................. 2.5 ............ 0.6 0.6
Intelligence Community Management Account.................. 1.0 ............ 72.4 55.8
----------------------------------------------------
Total, Intelligence and Warning.......................... 242.2 ............ 349.8 431.9
----------------------------------------------------------------------------------------------------------------
The major requirements addressed in the intelligence and warning
mission area include:
Unifying and enhancing intelligence and analytical
capabilities to ensure officials have the information they
need to prevent attacks; and
Implementing the Homeland Security Advisory System and other
information sharing and warning mechanisms to allow Federal,
State, local, and private authorities to take action to
prevent attacks and protect potential targets.
The recently-passed Intelligence Reform and Terrorism Prevention Act
of 2004, supported by executive orders on information sharing,
management of the in
[[Page 40]]
telligence community, and the National Counterterrorism Center, will
improve the Nation's intelligence and warning capabilities. The new
Director of National Intelligence (DNI) is empowered to set collection
and analysis priorities, which will help ensure that homeland security
requirements are addressed. The DNI is also empowered to ensure that
information sharing takes place across the intelligence community. These
changes implement the recommendations of the 9/11 Commission, and should
allow the intelligence community to ``connect the dots'' more
effectively, develop a better integrated system for identifying and
analyzing terrorist threats, and issue warnings more rapidly.
In addition, the newly created National Counterterrorism Center (NCTC)
is specifically chartered to centralize U.S. Government terrorism threat
analysis and ensure that all agencies receive relevant analysis and
information. The NCTC will serve as the primary organization in the U.S.
Government for analyzing and integrating all intelligence pertaining to
terrorism and counterterrorism (excepting purely domestic terrorism);
operate as the central and shared knowledge bank on known and suspected
terrorists and international terror groups; and ensure that agencies, as
appropriate, have access to and receive the all-source intelligence
support needed to execute their counterterrorism plans or perform
independent, alternative analysis. NCTC is tasked to coordinate
counterterrorism operations on a global basis and develop strategic,
operational plans for the Global War on Terrorism. The NCTC will use
this capability to allocate requirements to the agencies with the assets
and capabilities to address them. NCTC will not direct operations,
leaving mission execution to the appropriate agencies. This structure
will ensure that the chain of command remains intact and prevent
bureaucratic micromanagement of counterterrorism missions. Taken
together, the creation of the NCTC and recent legislation and executive
orders will ensure that counterterrorism assets are better allocated and
coordinated to produce improved indications and warning intelligence to
benefit homeland security.
These structural changes complement ongoing efforts to improve
information sharing. The Information Systems Council (ISC) established
by Executive Order 13356, ``Strengthening of Terrorism Information to
Protect Americans,'' was directed to establish an interoperable
terrorism ``environment'' to automate information sharing among the
homeland security, law enforcement, and intelligence communities. The
ISC recently reported to the President a plan to improve sharing of
terrorism information through the establishment of an interoperable
terrorism information sharing ``environment.'' The proposed plan
includes a vision for the future of the environment, including
additional functions and capabilities, and a four-phase plan for moving
forward, including near-term solutions to address gaps. The environment
will enable the interchange of information between appropriate Federal,
State, and local authorities and the private sector while protecting the
privacy rights and civil liberties of Americans.
As discussed above, the DNI and the NCTC will continue to utilize the
unique assets and capabilities of other Government agencies--some of
which are reorganizing to improve these capabilities and better
interface with the new intelligence structure. After 9/11, the FBI
created an Office of Intelligence to establish intelligence requirements
and coordinate information collection and sharing. The 2005 Department
of Justice Appropriations Act and the Intelligence Reform and Terrorism
Prevention Act directed the FBI to re-designate the Office of
Intelligence as the Directorate of Intelligence. The new Directorate
supervises all national intelligence programs of the FBI, oversees field
intelligence operations, and is developing an FBI intelligence career
service. The 2006 Budget provides $117 million in new funding for FBI to
enhance its intelligence programs. Performance measures that will be
used by the FBI program include the percentage of intelligence products
meeting all standards and the percentage of investigations that are
intelligence-based.
The Department of Homeland Security's Information Analysis and
Infrastructure Protection Directorate (IAIP) will also contribute to the
new intelligence structure. By maintaining and expanding its partnership
the NCTC, IAIP will continue to coordinate its activities with other
members within the newly reorganized intelligence community. IAIP was
established as part of DHS to fill a unique role: mapping threat
information against our nation's vulnerabilities and working with the
Federal, State, and local government officials and private sector
custodians of critical infrastructure to mitigate those vulnerabilities.
IAIP's Office of Information Analysis, which is the Department's
intelligence division, centralizes analysis and information about
[[Page 41]]
threats to homeland security. IAIP is also the focal point for
disseminating information to states and local entities. For example,
IAIP is connected to homeland security directors of States and
territories through the Homeland Security Information Network (HSIN).
All fifty States and major urban areas are now connected to HSIN. In
2006, HSIN will be rolled out to major counties as well. In addition,
IAIP's analysis informs the Secretary as he administers the Homeland
Security Advisory System.
National Strategy Mission Area: Border and Transportation Security
This mission area covers activities to protect border and
transportation systems, such as screening airport passengers, detecting
dangerous materials at ports overseas and at U.S. ports-of-entry, and
patrolling our coasts and the land between ports-of-entry. The majority
of funding in this mission area ($18.2 billion, or 94 percent, in 2006)
is in DHS, largely for the U.S. Customs and Border Protection (CBP), the
Transportation Security Administration (TSA), and the Coast Guard. Other
DHS bureaus and other Departments, such as State and Agriculture, also
play significant roles. The President's 2006 request would increase
funding for border and transportation security activities by 10 percent
over the 2005 level.
Table 3-4. BORDER AND TRANSPORTATION SECURITY FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2004 2004 2005 2006
Agency Enacted Supplemental Enacted Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture.................................. 147.9 ............ 163.1 164.2
Department of Homeland Security............................ 14,941.7 90.7 16,560.6 18,207.3
Department of Justice...................................... 20.1 ............ 34.5 20.8
Department of State........................................ 663.9 ............ 778.2 878.4
Department of Transportation............................... 67.2 ............ 13.9 15.1
----------------------------------------------------
Total, Border and Transportation Security................ 15,840.8 90.7 17,550.2 19,285.8
----------------------------------------------------------------------------------------------------------------
Securing our borders and transportation systems is a complex task.
Security enhancements in one area may make another avenue more
attractive to terrorists. Therefore, our border and transportation
security strategy aims to make the U.S. borders ``smarter''--targeting
resources toward the highest risks and sharing information so that
frontline personnel can stay ahead of potential adversaries--while
facilitating the flow of legitimate visitors and commerce. The creation
of DHS, which unified the Federal Government's major border and
transportation security resources, facilitates the integration of risk
targeting systems and ensures greater accountability in border and
transportation security. Rather than having separate systems for
managing goods, people, and agricultural products, one agency is now
accountable for ensuring that there is one cohesive border management
system.
In 2005 and 2006, the Administration will focus on implementing
Homeland Security Presidential Directive (HSPD) 11, Comprehensive
Terrorist-Related Screening Procedures. Although resources related to
screening are spread throughout mission areas, the majority are captured
in border and transportation security because of the sizable Federal
efforts to screen people, cargo, and conveyances as they cross U.S.
borders or travel through U.S. transportation systems. A cohesive
screening system is a key element of a smart border strategy.
Internally, DHS will modify its own organizational structure to
consolidate screening programs previously spread throughout the
Department's components. The new Screening Coordination and Operations
Office (SCO) will manage the two DHS centerpiece screening programs: US-
VISIT, which screens international travelers arriving at our ports of
entry; and the Secure Flight program, which conducts automated screening
of all domestic aviation passengers. At least nine other existing
programs will also be consolidated, including the Free and Secure Trade
(FAST) and the Transportation Worker Identification (TWIC) card
programs. DHS is also leading the HSPD-11 interagency effort to
implement a coordinated approach to terrorist-related screening in
immigration, law enforcement, intelligence, counterintelligence, border
and transportation systems, and critical infrastructure. This effort
covers diverse areas, from information sharing to screener training. SCO
will play a central coordinating role. The 2006 Budget includes more
than $800 million in discretionary, fee-funded, and mandatory resources
to support SCO.
Key to the Federal government's screening of international visitors is
the US-VISIT program, which will be incorporated into SCO. US-VISIT is
designed to expedite the clearance of legitimate travelers while
identifying and denying clearance to those who may intend to do harm. In
2004 and 2005 the first phases of US-VISIT were successfully deployed.
The 2006 Budget includes a $50 million increase for accelerated
deployment of US-VISIT at land border ports of entry and for enhancing
border personnel's access to immigration, criminal, and terrorist
information. Through 2006, over $1.4 billion will be appropriated to
support this initiative.
In the area of aviation security, the Administration continues to
strengthen multiple layers of security implemented in the wake of the
September 11th attacks. The Federal Government will continue to improve
the
[[Page 42]]
airport screening system to ensure that it provides effective security
with less bother to travelers. TSA will refine its training programs and
screening procedures to ensure a balance among security needs, screening
efficiency, and traveler privacy. While maintaining the more than 10,000
screening devices at 448 airports, TSA will also begin to upgrade
equipment and address technology gaps, such as screening for explosives
on higher risk passengers and property. TSA will receive an increase of
more than $400 million over 2005 for aviation security. Improved
domestic and international passenger prescreening systems and processes
will be fully implemented in 2006 to ensure that higher risk passengers
receive scrutiny before boarding aircraft. The Budget also proposes to
set aviation security fees at a level that allows the Government to
recover most of the cost of Federal aviation screening operations.
Outside of passenger and baggage screening, DHS has recently proposed
a comprehensive set of air cargo security requirements. The rulemaking
process should be completed this year. The Budget will support a strong
air cargo prescreening and regulatory enforcement program in CBP and
TSA, and air cargo technology research and development program in the
DHS Science and Technology (S&T) Directorate. In addition, the S&T
Directorate will continue its R&D program on the viability of
countermeasures that could be placed on commercial aircraft to defend
against the threat of shoulder-fired missiles. The Budget provides $110
million to test these systems to determine operational, safety, and
reliability issues.
The security of our seaports is critical since terrorists may seek to
use them to enter the country or introduce weapons or other dangerous
materials. With 95 percent of all U.S. cargo passing through the
Nation's 361 ports, a terrorist attack on a seaport could be
economically devastating. The Maritime Transportation Security Act
(MTSA) and its implementing regulations, issued by DHS in October 2003,
require ports, vessels, and facilities to conduct security assessments.
In 2006, the Coast Guard will continue implementation of MTSA to ensure
compliance with port and vessel security standards and regulations.
The 2006 Budget provides more than $2 billion for port security across
DHS, including $1.9 billion in discretionary funding for Coast Guard
port security activities such as Maritime Safety and Security Teams and
harbor patrols for ports with liquefied natural gas terminals. In
addition, the Coast Guard budget funds operations to strengthen
intelligence collection and surveillance capabilities in the maritime
environment, both of which contribute to the broader Coast Guard effort
to enhance Maritime Domain Awareness.
To secure our borders while also maintaining openness to travel and
trade, CBP utilizes a risk-based, layered security approach. Overall
funding for CBP homeland security activities in 2006 would increase by
more than $150 million over the 2005 level, with enhancements supporting
additional inspectors at ports-of-entry, additional Border Patrol
agents, inspection equipment, enhancements to tracking and targeting
databases, and information technology upgrades. Further, through its
Container Security Initiative (CSI), CBP has addressed an area of
identified risk--the security of international shipping containers. CSI
screens cargo containers at foreign ports before the containers are
placed on ships bound for the United States. The 2006 Budget requests
$138 million for CSI.
A major focus across mission areas for 2006 is the effort to upgrade
our radiological and nuclear detection capability. The 2006 Budget
provides $178 million to CBP (along with an increase for radiological
and nuclear detection research, discussed below) to defend against
radiological and nuclear threats by deploying current non-intrusive
inspection technologies and piloting next-generation radiation detection
technologies. The 2006 PART on the Inspection Technology program found
that while the program is lacking in specific targets to measure long-
term success, it has a very clear program purpose and sound management.
To ensure detention and removal of illegal aliens present in the U.S.,
the 2006 Budget also supports a $176 million increase for the Detention
and Removal Program. This includes funding to expand the program to
apprehend alien fugitives and to increase efforts to ensure that aliens
convicted of crimes in the U.S. are deported directly from correctional
institutions after their time is served. A 2005 PART found this program
moderately effective because DHS Immigration and Customs Enforcement
(ICE) has reorganized its operations and engaged in significant
strategic and performance planning efforts to identify ambitious goals
to improve program performance.
The State Department is the second largest agency contributor to
border and transportation security. The Bureau of Consular Affairs
Border Security program consists of visa, passport and American Citizen
Services programs. The State Department Border Security program
underwent a PART analysis in 2004, 2005 and 2006 budgets, and was found
to be effective. The analysis determined that State, working in
coordination with the other border and transportation security agencies,
has effectively targeted programs and funding, established achievable
annual and long term goals as well as developed thoughtful policies that
not only secure processes related to screening of all travelers to the
US but also facilitate legitimate travel. The 2006 Budget includes
funding in State for technology related to increased interviews,
screening, and information sharing between Federal agencies on visa
applicants; the development and production of new machine-readable
biometric U.S. passports; and for increased interoperability of border
security and counterterrorism systems between State, DHS, and FBI.
[[Page 43]]
National Strategy Mission Area: Domestic Counterterrorism
Funding in the domestic counterterrorism mission area covers Federal
and Federally-supported efforts to identify, thwart, and prosecute
terrorists in the United States. The largest contributors to the
domestic counterterrorism mission are law enforcement organizations: the
Department of Justice (largely for the FBI) and DHS (largely for ICE),
accounting for 53 and 45 percent of funding for 2006, respectively. The
President's 2006 request would increase funding for domestic
counterterrorism activities by 13 percent over the 2005 level.
Table 3-5. DOMESTIC COUNTERRORISM FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2004 2004 2005 2006
Agency Enacted Supplemental Enacted Request
----------------------------------------------------------------------------------------------------------------
Department of Homeland Security............................ 1,703.7 ............ 1,867.0 2,008.8
Department of Justice...................................... 1,608.4 12.3 1,999.0 2,372.7
Department of Transportation............................... 21.0 ............ 20.0 22.0
Department of the Treasury................................. 45.2 ............ 54.9 61.0
Social Security Administration............................. 1.0 ............ 3.7 4.2
----------------------------------------------------
Total, Domestic Counterterrorism......................... 3,379.3 12.3 3,944.5 4,468.7
----------------------------------------------------------------------------------------------------------------
Since the attacks of September 11th, preventing and interdicting
terrorist activity within the United States has become a priority for
law enforcement at all levels of government. The major requirements
addressed in the domestic counterterrorism mission area include:
Developing a proactive law enforcement capability to prevent
terrorist attacks.
Apprehending potential terrorists.
Improving law enforcement cooperation and information
sharing to enhance domestic counterterrorism efforts across
all levels of government.
Over the past three years, FBI has transformed its organization and
established priorities to ensure that protecting the U.S. from terrorist
attack is its primary focus. To support this transformation, resources
have been shifted from lower priority programs, counterterrorism
analytical capability has been enhanced, additional field investigators
have been hired, and headquarters oversight and management of terrorism
cases has been strengthened. Overall, FBI resources in the domestic
counterterrorism category have increased from $0.9 billion in 2002 to
over $1.7 billion in 2006, with the 2006 Budget providing an increase of
approximately $300 million over the 2005 level. The increase will
support a range of activities, such as counterterrorism investigations
and countering cyber crime. To specifically promote information sharing
efforts, it includes an additional $17 million for FBI to upgrade its
Integrated Automated Fingerprint Identification System. This will
enhance system capacity, speed, and capabilities, and will promote
information sharing between the FBI, DHS, and other agencies.
By merging existing immigration and customs enforcement functions into
ICE, the Department of Homeland Security created one of America's
largest law enforcement agencies. The Nation is better prepared to
apprehend potential terrorists because DHS has combined the information
and resources to identify and investigate illegal activities--such as
smuggling, identity theft, and money laundering, and trafficking in
dangerous materials. The 2006 PART found that the investigative arm of
ICE, the Office of Investigations, has made significant progress in the
integration of former customs and immigration investigators, and has
started to reap the benefits of additional investigative authorities.
However, the program must institute stronger financial and management
controls to ensure appropriate expenditure and budgeting of resources
and to hold managers and agency partners accountable for performance
results. The 2006 Budget provides an increase of $34 million to expand
these enforcement activities.
The interagency Terrorist Screening Center (TSC) is a hub for domestic
counterterrorism activity. TSC was established in September 2003
pursuant to HSPD-6 in order to consolidate terror screening watch lists
and to support Federal screeners worldwide. In its first year, TSC has
created a single point for terrorist screening data; established a
round-the-clock call center for officials encountering suspects;
coordinated response for Federal, State, and local law enforcement; and
instituted a formal process for tracking encounters. TSC staff, who
include participants from DOD, DHS, DOJ, State, and other agencies,
currently field nearly 100 calls per day from Federal, State, and local
law enforcement representatives. The 2006 Budget provides $104 million
for TSC, a $75 million increase over 2005, to enable TSC to meet its
increasing responsibilities, particularly in support of the DHS Secure
Flight program.
[[Page 44]]
National Strategy Mission Area: Protecting Critical Infrastructure and
Key Assets
Funding in the protecting critical infrastructure and key assets
mission area captures the efforts of the U.S. Government to secure the
Nation's infrastructure, including information infrastructure, from
terrorist attacks. Protecting the Nation's key assets is a complex
challenge because an estimated more than 85 percent are not Federally-
owned. DOD reports the largest share of funding in this category for
2006 ($8.7 billion, or 56 percent), and includes programs focusing on
physical security and improving the military's ability to prevent or
mitigate the consequences of attacks against personnel and bases. DHS
has overall responsibility for prioritizing and executing infrastructure
protection activities at a national level and accounts for $2.8 billion
(18 percent) of 2006 funding. A total of 26 other agencies report
funding to protect their own assets and to work with States, localities,
and the private sector to reduce vulnerabilities in their areas of
expertise. The President's 2006 request increases funding for activities
to protect critical infrastructure and key assets by $0.7 billion (5
percent) over the 2005 level.
Securing America's critical infrastructure and key assets is a complex
task. The major requirements include:
Unifying disparate efforts to protect critical
infrastructure across the Federal Government, and with State,
local, and private stakeholders.
Building and maintaining a complete and accurate assessment
of America's critical infrastructure and key assets and
prioritizing protective action based on risk.
Enabling effective partnerships to protect critical
infrastructure.
Reducing threats and vulnerabilities in cyberspace.
Table 3-6. PROTECTING CRITICAL INFRASTRUCTURE AND KEY ASSETS FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2004 2004 2005 2006
Agency Enacted Supplemental Enacted Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture.................................. 36.9 ............ 150.7 129.3
Department of Defense...................................... 6,543.8 ............ 7,916.9 8,700.8
Department of Energy....................................... 1,256.4 ............ 1,456.1 1,481.0
Department of Health and Human Services.................... 162.8 ............ 168.3 170.3
Department of Homeland Security............................ 2,128.3 ............ 2,585.9 2,820.0
Department of Justice...................................... 409.2 2.5 455.8 566.1
Department of Transportation............................... 180.1 ............ 137.0 141.2
Department of Veterans Affairs............................. 239.2 ............ 242.9 262.3
National Aeronautics and Space Administration.............. 207.0 ............ 218.0 205.0
National Science Foundation................................ 313.0 ............ 315.2 317.2
Social Security Administration............................. 142.1 ............ 155.0 172.6
Postal Service............................................. ........... ............ 503.0 ...........
Other Agencies............................................. 660.4 ............ 634.6 666.3
----------------------------------------------------
Total, Protecting Critical Infrastructure and Key Assets. 12,279.1 2.5 14,939.4 15,632.2
----------------------------------------------------------------------------------------------------------------
IAIP is the focal point for DHS infrastructure protection efforts, and
is responsible for prioritizing and addressing requirements at a
national level. IAIP maintains the National Asset Database, which
catalogues critical infrastructure and key assets. IAIP leverages
tactical intelligence with a risk-based strategy that identifies
critical infrastructures in targeted areas, assesses the vulnerabilities
of that infrastructure, and recommends protective measures. IAIP
conducts site visits and assessments of more than 1,000 sites each year,
and has used this information to develop site security guidelines for
nuclear power plants and chemical facilities. Security guidelines are
also being developed for all infrastructure sectors, covering spent
nuclear fuel, petroleum refineries, natural gas facilities, and
railroads, for example. In addition, IAIP trains State and local
officials and infrastructure owners to improve security in the areas
immediately surrounding critical sites. The 2006 Budget provides $530
million for IAIP activities in the protecting critical infrastructures
and key assets mission area. In addition, the Administration proposes
$600 million for Targeted Infrastructure Protection (TIP) grants.
Awarded through the Office of State and Local Government Coordination
and Preparedness, TIP grants and assistance will supplement state and
local infrastructure protection efforts, especially detection and
security investments.
Cyberspace security is a key element of infrastructure protection
because the internet and other computer systems link infrastructure
sectors. The consequences of a cyber attack could cascade across the
economy, imperiling public safety and national security. To address this
threat, DHS has established the National Cyber Security Division (NCSD)
to identify, analyze and reduce cyber threats and vulnerabilities,
coordinate incident response, and provide technical assistance. Since
its formal establishment in 2003, NCSD has worked with the private
sector to improve security of the Na
[[Page 45]]
tion's information infrastructure. For example, it coordinated the
response and mitigation of the Blaster worm and SoBig virus. NCSD has
also established the U.S. Computer Emergency Response Team (US-CERT).
US-CERT supports watch and warning capability responsible for tracking
incident and trend data, ranking associated severity, and generating
real-time alerts. $73 million is requested for the NCSD in 2006.
HSPD-7, signed in December 2003, established a national policy to
protect critical infrastructures and key resources from attack, ensure
the delivery of essential goods and services, and maintain public safety
and security. Under HSPD-7, DHS is responsible for coordinating Federal
critical infrastructure protection efforts. To provide a consistent
structure to integrate critical infrastructure protection, DHS has an
interim National Infrastructure Protection Plan. Under the plan's
framework, DHS will coordinate the infrastructure protection efforts of
other Federal departments and agencies. A number of agencies rely on
specialized expertise and long-standing relationships with industry in
conducting infrastructure protection activities.
Recognizing that each infrastructure sector possesses it own unique
characteristics, a sector-specific agency has been designated to oversee
infrastructure protection efforts for each sector. Consequently, sector-
specific agencies are pursuing infrastructure protection efforts in
concert with DHS. For example, the Department of Energy is coordinating
protection activities within the energy sector. The Department of
Agriculture is protecting agricultural resources, a source of essential
commodities, through research and testing programs. There are 13
critical infrastructure sectors and nine sector-specific agencies.
The Environmental Protection Agency (EPA), the water sector-specific
agency under HSPD-7, guides the protection of water infrastructure
through training and technical support for water utilities and grants
for State water security coordinators. In 2006, EPA will address the
HSPD-9 requirement to lead the development of surveillance and
monitoring systems for water quality. EPA will introduce Water Sentinel,
a program to develop and demonstrate cost-effective, real-time sampling
and analysis capabilities at critical points in a water system for early
detection of disease, pest, or poisonous agents. The Administration's
request for $44 million in 2006 will fund Water Sentinel as a pilot
program in five major cities.
National Strategy Mission Area: Defending Against Catastrophic Threats
The defending against catastrophic threats mission area covers
activities to research, develop, and deploy technologies, systems, and
medical measures to detect and counter the threat of chemical,
biological, radiological, and nuclear (CBRN) weapons. The agencies with
the most significant resources in this category are HHS ($2.0 billion,
or 51 percent, of the 2006 total), largely for research in the National
Institutes of Health, and in DHS, mostly for the Directorate of Science
and Technology (S&T) ($1.2 billion, or 31 percent, of the 2006 total),
to help develop and field technologies to counter CBRN threats. The
President's 2006 request would increase funding for activities defending
against catastrophic threats by 15 percent over the 2005 level.
The major requirements addressed in this mission area include:
Developing countermeasures, including broad spectrum
vaccines, antimicrobials, and antidotes.
Preventing terrorist use of CBRN weapons through detection
systems and procedures, and improving decontamination
techniques.
A key element in addressing these requirements is developing and
maintaining adequate countermeasures for a CBRN attack. This not only
means stockpiling countermeasures that are currently available, but
developing new countermeasures for agents that currently have none and
next-generation countermeasures that are safer and more effective than
those that presently exist. Also, unlike an attack with conventional
weapons, a CBRN attack may not be immediately apparent. Working to
ensure earlier detection and characterization of an attack helps protect
and save lives.
Table 3-7. DEFENDING AGAINST CATASTROPHIC THREATS FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2004 2004 2005 2006
Agency Enacted Supplemental Enacted Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture.................................. 168.2 ............ 222.7 317.2
Department of Commerce..................................... 60.0 ............ 73.4 84.7
Department of Defense...................................... 146.8 ............ 178.2 158.9
Department of Energy....................................... ........... ............ 7.5 62.8
Department of Health and Human Services.................... 1,754.1 ............ 1,901.8 1,971.5
Department of Homeland Security............................ 774.0 ............ 936.1 1,212.1
Department of Justice...................................... 27.9 0.7 33.5 43.0
National Science Foundation................................ 27.0 ............ 27.0 27.0
Nuclear Regulatory Commission.............................. 16.2 ............ 19.0 21.2
----------------------------------------------------
Total, Defending Against Catastrophic Threats............ 2,974.2 0.7 3,399.2 3,898.3
----------------------------------------------------------------------------------------------------------------
[[Page 46]]
The Federal Government is addressing these requirements. The DHS
Biological Countermeasures Office budget request is $385 million in
2006, a $22 million increase over 2005. This program received an
effective PART rating, demonstrating significant accomplishments for a
new program. Within the Biological Countermeasures Office, new vaccine
research funds will target specific vaccines that can be used to defend
our food supply from the intentional or accidental introduction of
foreign animal diseases into the country. These vaccines will help
protect the Nation from the catastrophic economic consequences that a
major disease outbreak would cause. Funds are also requested for a
National Agrodefense Facility that will be able to analyze pathogens in
large animals. The 2006 Budget also includes $59 million for the
Department of Agriculture to complete a state-of-the-art animal disease
research and diagnostic facility at Ames, Iowa.
The Budget continues to invest in efforts to decrease the time between
an attack and implementation of Federal, State and local response
protocols. The Science and Technology Directorate will expand and
enhance the BioWatch environmental monitoring program, which samples and
analyzes air in over 30 metropolitan areas to continually check for
dangerous biological agents. The program is designed to provide early
warning of a large-scale biological weapon attack, allowing the
distribution of life-saving treatment and preventative measures before
the development of serious and widespread illnesses.
The Administration maintains HHS' investment in developing medical
countermeasures to CBRN threats, investing nearly $1.8 billion, an
increase of $56 million over 2005 and $1.7 billion over the level prior
to September 11th (this includes funding for programs focused on
chemical and radiological and nuclear countermeasures referenced below).
HHS will continue to improve human health surveillance with $79 million
dedicated to the BioSense program (collecting information from
hospitals, emergency departments, and laboratories to identify ``real-
time'' trends), increasing laboratory capacity, and augmenting the
number and quality of border health and quarantine stations. The Food
and Drug Administration and the U.S. Department of Agriculture will also
conduct surveillance to ensure the security of the food supply.
Information collected from these programs will be disseminated to the
National Biosurveillance Integration Center at DHS.
In addition, the Administration proposes to double the amount of
spending on chemical agent R&D conducted by DHS, including $36 million
in additional spending on non-traditional chemical agent threats,
enhancing our ability to detect and counter these weapons. This funding
level includes the creation of a state-of-the-art materials testing
facility that will be housed with the Department of Defense chemical
countermeasures programs. The National Institutes of Health will also
devote $50 million to research chemical agent countermeasures.
To protect against a nuclear or radiological weapon entering the
country, a new Domestic Nuclear Detection Office (DNDO) is being created
in the Department of Homeland Security. The DNDO will be responsible for
developing and deploying a comprehensive system to detect and report any
attempt to import a nuclear explosive device or radiological material.
This Office will have oversight of all research and development for
detection, identification, and reporting of radiological and nuclear
materials. It will also be responsible for establishing response
protocols to ensure that the detection of a nuclear explosive device or
radiological material leads to timely and effective action by military,
law enforcement, emergency response, and other appropriate government
assets.
The Administration is requesting $262 million in DHS R&D funds for
advanced detection devices to minimize the likelihood that a
radiological or nuclear device could enter the United States; this more
than doubles the amount provided in 2005. This R&D program will be
integrated with our overseas non-proliferation and border security
efforts to keep these devices out of the hands of terrorists and outside
the borders of this country. The DNDO will also work with CBP on its
pilot program to deploy next-generation radiation detectors. Finally,
the Office will work with State and local grant recipients to best
deploy their radiation detection assets to work in concert with Federal
detection efforts.
National Strategy Mission Area: Emergency Preparedness and Response
Table 3-8. EMERGENCY PREPAREDNESS AND RESPONSE FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2004 2004 2005 2006
Agency Enacted Supplemental Enacted Request
----------------------------------------------------------------------------------------------------------------
Department of Defense...................................... 333.3 ............ 469.0 651.4
Department of Energy....................................... 107.6 ............ 98.4 122.1
Department of Health and Human Services.................... 2,145.3 ............ 2,160.2 2,264.9
Department of Homeland Security............................ 3,049.0 ............ 2,655.8 2,725.8
Other Agencies............................................. 367.3 ............ 381.9 357.5
----------------------------------------------------
Total, Emergency Preparedness and Response.............. 6,002.6 ............ 5,765.2 6,121.6
Plus BioShield......................................... 885.0 ............ 2,508.0 ...........
----------------------------------------------------
Total, Emergency Preparedness and Response including 6,887.6 ............ 8,273.2 6,121.6
BioShield...............................................
----------------------------------------------------------------------------------------------------------------
The Emergency Preparedness and Response mission area covers agency
efforts to prepare for and minimize the damage from major incidents and
disasters, particularly terrorist attacks that endanger lives and
property or disrupt government operations. The mission area encompasses
a broad range of agency incident management activities, as well as
grants and other assistance to States and localities. DHS maintains the
largest share of funding in this category ($2.7 billion, or 45 percent,
for 2006), mainly for preparedness grant assistance to State and local
first responders. HHS, the second largest contributor ($2.2 billion, or
37 percent, in 2006), also assists States and localities to upgrade
public health capacity. A total of 24 other agencies include emergency
preparedness and response funding. A number maintain specialized
response assets that may be called upon in select circumstances, and
others report only funding for their agency's internal preparedness
capability. Excluding BioShield, in the President's 2006 Budget, funding
for emergency preparedness and response activities would increase by
$0.4 billion (6 percent) over the 2005 level. The major requirements
addressed in this mission area include:
Establishing measurable goals for national preparedness and
ensuring that Federal funding supports these goals
Ensuring that Federal programs to train and equip States and
localities meet national pre
[[Page 47]]
paredness goals in a coordinated and complementary manner.
Encouraging standardization and interoperability of first
responder equipment, especially for communications.
Building a national training, exercise, and evaluation
system.
Implementing the National Incident Management System.
Preparing health care providers for a mass casualty event.
Augmenting America's pharmaceutical and vaccine stockpiles.
Many of the key elements of the national emergency response system are
already in place. During 2004, separate Federal response plans were
integrated into a single all-discipline National Response Plan. To
ensure that Federal, State, and local investments translate into
improvements in preparedness, we must continue to identify capability
gaps, establish national preparedness goals, and improve response and
recovery efforts at all levels of government. A related challenge is
ensuring that investments in State and local preparedness are focused on
new response capabilities, and not supplanting normal operating
expenses. DHS is leading an interagency effort to better match Federal
resources with achieving national preparedness goals.
From 2001 through 2005, the Federal Government has allocated $18.2
billion in State and local terrorism preparedness grant funding from the
Departments of Homeland Security, Health and Human Services, and
Justice, increasing spending from an annual level of approximately $300
million in 2001 to $4.8 billion in the 2006 request. The funding growth
has been directed to Federal assistance for State and local preparedness
and response activities, including equipping and training first
responders and preparing the public health infrastructure for a range of
terrorist threats. The Federal Government has also taken steps to
rationalize and simplify the distribution of State and local assistance;
better target funds based on risks, threats, vulnerability and need; and
develop and implement national preparedness goals. In addition, DHS' new
Office of Interoperability and Compatibility is developing a strategic
plan to standardize public safety communications equipment and
protocols.
In 2005, DHS will begin to implement the National Response Plan and
develop national preparedness goals. DHS will leverage the existing
network of State and local responder training facilities by focusing
more effort on ``training the trainer.'' DHS will organize 150 terrorism
preparedness exercises during 2005, and provide grant funding to support
approximately 400 exercises at the State and local level. The 2006
Budget continues to provide coordinated terrorism preparedness training
and equipment for State and local responders across the various
responder agencies. The 2006 request includes $3.6 billion for terrorism
preparedness grants, training, and exercises to be administered by the
Office of State and Local Government Coordination and Preparedness
within DHS, and proposes a significant restructuring in the grant
allocation process to better address threats and needs. The Budget also
supports a range of Federal response capabilities, including providing
$110 million for the Department of Energy's Nuclear Emergency Support
Team and other emergency response, management, and operations assets.
The capabilities of these teams range from providing radiological
assistance in support of State and local agencies to responding to major
incidents worldwide.
In 2005 and 2006 a new catastrophic incident response planning
initiative will be undertaken. This planning effort will span across
Federal agencies, as well as State and local governments. In addition to
this planning initiative, the budget includes $80 million in the
Departments of Homeland Security and Health and Human Services to
strengthen the nation's capabilities to respond to a mass casualty
event.
The Budget reflects ongoing investment for Project BioShield.
BioShield is designed to stimulate the development of the next
generation of countermeasures by allowing the Federal Government to buy
critically needed vaccines and medications for biodefense as soon as
experts agree they are safe and effective enough to be added to the
Strategic National Stockpile. This pro
[[Page 48]]
gram provides an incentive to manufacture these countermeasures.
BioShield is a shared responsibility, joining the intelligence
capabilities of DHS with the medical expertise of HHS.
The Budget includes $600 million for the Strategic National Stockpile
to maintain and augment the supply of vaccines and other countermeasures
that can be made available within 12 hours in the event of a terrorist
attack or other public health emergency. This now includes funding for
storage and maintenance of products purchased through BioShield, and $50
million for the purchase of supplies under the medical surge capacity
initiative. HHS has the lead role in preparing public health providers
for catastrophic terrorism. For 2005, HHS will provide $483 million to
continue improvements for hospital infrastructure and mutual aid through
the Health Resources and Services Administration, and $797 million for
States through the Centers for Disease Control and Prevention for
upgrades to State and local public health capacity. This investment will
bring the total assistance provided by HHS to States, local governments
and health care providers since 2001 to more than $7 billion.
Non-Federal Expenditures \4\
---------------------------------------------------------------------------
\4\ OMB does not collect detailed homeland security expenditure data
from State, local, or private entities directly.
---------------------------------------------------------------------------
State and local governments and private-sector firms also have devoted
resources of their own to the task of defending against terrorist
threats. Some of the additional spending has been of a one-time nature,
such as investment in new security equipment and structures; some
additional spending has been ongoing, such as hiring more personnel, and
increasing overtime for existing security personnel. In many cases, own-
source spending has supplemented the resources provided by the Federal
government.
Many governments and businesses are placing a high priority on, and
providing additional resources for, security. On the other hand, many
entities have not increased their spending. A survey conducted by the
National Association of Counties in the spring of 2004 found that as a
result of the homeland security process of intergovernmental planning
and funding, three out of four counties believed they were better
prepared to respond to terrorist threats. Moreover, almost 40 percent of
the surveyed counties had appropriated their own funds to assist with
homeland security. Own-source resources supplemented funds provided by
states and the Federal Government. However, the same survey revealed
that 54 percent of counties had not used any of their own funds. \5\
---------------------------------------------------------------------------
\5\ Source: National Association of Counties, ``Homeland Security
Funding--2003 State Homeland Security Grants Programs I and II.''
---------------------------------------------------------------------------
There is also a diversity of responses in the businesses community. In
a survey conducted by the Conference Board in 2003, just over half of
the companies reported that they had permanently increased security
spending post-September 11, 2001. About 15 percent of the companies
surveyed had increased their security spending by 20 percent or more.
Large increases in spending were especially evident in critical
industries, such as transportation, energy, financial services, media
and telecommunications, information technology, and healthcare. However,
about one-third of the surveyed companies reported that they had not
increased their security spending after September 11th. \6\
---------------------------------------------------------------------------
\6\ Source: Conference Board, ``Corporate Security Management'' 2003
---------------------------------------------------------------------------
In light of the range of spending responses to the new security
environment and the inherent difficulty of obtaining survey results that
are representative of the entire universe of States, localities, and
businesses, it is not surprising that estimates of non-Federal security
spending also differ widely. Estimates by two private consulting firms
for 2004 reveal that States and localities may have spent as little as
$8 billion (according to International Horizons Unlimited) or as much as
$15 billion (according to Deloitte Consulting). The business sector may
have spent about $5 billion (International Horizons Unlimited) or as
much as $46 billion (Deloitte Consulting).
The estimates by International Horizons Unlimited were published in
September 2003. They are on a Federal fiscal year basis. The Deloitte
Consulting estimates were published in June 2002. They are on a fiscal
year basis appropriate to the reporting entity. For State and local
governments, both sets of estimates attempted to remove spending funded
by Federal grants to avoid double counting spending that was reported by
the Federal Government.
Additional Tables
The tables in the Federal expenditures section above present data
based on the President's policy for the 2006 Budget. The tables below
present additional policy and baseline data, as directed by the Homeland
Security Act of 2002.
[[Page 49]]
Estimates by Agency:
Table 3-9. DISCRETIONARY FEE-FUNDED HOMELAND SECURITY ACTIVITIES BY AGENCY
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2004 2004 2005 2006
Agency Enacted Supplemental Enacted Request
----------------------------------------------------------------------------------------------------------------
Department of Energy....................................... 1.2 ............ 1.2 1.5
Department of Homeland Security............................ 2,335.0 ............ 2,875.0 4,688.0
Department of Labor........................................ 14.9 ............ 17.6 14.2
Department of State........................................ 649.0 ............ 763.3 866.0
General Services Administration............................ 72.8 ............ 58.6 72.9
Social Security Administration............................. 143.4 ............ 159.4 177.5
Federal Communications Commission.......................... 1.0 ............ 1.6 3.5
Nuclear Regulatory Commission.............................. 66.8 ............ 59.2 61.0
Securities and Exchange Commission......................... 5.0 ............ 5.0 5.0
----------------------------------------------------
Total, Discretionary Homeland Security Fee-Funded 3,289.1 ............ 3,941.0 5,889.5
Activities..............................................
----------------------------------------------------------------------------------------------------------------
Table 3-10. MANDATORY HOMELAND SECURITY FUNDING BY AGENCY
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2004 2004 2005 2006
Agency Enacted Supplemental Enacted Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture.................................. 119.0 ............ 135.0 137.0
Department of Commerce..................................... 9.5 ............ 8.4 8.6
Department of Education.................................... ........... ............ 2.7 ...........
Department of Energy....................................... 11.0 ............ 11.0 11.0
Department of Health and Human Services.................... 13.9 ............ 14.2 15.9
Department of Homeland Security............................ 1,783.7 ............ 2,051.2 2,125.5
Department of Labor........................................ 3.2 ............ 2.6 4.0
----------------------------------------------------
Total, Homeland Security Mandatory Programs.............. 1,940.2 ............ 2,225.1 2,302.0
----------------------------------------------------------------------------------------------------------------
[[Page 50]]
Table 3-11. BASELINE ESTIMATES--TOTAL HOMELAND SECURITY FUNDING BY AGENCY
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
Baseline
Agency 2005 ------------------------------------------------------
Enacted* 2006 2007 2008 2009 2010
----------------------------------------------------------------------------------------------------------------
Department of Agriculture..................... 601 617 632 651 668 686
Department of Commerce........................ 167 172 177 185 188 194
Department of Defense......................... 8,566 8,865 9,137 9,423 9,722 10,032
Department of Education....................... 25 22 23 23 23 24
Department of Energy.......................... 1,562 1,595 1,618 1,655 1,690 1,728
Department of Health and Human Services....... 4,229 4,323 4,423 4,522 4,624 4,730
Department of Homeland Security*.............. 24,887 25,714 26,169 26,903 27,663 28,456
Department of Housing and Urban Development... 2 2 2 2 2 3
Department of the Interior.................... 65 68 69 71 73 76
Department of Justice......................... 2,679 2,778 2,879 2,976 3,079 3,190
Department of Labor........................... 55 56 57 59 61 62
Department of State........................... 824 840 859 876 894 914
Department of Transportation.................. 182 190 197 206 214 223
Department of the Treasury.................... 102 107 110 115 118 124
Department of Veterans Affairs................ 281 291 301 312 324 336
Corps of Engineers............................ 89 91 93 95 97 99
Environmental Protection Agency............... 107 109 113 117 119 124
Executive Office of the President............. 30 31 31 32 32 33
General Services Administration............... 65 66 67 68 70 71
National Aeronautics and Space Administration. 218 223 226 232 237 241
National Science Foundation................... 342 349 357 364 371 379
Office of Personnel Management................ 3 3 3 3 3 3
Social Security Administration................ 160 163 166 170 173 177
District of Columbia.......................... 15 15 16 16 16 17
Federal Communications Commission............. 2 ......... ......... ......... ......... .........
Intelligence Community Management Account..... 72 73 75 77 78 80
National Archives and Records Administration.. 17 17 18 18 18 19
Nuclear Regulatory Commission................. 59 62 64 66 68 71
Postal Service................................ 503 513 524 534 546 558
Securities and Exchange Commission............ 5 5 5 5 5 6
Smithsonian Institution....................... 75 79 82 87 90 94
United States Holocaust Memorial Museum....... 8 8 8 8 9 9
Corporation for National and Community Service 17 17 17 19 19 19
-----------------------------------------------------------------
Total, Homeland Security Budget Authority..... 46,014 47,464 48,518 49,890 51,294 52,778
Less Department of Defense.................. -8,566 -8,865 -9,137 -9,423 -9,722 -10,032
-----------------------------------------------------------------
Non-Defense Discretionary Homeland Security 37,448 38,599 39,381 40,467 41,572 42,746
Budget Authority, excluding BioShield........
Less Fee-Funded Homeland Security Programs.. -3,942 -4,052 -4,140 -4,228 -4,318 -4,412
Less Mandatory Homeland Security Programs... -2,225 -2,303 -2,057 -2,079 -2,099 -2,122
-----------------------------------------------------------------
Net Non-Defense Discretionary Homeland 31,281 32,244 33,184 34,160 35,155 36,212
Security Budget Authority excluding BioShield
Plus BioShield.............................. 2,508 ......... ......... ......... 2,175 .........
-----------------------------------------------------------------
Net Non-Defense Discretionary Homeland 33,789 32,244 33,184 34,160 37,330 36,212
Security Budget Authority including BioShield
Obligations Limitations
Department of Transportation Obligations 19 19 19 20 21 22
Limitation.................................
----------------------------------------------------------------------------------------------------------------
* FY 2005 Enacted estimates include supplemental funding, but baseline estimates assume that these are one-time
events.
[[Page 51]]
Estimates by Budget Function:
Table 3-12. HOMELAND SECURITY FUNDING BY BUDGET FUNCTION
(budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2004 2004 2005 2006
Agency Enacted Supplemental Enacted * Request
----------------------------------------------------------------------------------------------------------------
National Defense........................................... 8,960 80 12,171 12,830
International Affairs...................................... 697 ............ 821 938
General Science Space and Technology....................... 583 ............ 617 608
Energy..................................................... 109 ............ 102 112
Natural Resources and the Environment...................... 342 ............ 289 345
Agriculture................................................ 398 ............ 582 664
Commerce and Housing Credit................................ 103 ............ 649 162
Transportation............................................. 8,350 11 8,620 10,463
Community and Regional Development......................... 2,789 ............ 2,743 3,069
Education, Training, Employment and Social Services........ 151 ............ 164 168
Health..................................................... 4,152 ............ 4,276 4,473
Medicare................................................... 11 ............ 8 9
Income Security............................................ 6 ............ 5 6
Social Security............................................ 143 ............ 160 177
Veterans Benefits and Services............................. 272 ............ 281 300
Administration of Justice.................................. 12,937 16 13,769 14,843
General Government......................................... 727 ............ 742 775
----------------------------------------------------
Total, Homeland Security Budget Authority.................. 40,730 107 45,999 49,942
Less National Defense, DoD............................... -7,025 ............ -8,566 -9,513
----------------------------------------------------
Total, Homeland Security Budget Authority excluding 33,705 107 37,433 40,429
BioShield.................................................
Less Fee-Funded Homeland Security Programs............... -3,289 ............ -3,942 -5,888
Less Mandatory Homeland Security Programs................ -1,941 ............ -2,225 -2,303
----------------------------------------------------
Net Discretionary, Homeland Security Budget Authority 28,475 107 31,266 32,238
excluding BioShield.......................................
Plus BioShield........................................... 885 ............ 2,508 ...........
----------------------------------------------------
Net Discretionary, Homeland Security Budget Authority 29,360 107 33,774 32,238
including BioShield.......................................
----------------------------------------------------------------------------------------------------------------
* Excludes $16 million in supplemental appropriations provided to the Coast Guard in 2005.
[[Page 52]]
Table 3-13. BASELINE ESTIMATES--HOMELAND SECURITY FUNDING BY BUDGET FUNCTION
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
Baseline
Budget Authority 2005 ------------------------------------------------------
Enacted* 2006 2007 2008 2009 2010
----------------------------------------------------------------------------------------------------------------
National Defense.............................. 12,171 12,555 12,914 13,291 13,681 14,087
International Affairs......................... 821 837 856 873 891 911
General Science Space and Technology.......... 617 630 643 656 670 683
Energy........................................ 102 106 97 100 102 107
Natural Resources and the Environment......... 289 296 305 313 319 331
Agriculture................................... 582 598 612 630 646 664
Commerce and Housing Credit................... 649 662 676 694 709 726
Transportation................................ 8,636 8,907 9,204 9,480 9,766 10,063
Community and Regional Development............ 2,743 2,800 2,858 2,918 2,981 3,044
Education, Training, Employment and Social 163 164 169 178 183 189
Services.....................................
Health........................................ 4,276 4,371 4,471 4,572 4,676 4,782
Medicare...................................... 8 8 9 9 9 10
Income Security............................... 5 6 6 6 6 7
Social Security............................... 160 163 166 170 173 177
Veterans Benefits and Services................ 281 291 301 312 324 336
Administration of Justice..................... 13,769 14,307 14,454 14,897 15,353 15,840
General Government............................ 742 763 777 791 805 821
-----------------------------------------------------------------
Total, Homeland Security Budget Authority..... 46,014 47,464 48,518 49,890 51,294 52,778
Less National Defense, DoD.................. -8,566 -8,865 -9,137 -9,423 -9,722 -10,032
-----------------------------------------------------------------
Net Discretionary, Homeland Security Budget 37,448 38,599 39,381 40,467 41,572 42,746
Authority, excluding BioShield...............
Less Fee-Funded Homeland Security Programs.. -3,942 -4,052 -4,140 -4,228 -4,318 -4,412
Less Mandatory Homeland Security Programs... -2,225 -2,303 -2,057 -2,079 -2,099 -2,122
-----------------------------------------------------------------
Net Discretionary, Homeland Security Budget 31,281 32,244 33,184 34,160 35,155 36,212
Authority....................................
Plus BioShield.............................. 2,508 ......... ......... ......... 2,175 .........
-----------------------------------------------------------------
Net Discretionary, Homeland Security Budget 33,789 32,244 33,184 34,160 37,330 36,212
Authority, including BioShield...............
----------------------------------------------------------------------------------------------------------------
* FY 2005 Enacted estimates include supplemental funding, but baseline estimates assume that these are one-time
events.
Detailed Estimates by Budget Account:
An appendix of account-level funding estimates, organized by National
Strategy mission area, is available on the Analytical Perspectives CD
ROM.