[Analytical Perspectives]
[Crosscutting Programs]
[3. Homeland Security Funding Analysis]
[From the U.S. Government Printing Office, www.gpo.gov]
[[Page 19]]
3. HOMELAND SECURITY FUNDING ANALYSIS
Since the terrorist attacks of September 11, 2001, the Federal
Government, with State, local and private sector partners, has engaged
in a broad, determined effort to thwart terrorism, identify and pursue
terrorists abroad and implement 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 chemical, biological, radiological, and nuclear (CBRN) weapons;
enhance the security of our borders, transportation modes and critical
infrastructure; and strengthen America's preparedness and response
capabilities in our cities and local communities. 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--involve every level of
government as well as the private sector and individual citizens. Since
September 11th, homeland security has continued to be a major policy
focus for all levels of government, and one of the President's highest
priorities.
Underscoring 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. This analysis covers the homeland security funding and
activities of all Federal agencies, not only those carried out by the
Department of Homeland Security (DHS), but also addresses State, local,
and private sector expenditures. Since not all activities carried out by
DHS constitute homeland security funding (e.g., response to natural
disasters, Coast Guard search and rescue activities), DHS estimates in
this section do not represent the entire DHS budget.
Data Collection Methodology and Adjustments
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 2008 Budget. Additional policy and baseline
data is presented in the ``Additional Tables'' section. Due to rounding,
data in this section may not add to totals in other Budget volumes.
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To compile this data, agencies report information using standardized
definitions for homeland security. \2\ The data provided by the agencies
are developed at the ``activity level,'' which is a set of like programs
or projects, at a level of detail sufficient to consolidate the
information to determine total Governmental spending on homeland
security.
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\2\ Federal homeland security activities are currently defined by OMB
in Circular A-11 as, ``activities that focus on combating and protecting
against terrorism, and that occur within the United States and its
territories (this includes Critical Infrastructure Protection (CIP) and
Continuity of Operations (COOP) data), or outside of the United States
and its territories if they support domestically-based systems or
activities (e.g., visa processing or pre-screening high-risk cargo at
overseas ports). Such activities include efforts to detect, deter,
protect against, and, if needed, respond to terrorist attacks.''
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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 homeland security-related activities from host programs and
refine their characterizations. 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.
Federal Expenditures
Total funding for homeland security has grown significantly since the
attacks of September 11, 2001. For 2008, the President's Budget includes
$61.1 billion of gross budget authority for homeland security
activities, a $4.7 billion (8.4 percent) increase over the 2007
estimated level. \3\ Not including the Department of Defense's (DOD)
funding, the gross non-defense 2008 request for homeland spending is
$43.6 billion, or a $3.8 billion (9.5 percent) increase over the 2007
estimated level. Excluding mandatory spending, fees, and the DOD's
homeland security budget, the 2008 Budget proposes a net, non-Defense
discretionary increase of $3.4 billion (10.3 percent) over the 2007
level (see Table 3-1).
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\3\ Aside from DHS and DOD, all other agencies' 2007 funding is at the
estimated full-year Continuing Resolution levels. Further, the FY07
gross homeland security funding excludes supplemental and emergency
funding received in 2007 ($1.7 billion) and the Department of Commerce's
mandatory borrowing authority for emergency communications
interoperability grants ($1 billion).
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The 2008 Budget proposes homeland security funding for a total of 31
agencies. Of those, five agencies--the Departments of Homeland Security,
Defense, Health and Human Services (HHS), Justice (DOJ) and Energy
(DOE)--account for approximately 93 percent of total Government-wide
homeland security funding in 2008.
[[Page 20]]
Table 3-1. HOMELAND SECURITY FUNDING BY AGENCY
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2006 2007
Budget Authority 2006 Supplemental/ 2007 Supplemental/ 2008
Actual Emergency Enacted/CR Emergency \1\ Request \2\
----------------------------------------------------------------------------------------------------------------
Department of Agriculture................ 597.4 .............. 522.5 .............. 718.5
Department of Commerce \3\............... 181.1 .............. 194.1 .............. 217.7
Department of Defense.................... 16,479.3 1,030.5 16,538.3 .............. 17,461.2
Department of Education.................. 24.7 .............. 24.0 .............. 23.2
Department of Energy..................... 1,702.1 .............. 1,696.6 .............. 1,833.9
Department of Health and Human Services.. 4,351.8 0.1 4,313.2 .............. 4,424.1
Department of Homeland Security.......... 25,154.9 1,416.1 26,872.2 1,816.4 29,666.5
Department of Housing and Urban 1.9 .............. 1.9 .............. 3.4
Development.............................
Department of the Interior............... 59.5 .............. 46.8 .............. 48.4
Department of Justice.................... 2,995.4 30.3 3,089.3 96.0 3,330.5
Department of Labor...................... 48.3 .............. 49.4 .............. 51.8
Department of State...................... 1,107.9 .............. 1,239.6 .............. 1,405.7
Department of Transportation............. 181.0 .............. 178.6 .............. 200.0
Department of the Treasury............... 113.5 1.3 108.8 3.0 118.0
Department of Veterans Affairs........... 297.8 .............. 243.6 .............. 270.0
Corps of Engineers....................... 72.0 .............. 43.0 .............. 42.0
Environmental Protection Agency.......... 129.4 .............. 132.9 .............. 152.4
Executive Office of the President........ 20.8 .............. 20.8 .............. 20.8
General Services Administration.......... 98.6 0.1 73.7 .............. 42.3
National Aeronautics and Space 212.6 .............. 199.2 .............. 193.9
Administration..........................
National Science Foundation.............. 344.2 .............. 344.2 .............. 375.4
Office of Personnel Management........... 2.7 .............. 2.8 .............. 2.3
Social Security Administration........... 176.4 .............. 194.0 .............. 217.1
District of Columbia..................... 13.5 .............. 8.0 .............. 3.0
Federal Communications Commission........ 2.3 .............. 2.3 .............. 3.6
Intelligence Community Management Account 56.0 .............. 56.0 .............. 58.0
National Archives and Records 18.2 .............. 18.2 .............. 18.1
Administration..........................
Nuclear Regulatory Commission............ 79.3 .............. 66.0 .............. 68.9
Securities and Exchange Commission....... 5.0 .............. 14.3 .............. 18.3
Smithsonian Institution.................. 83.7 .............. 80.6 .............. 92.8
United States Holocaust Memorial Museum.. 7.8 .............. 7.8 .............. 8.4
Corporation for National and Community 20.4 .............. 20.4 .............. 14.9
Service.................................
----------------------------------------------------------------------
Total, Homeland Security Budget Authority 54,639.4 2,478.4 56,403.0 1,915.4 61,104.9
Less Department of Defense............. -16,479.3 -1,030.5 -16,538.3 .............. -17,461.2
----------------------------------------------------------------------
Non-Defense Homeland Security Budget 38,160.1 1,447.9 39,864.7 1,915.4 43,643.7
Authority, excluding Mandatory
Interoperability Communications Grants
\4\.....................................
Less Fee-Funded Homeland Security -3,512.9 .............. -4,396.4 .............. -4,986.2
Programs..............................
Less Mandatory Homeland Security -2,256.9 .............. -2,487.7 .............. -2,291.0
Programs..............................
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Net Non-Defense Discretionary Homeland 32,390.3 1,447.9 32,980.6 1,915.4 36,366.5
Security Budget Authority, excluding
Mandatory Interoperability
Communications Grants \4\...............
Plus Mandatory Interoperability ........... .............. 1,000.0 .............. ...........
Communications Grants.................
----------------------------------------------------------------------
Net Non-Defense, Discretionary Homeland 32,390.3 1,447.9 33,980.6 1,915.4 36,366.5
Security Budget Authority, including
Mandatory Interoperability
Communications Grants \4\...............
Obligations Limitations
Department of Transportation Obligations 121.0 .............. 121.0 .............. 121.3
Limitation..............................
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\1\ The 2007 supplemental and emergency funding levels for the Departments of Homeland Security (DHS), Justice
(DOJ), and Treasury include both enacted and requested supplemental funding. In the 2007 Global War on Terror
(GWOT) supplemental request, DHS, DOJ, and Treasury request $120 million, $96 million, and $3 million,
respectively, for additional 2007 budget authority.
\2\ The 2008 request levels for DHS and DOJ does not include additional budget authorities for 2008 requested in
the 2007 GWOT supplemental request. Specifically, DHS and DOJ request $225 million and $85 million,
respectively, in additional budget authority for 2008 to be provided in the 2007 GWOT supplemental
appropriation bill.
\3\ DOC's 2007 gross Continuing Resolution full-year estimate for homeland security excludes $1 billion in
mandatory borrowing authority to provide Federal grants to public safety agencies for communications
interoperability purposes. Although technically scored in 2007, this funding will be made available from
proceeds of the Federal Communications Commission's 2008 auction of returned television spectrum.
\4\ The Deficit Reduction Act of 2005 appropriated $1 billion from anticipated spectrum auction receipts for the
Department of Commerce, in consultation with the Department of Homeland Security, to make grants to public
safety agencies for communications interoperability purposes.
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 with many challenges. 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
[[Page 21]]
represents a partnership between the Federal government and its State
and local counterparts, 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.
The National Strategy is a dynamic document being implemented through
a robust interagency planning and coordination process. 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 changing 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 that
suit the needs of the moment and at the same time align to long-term
goals. For example, a major inter-agency effort currently occurring at
the Federal level is the development of the National Implementation Plan
for the Global War on Terrorism and attendant performance measures that
address homeland security.
Funding presented in this report is analyzed in the context of major
``mission areas.'' Activities in many of the mission areas are closely
related and certain capabilities highlighted by a single mission area
also enhance capabilities captured by other mission areas. 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 also
address agents that represent catastrophic threats. However, for the
purposes of segmenting Federal homeland security funding by mission
areas, discussions of cross-cutting activities have also been separated
by mission areas.
Furthermore, there are a small number of notable cross-cutting
activities that are not specifically highlighted in any of the mission
areas. For example, although pandemic influenza preparedness is
considered an essential homeland security activity, it does not
necessarily fit into a single mission area, and general bio-defense and
preparedness activities of the Federal government encompass it.
Nevertheless, the preparations we are making for pandemic influenza have
a direct impact on our ability to defend against and respond to
terrorist Weapons of Mass Destruction (WMD) threats.
The following table summarizes funding levels by the National
Strategy's mission areas; more detailed analyses are provided in
subsequent mission-specific analysis sections.
Table 3-2. HOMELAND SECURITY FUNDING BY NATIONAL STRATEGY MISSION AREA
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007
Agency 2006 2006 2007 Supplemental/ 2008
Actual Supplemental Enacted/CR Emergency Request
----------------------------------------------------------------------------------------------------------------
Intelligence and Warning.................... 443.0 6.3 500.3 13.0 647.9
Border and Transportation Security.......... 18,042.3 1,335.8 19,528.1 1,816.4 22,403.8
Domestic Counterterrorism................... 4,535.6 89.8 4,980.3 83.0 4,889.4
Protecting Critical Infrastructure and Key 17,933.2 862.4 17,919.7 3.0 19,096.1
Assets.....................................
Defending Against Catastrophic Threats...... 8,573.7 122.4 8,460.6 ............. 8,828.9
Emergency Preparedness and Response......... 4,992.3 61.6 4,935.9 ............. 5,022.0
Other....................................... 119.3 ............ 78.1 ............. 216.8
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Total, Homeland Security Budget Authority... 54,639.4 2,478.4 56,403.0 1,915.4 61,104.9
Plus Mandatory Interoperability ........... ............ 1,000.0 ............. ...........
Communications Grants....................
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Total Homeland Security Budget Authority 54,639.4 2,478.4 57,403.0 1,915.4 61,104.9
plus Mandatory Interoperability
Communications Grants......................
----------------------------------------------------------------------------------------------------------------
[[Page 22]]
National Strategy Mission Area: Intelligence and Warning
The intelligence and warning mission area covers activities to detect
terrorist threats and disseminate terrorist-threat information. This
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, 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 2008, funding for intelligence and warning is distributed
between DHS (60 percent), primarily in the Office of Intelligence and
Analysis (I&A); DOJ (27 percent), primarily in the Federal Bureau of
Investigation (FBI); and other Intelligence Community members (9
percent). The 2008 funding for intelligence and warning activities is
29.5 percent above the 2007 level.
Table 3-3. INTELLIGENCE AND WARNING FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007
Agency 2006 2006 2007 Supplemental/ 2008
Actual Supplemental Enacted/CR Emergency Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture................... 5.2 ............ 5.2 ............. 22.3
Department of Commerce...................... ........... ............ 1.8 ............. 1.8
Department of Homeland Security............. 337.7 ............ 380.1 ............. 388.4
Department of Justice....................... 41.7 5.0 54.8 10.0 173.8
Department of the Treasury.................. 2.4 1.3 2.4 3.0 3.6
Intelligence Community Management Account... 56.0 ............ 56.0 ............. 58.0
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Total, Intelligence and Warning............. 443.0 6.3 500.3 13.0 647.9
----------------------------------------------------------------------------------------------------------------
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 information sharing and warning mechanisms,
such as the Homeland Security Advisory System, to allow
Federal, State, local, and private authorities to take action
to prevent attacks and protect potential targets.
As established by the Intelligence Reform and Terrorism Prevention Act
(IRTPA) of 2004, the Director of National Intelligence (DNI) ensures
that this office is setting collection and analysis priorities that are
consistent with the National Intelligence Strategy. This strategy calls
for the integration of both the domestic and foreign dimensions of U.S.
intelligence so that there are no gaps in our understanding of threats
to the homeland.
In accordance with the IRTPA's requirements for the Information
Sharing Environment (ISE), the DNI is also ensuring that information
sharing takes place in an environment where access to terrorism
information is matched to the roles, responsibilities, and missions of
all the organizations across the intelligence community. These changes
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. The DNI,
in conjunction with the Homeland Security Council (HSC) and relevant
Federal agencies, has established the ISE Implementation Plan and ISE
Privacy Guidelines in accordance with a Presidential directive in
December, 2005, which outlined new guidelines and protocols for
improving information sharing between Federal, State, local, and foreign
governments and the private sector. The President has extended work on
the ISE for another two years and fully supports the plan going forward
to complete the ISE mandate as outlined in IRTPA.
The 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. NCTC serves as
the primary organization in the U.S. Government for analyzing and
integrating all intelligence pertaining to terrorism and
counterterrorism (except purely domestic terrorism) and the central and
shared knowledge bank on known and suspected terrorists and
international terror groups. It also ensures 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 with coordinating
counterterrorism operational planning on a global basis and developing
strategic, operational plans for the Global War on Terrorism. The NCTC,
with guidance from the National Security Council and the HSC, has
created the first National Implementation Plan for the Global War on
Terrorism, which will further consolidate the U.S. Government's efforts
on the Global War on Terrorism.
The DNI and the NCTC work to utilize the unique assets and
capabilities of other Government agencies
[[Page 23]]
and interagency groups--some of which are reorganizing to improve these
capabilities and better interface with the new intelligence structure.
As such, the NCTC allocates requirements to the agencies with the assets
and capabilities to address them. In addition, NCTC has formed a new
core staff of analysts drawn from multiple intelligence agencies. This
variety ensures that NCTC can access the Intelligence Community's full
breadth of knowledge and complement the activities of individual
agencies. Despite the addition of this new permanent planning staff,
NCTC will not undertake direct operations but will continue to leave
mission execution with the appropriate agencies. This separation ensures
that agencies' chains of command remain intact and prevent potentially
excessive micromanagement of counterterrorism missions. Taken together,
the creation of the NCTC and recent legislation and executive orders
will ensure counterterrorism intelligence and warning assets are better
allocated and more tightly coordinated, leading to improved intelligence
for homeland security.
The 2008 budget request for the FBI supports improvements in its
national security investigations and intelligence analysis, as well as
technical and tactical support programs. Many of the improvements are
targeted at FBI's National Security Branch, which integrates the
Intelligence Directorate, Counterterrorism Division and
Counterintelligence Division.
Over the past five years, the FBI has developed its intelligence
capabilities and improved its ability to protect the American people
from threats to national security. It has built on its established
capacity to collect information and enhanced its ability to analyze,
disseminate and utilize intelligence. The President's 2008 Budget
supports the FBI's priorities and its continuing transformation by
providing the resources needed to enhance its national security
capabilities and improve supporting information technology and
infrastructure. These initiatives will increase the number of agents and
specialists working national security cases; enhance intelligence
collection, systems, and training; improve IT systems that reduce
paperwork and facilitate information sharing; and upgrade biometric
identification systems to improve the identification of terrorists.
As a result of the Department of Homeland Security's 2006 re-
organization (Second Stage Review), a new Office of Intelligence and
Analysis was established to strengthen intelligence functions and
information sharing within DHS. I&A gathers information to analyze
terrorist threats to critical infrastructure, transportation systems, or
other targets inside the homeland. Led by the DHS Chief Intelligence
Officer reporting directly to the Secretary, this office not only relies
on personnel from the former Information Analysis and Infrastructure
Protection Directorate, but also draws on the expertise of other DHS
components with information collection and analytical capabilities. For
example, improved coordination and information sharing between border
agents, air marshals, and intelligence analysts deepens the Department's
understanding of terrorist threats. By maintaining and expanding its
partnership with the NCTC, DHS will better coordinate its activities
with other members within the Intelligence Community and the DNI.
Table 3-4. BORDER AND TRANSPORTATION SECURITY FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007
Agency 2006 2006 2007 Supplemental/ 2008
Actual Supplemental Enacted/CR Emergency Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture................... 205.6 ............ 210.2 ............. 221.7
Department of Commerce...................... ........... ............ 1.5 ............. 1.6
Department of Energy........................ ........... ............ ........... ............. 7.1
Department of Homeland Security............. 16,732.1 1,335.8 18,086.3 1,816.4 20,812.8
Department of Justice....................... 30.4 ............ 25.4 ............. 4.6
Department of State......................... 1,056.6 ............ 1,188.3 ............. 1,346.0
Department of Transportation................ 17.7 ............ 16.4 ............. 10.0
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Total, Border and Transportation Security... 18,042.3 1,335.8 19,528.1 1,816.4 22,403.8
----------------------------------------------------------------------------------------------------------------
I&A also serves as the focal point for disseminating homeland security
information to State and local entities. For example, I&A is connected
to homeland security directors of States, counties, and territories
through the Homeland Security Information Network (HSIN) and it is
deploying the Homeland Security Data Network (HSDN) to them as well. All
fifty States and major urban areas are connected to HSIN, and HSIN is
being rolled out to major counties as well. Furthermore, in recognition
of the limitations of virtual interactions through electronic
communications networks, beginning in late 2006, I&A has begun deploying
liaisons and intelligence analysts to State and Local Intelligence
Fusion Centers across the nation to improve the flow and quality of
homeland security information to State, local and private sector
partners and ensure a more accurate situational awareness for DHS and
its Federal partners.
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
[[Page 24]]
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 ($20.9 billion, or 93 percent, in 2008) is in DHS, largely for the
U.S. Customs and Border Protection (CBP), the Transportation Security
Administration (TSA), and the U.S Coast Guard. Other DHS bureaus and
other Federal Departments, such as the Departments of State and Justice,
also play significant roles. The President's 2008 request would increase
funding for border and transportation security activities by 6.7 percent
over the 2007 level.
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
layered 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 allowed for unification of the Federal Government's major border
and transportation security resources, which 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.
The 2008 Budget provides approximately $8.8 billion for the Border
Patrol (an increase of 36 percent over 2007) including funding for 3,000
new agents. The President has committed to doubling the size of the
Border Patrol to over 18,000 agents before he leaves office. At the
start of the President's Administration, there were 9,096 Border Patrol
agents. This Budget will bring the total number of agents to 17,819, and
the next one will meet the President's goal. To gain control of our
borders, the Budget also continues funding for fencing technology and
other infrastructure along the border. For example, in September of
2006, DHS awarded a contract to implement the technological and
infrastructure component of its Secure Border Initiative effort, SBInet.
SBInet will concentrate on using proven technology to significantly
improve the availability of information and tools to Border Patrol
agents so they can better detect, identify, classify and confront
illegal border activity by those who pose a threat to the United States.
The Budget includes $1 billion for this priority. This investment will
support smarter and more secure borders.
The Administration has effectively ended the practice of ``catch and
release'' along the northern and southern borders. Non-Mexican illegal
aliens apprehended at the border are now detained and then returned to
their home countries as quickly as possible and all non-criminal
Mexicans apprehended for crossing the border illegally are returned to
Mexico immediately. The 2008 Budget includes $2.2 billion in detention
and removal resources to continue this success and supports a total of
28,450 detention beds across the country to house illegal aliens
apprehended by DHS.
To improve coordination and provide assistance to State and local law
enforcement officials, the Budget will expand a successful Federal,
State and local partnership--the 287(g) program, which provides State/
local law enforcement officials with guidance and training in
immigration law, subject to the direction of the Secretary of Homeland
Security. The 2008 Budget includes an increase of $26 million for the
287(g) program and the Law Enforcement Support Center, including the
training of 250 State and local law enforcement officers, detention beds
for apprehended illegal aliens, and personnel to assist State and local
law enforcement when they encounter aliens. The Budget also includes an
increase of $29 million to identify criminal aliens in Federal, State,
and local prison facilities and remove those aliens from the United
States, $13 million for investigating smuggling and border criminal
activity and $5 million for identifying, apprehending, prosecuting and
removing aliens involved in gang activities.
Key to the Federal Government's screening of international visitors is
the US-VISIT program, which is designed to expedite the clearance of
legitimate travelers while identifying and denying clearance to those
who may intend harm. US-VISIT currently collects two digital
fingerprints and a digital photograph of all foreign visitors entering
the United States. The ability to screen foreign visitors against
criminal and terrorist databases as well as confirming the identity of
travelers has improved border security. However, in the future, to
improve accuracy in the identification of visitors, first-time visitors
to the United States will be enrolled in the program by submitting ten
fingerprints, allowing for improved accuracy in identifying foreign
visitors and preventing the entry of known terrorists and criminals to
the United States. DHS, in conjunction with the Departments of State and
Justice, will implement this multiyear project to improve screening, and
the 2008 Budget includes $462 million for US-VISIT, of which $228
million is for 10-print deployment and interoperability with the FBI's
fingerprint system, the Integrated Automated Fingerprint Identification
System.
In the area of aviation security, the Administration continues to
enhance the multiple levels of security implemented in the wake of the
September 11th attacks. The Transportation Security Administration has
made significant improvements in aviation security since September
11th by implementing a layered, risk-based security approach.
These advances include hardened cockpit doors, a greatly expanded
Federal Air Marshals program, arming some pilots through the Federal
Flight Deck Officers program, offering voluntary self defense training
to crew members, and screening 100 percent of passenger and checked
baggage. TSA will further strengthen these efforts in 2008 by requesting
$4 billion for aviation screening operations. TSA will also commit $729
million to the purchase, installation, and maintenance of baggage
screening devices, including inline systems that will increase baggage
throughput up to
[[Page 25]]
250 percent. The Budget also provides more than $82 million for emerging
technology at passenger checkpoints. This technology will enhance the
detection of prohibited items, especially firearms and explosives,
through the use of additional sensors such as whole body imaging, liquid
bottle scanners, automated explosive sampling, and cast and prosthesis
scanners.
Safeguarding 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 major seaport could slow the
movement of goods and be economically devastating to the nation. 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 2008, the Coast Guard
will continue to ensure compliance with MTSA port and vessel security
standards and regulations. The 2008 Budget provides nearly $3 billion
for port security across DHS, primarily for Coast Guard port security
activities such as Maritime Safety and Security Teams and harbor
patrols. In addition, the Coast Guard's 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. In 2007, Congress
passed P.L. 109-347, the SAFE Port Act, which requires enhanced
screening of cargo bound for the Unites States, among other port
security measures. In addition, port operators are eligible for grants
to fund security enhancements under DHS' Infrastructure Protection
Program (IPP) which falls under the Infrastructure Protection mission
area.
The State Department Bureau of Consular Affairs is the second largest
contributor to border and transportation security. The State Border
Security program includes visa, passport, American Citizen Services and
International Adoption programs. In 2008, the State Department will
continue working with interagency partners to enable the transition of
the US-VISIT program to a ten fingerprint system. For visitors that
require a visa, the Department of State collects the visitor's biometric
and biographic data, which is then checked against watch lists, thereby
improving the ability to make a visa determination. When the visitor
arrives in the United States, US-VISIT procedures allow DHS to determine
whether the person applying for entry is the same person who was issued
the visa by the Department of State. This and additional watch list
checks improve the ability of DHS to make admissibility decisions.
In addition, the Department of State will also lead the implementation
of the Western Hemisphere Travel Initiative in 2008, which mandates that
all persons travelling internationally within the Western Hemisphere
travel with a passport or other authorized document by 2009. Under this
initiative, United States citizens and foreign visitors traveling to and
from the Caribbean, Bermuda, Panama, Canada or Mexico will be required
to have a passport or standardized travel card that establishes the
bearer's identity and nationality to enter or re-enter the United
States. The initiative will improve security at our borders by
standardizing entry and exit information and increasing the ability of
Government agencies to work together.
Table 3-5. DOMESTIC COUNTERRORISM FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007
Agency 2006 2006 2007 Supplemental/ 2008
Actual Supplemental Enacted/CR Emergency Request
----------------------------------------------------------------------------------------------------------------
Department of Homeland Security............. 2,127.0 65.0 2,482.8 ............. 2,201.0
Department of Interior...................... 0.3 ............ 0.3 ............. 0.3
Department of Justice....................... 2,325.3 24.8 2,418.2 83.0 2,604.0
Department of Transportation................ 21.0 ............ 20.0 ............. 21.0
Department of the Treasury.................. 60.7 ............ 57.6 ............. 61.7
Social Security Administration.............. 1.4 ............ 1.4 ............. 1.4
-------------------------------------------------------------------
Total, Domestic Counterterrorism............ 4,535.6 89.8 4,980.3 83.0 4,889.4
----------------------------------------------------------------------------------------------------------------
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:
within DOJ (largely the FBI) and DHS (largely ICE), which account for
53.3 and 45 percent of total funding for 2008, respectively.
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; and
Improving law enforcement cooperation and information
sharing to enhance domestic counterterrorism efforts across
all levels of government.
[[Page 26]]
The President's 2008 Budget supports the FBI's top strategic priority:
to protect the United States from terrorist attacks. FBI continues to
build its counterterrorism capabilities post-September 11th.
Over the past six years, FBI has shifted resources to counterterrorism
from lower priority programs, hired and trained additional field
investigators, enhanced science and technology capabilities, and
strengthened headquarters oversight of the counterterrorism program. In
addition, FBI has integrated its counterterrorism, counterintelligence,
and intelligence functions by establishing the National Security Branch
to oversee all three programs. More recently, the FBI has created a
Weapons of Mass Destruction Directorate to coordinate all investigative
and analytical efforts directed at WMD issues. Overall, FBI resources in
the domestic counterterrorism category have increased from $0.9 billion
in 2002 to $2 billion in 2008. Among the largest 2008 initiatives for
enhancing counterterrorism capabilities are $38 million to improve FBI's
data intercept and access program, $26 million to fund additional
counterterrorism agents, and $19 million to expand the WMD Directorate.
Within DHS, ICE focuses on a broad array of national security,
financial, and smuggling violations, including illegal arms exports,
financial crimes, commercial fraud, and human trafficking. The 2008
Budget provides $2 billion for these enforcement activities.
Table 3-6. PROTECTING CRITICAL INFRASTRUCTURE AND KEY ASSETS FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007
Agency 2006 2006 2007 Supplemental/ 2008
Actual Supplemental Enacted/CR Emergency Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture................... 90.7 ............ 31.1 ............. 64.0
Department of Defense....................... 11,150.5 862.3 11,254.0 ............. 11,966.2
Department of Energy........................ 1,520.6 ............ 1,515.1 ............. 1,607.1
Department of Health and Human Services..... 181.7 ............ 184.8 ............. 180.2
Department of Homeland Security............. 2,698.3 ............ 2,779.6 ............. 3,035.5
Department of Justice....................... 541.1 ............ 531.2 3.0 494.3
Department of Transportation................ 131.9 ............ 131.9 ............. 166.1
Department of Veterans Affairs.............. 262.5 ............ 208.3 ............. 221.9
National Aeronautics and Space 212.6 ............ 199.2 ............. 193.9
Administration.............................
National Science Foundation................. 317.2 ............ 317.2 ............. 350.4
Social Security Administration.............. 174.6 ............ 191.9 ............. 215.0
Other Agencies.............................. 651.7 0.1 575.4 ............. 601.6
-------------------------------------------------------------------
Total, Protecting Critical Infrastructure 17,933.2 862.4 17,919.7 3.0 19,096.1
and Key Assets.............................
----------------------------------------------------------------------------------------------------------------
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 for two reasons: (1) the diversity of infrastructure and (2)
the high level of private ownership (85 percent) of the Nation's key
assets. DOD continues to report the largest share of funding in this
category for 2008 ($12 billion, or 62.8 percent), which includes
programs focusing on physical security and improving the military's
ability to prevent or mitigate the consequences of attacks against
departmental personnel and facilities. Nevertheless, DHS has overall
responsibility for prioritizing and executing infrastructure protection
activities at the national level and accounts for $3 billion (16
percent) of 2008 funding. In addition, a total of 25 other agencies
report funding to protect their own assets and work with States,
localities, and the private sector to reduce vulnerabilities in their
areas of expertise. The President's 2008 request increases funding for
activities to protect critical infrastructure and key assets by $1.2
billion (6.6 percent) over the 2007 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 an accurate assessment of America's
critical infrastructure and key assets and prioritizing
protective action based on risk;
Enabling effective partnerships to protect critical
infrastructure; and
Reducing threats and vulnerabilities in cyberspace.
Homeland Security Policy Directive 7 (HSPD-7), signed in December
2003, established a national policy to protect critical infrastructure
and key resources from attack, to ensure the delivery of essential goods
and services, and to maintain public safety and security. Under HSPD-7,
DHS is responsible for coordinating Federal critical infrastructure
programs and working closely with State and local governments and the
private sector to align protection efforts. To provide the overall
framework to integrate various critical infrastructure protection
activities, DHS developed the Na
[[Page 27]]
tional Infrastructure Protection Plan (NIPP). The plan's risk-management
approach provides the framework for government and industry to work
together on common protective goals, while focusing resources where they
are needed the most.
Recognizing that each infrastructure sector possesses it own unique
characteristics, HSPD-7 also designated sector-specific agencies to
coordinate infrastructure protection efforts within each sector. This
approach enables agencies to rely on specialized expertise and long-
standing relationships with industry in conducting infrastructure
protection activities. There are 17 critical infrastructure sectors and
9 sector-specific agencies, including DHS. In December of 2006, DHS
received the first set of sector-specific plans that address how each
critical infrastructure sector will work together to collect
infrastructure information, prioritize assets and protective programs,
and develop metrics to inform future initiatives.
Although these efforts aimed at protecting critical infrastructure and
key assets nationwide are in motion, the Administration has also been
focusing on a select number of high-priority areas in parallel with NIPP
implementation. For example, the 2008 Budget provides $25 million to DHS
to focus on chemical security regulation enforcement activities, such as
requiring security vulnerability assessments and facility security plans
and inspecting chemical facilities for compliance. The budget for the
Environmental Protection Agency includes $22 million in 2008 to begin
testing the last of its pilot systems for the Water Security Initiative.
The program develops pilot systems for cost effective, early warning of
disease, pest, or poisonous agents in drinking water systems and offers
subsequent consequence management. The Department of Agriculture also
has completed extensive physical security assessments to make sure that
agricultural physical security issues throughout the United States are
in line with the latest best practices. Many other departments and
agencies have critical infrastructure protection programs underway that
support the mission of the NIPP and will benefit from the NIPP process.
DHS recently reorganized and combined its preparedness and response
functions to fulfill requirements of the 2007 Homeland Security
Appropriations Act. DHS also created the National Protection and
Programs Directorate (NPPD), which includes offices that were omitted
from the transfer to FEMA by statute. These offices, which focus on
physical and cyber infrastructure protection, communications, as well as
other major security initiatives, will be part of the newly created
NPPD.
The Office of Infrastructure Protection (IP), located within this new
directorate, is responsible for managing and prioritizing infrastructure
protection at the national level. The Office operates the national asset
database, which aggregates infrastructure data from across the nation.
The database supports DHS in developing a risk-based strategy for
protection and can be used to identify critical infrastructure under
certain scenarios. IP also conducts site visits and assessments each
year, and has used this information to develop site security guidelines
for nuclear power plants and chemical facilities. The 2008 Budget
provides $240 million for these activities. In conjunction with funding
for the Office of Infrastructure Protection, the Administration supports
the Infrastructure Protection Program, which consists of five grant
programs funding security enhancement projects in and around
transportation assets and other critical infrastructure sites. Awarded
through the Office of Grant Programs, IPP grants supplement State and
local infrastructure security efforts, especially detection and
prevention 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 established the National Cyber Security Division (NCSD) in
2003--in response to the President's National Strategy to Secure
Cyberspace--in order to identify, analyze and reduce cyber threats and
vulnerabilities, coordinate incident response, and provide technical
assistance. NCSD, now part of NPPD, works collaboratively with public,
private, and international entities to secure cyberspace and America's
cyber assets. NCSD has also established the U.S. Computer Emergency
Response Team (US-CERT), which operates a cyber watch, warning, and
incident response center. US-CERT supports a watch and warning
capability responsible for tracking incident and trend data, ranking
associated severity, and generating real-time alerts.
NCSD also operates a Control Systems Security Program. Today, many
critical infrastructures such as pipelines, water and pumping stations,
and pharmaceutical production are run by computerized control systems.
These systems make our critical infrastructure assets more automated,
more productive, more efficient, and more innovative, but they also may
expose those physical assets to cyber-related threats. NCSD works to
address these weaknesses and enhance control systems security. To
evaluate readiness and response programs such as the National Response
Plan, NCSD has conducted national cyber exercises such as Cyber Storm
with public and private sector entities. These exercises test our
capabilities and improve our ability to respond to an incident. To
support these critical preparedness activities, the Budget includes $98
million for the NCSD in 2008.
National Strategy Mission Area: Defending Against Catastrophic Threats
The defending against catastrophic threats mission area covers
activities including research, development, and deployment of
technologies, systems, and medical measures to detect and counter the
threat of chemical, biological, radiological, and nuclear weapons. The
agencies with the most significant resources to help develop and field
technologies to counter CBRN threats are:
[[Page 28]]
(1) DOD ($5 billion, or 57.6 percent, of the 2008 total); (2) HHS,
largely for research at the National Institutes of Health (NIH) ($1.9
billion, or 22.1 percent, of the 2008 total); and (3) DHS ($1.3 billion,
or 14.5 percent, of the 2008 total). The President's 2008 request would
increase funding for activities to defend against catastrophic threats
by $368 million (4 percent) over the 2007 level.
Table 3-7. DEFENDING AGAINST CATASTROPHIC THREATS FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007
Agency 2006 2006 2007 Supplemental/ 2008
Actual Supplemental Enacted/CR Emergency Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture................... 238.3 ............ 226.0 ............. 343.5
Department of Commerce...................... 80.6 ............ 88.7 ............. 90.7
Department of Defense....................... 4,988.5 122.0 4,889.8 ............. 5,007.9
Department of Energy........................ 62.1 ............ 62.1 ............. 63.2
Department of Health and Human Services..... 1,806.0 ............ 1,848.5 ............. 1,954.2
Department of Homeland Security............. 1,306.1 ............ 1,255.1 ............. 1,276.7
Department of Justice....................... 37.4 0.5 40.0 ............. 43.9
Department of the Treasury.................. ........... ............ ........... ............. 1.8
National Science Foundation................. 27.0 ............ 27.0 ............. 25.0
Nuclear Regulatory Commission............... 27.8 ............ 23.4 ............. 21.9
-------------------------------------------------------------------
Total, Defending Against Catastrophic 8,573.7 122.4 8,460.6 ............. 8,828.9
Threats....................................
----------------------------------------------------------------------------------------------------------------
The major requirements addressed in this mission area include:
Preventing terrorist use of CBRN weapons through detection
systems and procedures, and improving decontamination
techniques; and
Developing countermeasures, such as vaccines and other drugs
to protect the public from the threat of a CBRN attack or
other public health emergency.
To protect against a nuclear or radiological weapon entering the
country, the Domestic Nuclear Detection Office (DNDO) was created in
2005 within DHS to coordinate the Nation's nuclear detection efforts.
DNDO, together with the Departments of State, Energy, Defense, and
Justice, is responsible for developing and deploying a comprehensive
system to detect and report any attempt to import a nuclear explosive
device or radiological material into the United States. DNDO is also
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 2008 Budget
includes $562 million for DNDO, a 17 percent increase from the 2007
level.
In 2008, DNDO will invest $100 million in transformational research
and development aimed at enhancing our ability to detect, identify, and
attribute nuclear and radiological materials. This research looks beyond
current capabilities and seeks to find new scientific tools and
methodologies that may prove useful in broad efforts to focus the
Nation's resources toward countering the threat of nuclear and
radiological devices. DNDO's budget also includes $178 million for the
deployment of both fixed and mobile radiation portal monitors at
strategic points of entry throughout the country. An additional $30
million will be used to improve the detection of radiological and
nuclear materials in and around the Nation's major urban areas under a
program called Securing the Cities. Together with overseas non-
proliferation efforts led by the Department of State, and overseas
detection capabilities managed by the Department of Energy, these
programs seek to create a seamless approach toward preventing terrorists
anywhere in the world from acquiring, transporting, or introducing these
materials into the United States.
To counter the threat of CBRN weapons, the Budget continues to invest
in efforts to decrease the time between an attack and implementation of
Federal, State and local response protocols. 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. DHS will therefore continue to support
efforts such as 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, thereby
allowing the distribution of life-saving treatment and preventative
measures before the development of serious and widespread illnesses.
Beginning in 2008, DHS bio-defense programs such as BioWatch and
biosurveillance will be consolidated in the newly established Office of
Health Affairs. However, on-going research and development into next-
generation bio-sensors that are able to better detect biological
pathogens will continue in DHS's Science and Technology Directorate.
A key element in defending against catastrophic threats is developing
and maintaining adequate countermeasures for a CBRN attack. This not
only means
[[Page 29]]
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. The Budget continues HHS's investment in
developing medical countermeasures to CBRN threats with $1.9 billion in
funding, which is more than $1.8 billion over the level prior to
September 11th (this includes funding for programs focused on
chemical and radiological and nuclear countermeasures referenced below).
For 2008, the Budget includes nearly $190 million for the advanced
development of medical countermeasures against threats of bioterrorism.
Large investments in basic research of medical countermeasures at HHS
have helped create multiple promising products to protect the public
against the threat of a terrorist attack. These investments will
accelerate the development of these products to help Project BioShield
acquire them more quickly for inclusion in the Strategic National
Stockpile.
HHS will also continue to improve human health surveillance with $88
million dedicated to biosurveilance activities, including the BioSense
program (allowing local, State, and national public health authorities
to monitor ``real-time'' trends in data from hospitals, emergency
departments, and laboratories to identify and characterize potential
human health threats), increasing laboratory capacity, and augmenting
the number and quality of border health and quarantine stations. The
Food and Drug Administration and the 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.
DOD defends the nation against catastrophic threats by undertaking
long-term research on chemical and biological threats and by developing
strategies to counter the risk of such attacks. DOD's efforts in
maritime defense and interdiction provide early detection and response
to possible CBRN threats. DOD also conducts anti-terrorism planning to
defend against a potential CBRN or other terrorist attack against a
military base or installment. Finally, the U.S. Northern Command, the
military command responsible for DOD's homeland defense activities, is
included in this category.
Table 3-8. EMERGENCY PREPAREDNESS AND RESPONSE FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007
Agency 2006 2006 2007 Supplemental/ 2008
Actual Supplemental Enacted/CR Emergency Request
----------------------------------------------------------------------------------------------------------------
Department of Defense....................... 340.4 46.2 394.5 ............. 487.1
Department of Energy........................ 119.4 ............ 119.4 ............. 156.3
Department of Health and Human Services..... 2,364.2 0.1 2,279.9 ............. 2,289.7
Department of Homeland Security............. 1,842.9 15.3 1,821.6 ............. 1,755.6
Other Agencies.............................. 325.4 ............ 320.5 ............. 333.3
-------------------------------------------------------------------
Total, Emergency Preparedness and Response.. 4,992.3 61.6 4,935.9 ............. 5,022.0
Plus Mandatory Communications ........... ............ 1,000.0 ............. ...........
Interoperability Grants..................
-------------------------------------------------------------------
Total, Emergency Preparedness and Response, 4,992.3 61.6 5,935.9 ............. 5,022.0
including Mandatory Communications
Interoperability Grants....................
----------------------------------------------------------------------------------------------------------------
National Strategy Mission Area: Emergency Preparedness and Response
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. Response to
natural disasters, including catastrophic natural events such as
Hurricane Katrina, does not directly fall within the definition of a
homeland security activity for funding purposes, as defined by Section
889 of the Homeland Security Act of 2002. However, in preparing for
terrorism-related threats, many of the activities within this mission
area also support preparedness for catastrophic natural disasters.
Additionally, lessons learned from the response to Hurricane Katrina
will help to revise and strengthen catastrophic response planning.
HHS, the largest participant in this mission area ($2.3 billion, or
48.4 percent, in 2008), assists States, localities and hospitals to
upgrade public health capacity and maintains a national stockpile of
medicines and vaccines for use following an event. DHS maintains the
second largest share of funding in this category ($1.5 billion, or 30.7
percent, for 2008), mainly for preparedness grant assistance to State
and local first responders. A total of 23 other agencies include
emergency preparedness and response funding. A number of agencies
maintain specialized response assets that may be called upon in select
circumstances, and others report only funding for their agency's
internal preparedness capability. The major requirements addressed in
this mission area include:
[[Page 30]]
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 preparedness 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;
and
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-hazards National Response Plan. The
National Incident Management System was simultaneously developed to
integrate a standardized Incident Command System throughout Federal,
State and local response agencies and organizations. Additionally, the
release of a unified National Preparedness Goal will provide a new
framework for guiding Federal, State, and local investments. In order to
ensure that these investments translate into improvements in
preparedness, we must continue to identify capability gaps 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 building and enhancing response capabilities, and not
simply supplanting normal operating expenses. DHS is leading an
interagency effort to better match Federal resources with achieving
national preparedness goals.
From 2001 through 2007, the Federal Government has allocated over $16
billion in State and local terrorism preparedness funding from the
Departments of Homeland Security, Health and Human Services, and
Justice, increasing spending from an annual level of approximately $350
million in 2001 to $2.9 billion in the 2008 request. The funding growth
has been directed to Federal programs and grant assistance which support
State and local preparedness and response activities, including
equipping, training and exercising first responders, and preparing the
public health infrastructure, for a range of terrorist threats. The
Federal Government has taken steps to rationalize and simplify the
distribution of State and local assistance; better target funds based on
risk and effectiveness; and develop and implement the seven national
priorities and 37 target capabilities identified in the National
Preparedness Goal.
The 2008 Budget provides over $100 million for DHS programs which
train and exercise first responders in preparation for catastrophic
events including the National Exercise Program and the Center for
Domestic Preparedness. In addition to these programs, DHS will provide
grant funding to State and local agencies to support approximately 1,200
all-hazards preparedness exercises annually in 2007 and in 2008. The
2008 Budget also provides grants which support coordinated terrorism
preparedness training and equipment for State and local responders
across the various responder agencies. The 2008 request includes over
$1.5 billion for terrorism preparedness grants to be administered by the
Office of Grant Programs within DHS, and proposes to continue current
progress on the grant allocation process to better address threats and
needs. In addition, to supplement assistance for public safety
communications projects available through the DHS grants, the Department
of Commerce, in consultation with DHS, will be awarding $1 billion in
additional grants for first responder communications interoperability to
qualified applicants from anticipated spectrum auction receipts. The
full outlay and impact of these funds will begin to be realized in FY
2008. The Budget also supports a range of Federal response capabilities,
including providing $110 million for the Department of Energy's Nuclear
Emergency Support Team, $20 million within DHS for the Federal Emergency
Management Agency's Urban Search and Rescue teams, $53 million for the
National Disaster Medical System, 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 order to ensure that the nation is prepared for dealing with a
biological attack, including pandemic influenza, the Administration
continues to make significant investments in medical countermeasures
through Project BioShield. \4\ While the stockpiling of medical
countermeasures is the primary goal, BioShield is also 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 that they are safe
and effective enough to be added to the Strategic National Stockpile. As
a result, this program also provides an incentive for the development
and manufacturing of advanced countermeasures, ensuring that new and
improved countermeasures will be available in the future. The Budget
includes $581 million to maintain and augment this 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
includes funding for storage and maintenance of products purchased
through BioShield.
---------------------------------------------------------------------------
\4\ BioShield is a shared responsibility, joining the intelligence
capabilities of DHS with the medical expertise of HHS.
---------------------------------------------------------------------------
Finally, HHS has the lead role in preparing public health providers
for catastrophic terrorism. In addition to providing additional funding
to expand HHS's public health and medical response capabilities,
including disaster medical assistance, the 2008 Budget also provides
[[Page 31]]
nearly $414 million to continue improvements for hospital infrastructure
and $698 million 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 over
$9 billion.
Non-Federal Expenditures \5\
---------------------------------------------------------------------------
\5\ 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 infrastructure; 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 continue to place a high priority on
and provide additional resources for security. On the other hand, many
entities have not increased their spending. A 2004 survey conducted by
the National Association of Counties 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. \6\
---------------------------------------------------------------------------
\6\ 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. A
2003 survey conducted by the Conference Board showed that 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. \7\ Given the
difficulty of obtaining survey results that are representative of the
entire universe of States, localities, and businesses, it is expected
that there will be a wide range of estimates on non-Federal security
spending for critical infrastructure protection.
---------------------------------------------------------------------------
\7\ Source: Conference Board, ``Corporate Security Management'' 2003.
---------------------------------------------------------------------------
Additional Tables
The tables in the Federal expenditures section above present data
based on the President's policy for the 2008 Budget. The tables below
present additional policy and baseline data, as directed by the Homeland
Security Act of 2002.
[[Page 32]]
Estimates by Agency:
Table 3-9. DISCRETIONARY FEE-FUNDED HOMELAND SECURITY ACTIVITIES BY AGENCY
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007
Agency 2006 2006 2007 Supplemental/ 2008
Actual Supplemental Enacted/CR Emergency Request
----------------------------------------------------------------------------------------------------------------
Department of Energy........................ 1.9 ............ 1.9 ............. 3.3
Department of Homeland Security............. 2,422.0 ............ 2,885.0 ............. 3,319.0
Department of State......................... 815.0 ............ 1,166.7 ............. 1,323.1
General Services Administration............. 91.8 ............ 66.9 ............. 34.3
Social Security Administration \1\.......... 175.0 ............ 193.3 ............. 215.7
Federal Communications Commission........... 2.3 ............ 2.3 ............. 3.6
Nuclear Regulatory Commission............... ........... ............ 66.0 ............. 68.9
Securities and Exchange Commission.......... 5.0 ............ 14.3 ............. 18.3
-------------------------------------------------------------------
Total, Discretionary Homeland Security Fee- 3,512.9 ............ 4,396.4 ............. 4,986.2
Funded Activities..........................
----------------------------------------------------------------------------------------------------------------
\1\ Social Security physical and computer security measures are financed by amounts from the Social Security
trust funds and payroll taxes.
Table 3-10. MANDATORY HOMELAND SECURITY FUNDING BY AGENCY
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007
Agency 2006 2006 2007 Supplemental/ 2008
Actual Supplemental Enacted/CR Emergency Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture................... 177.4 ............ 182.0 ............. 194.5
Department of Commerce...................... 14.1 ............ 16.3 ............. 18.3
Department of Energy........................ 12.0 ............ 12.0 ............. 13.0
Department of Health and Human Services..... 16.6 ............ 15.9 ............. 14.3
Department of Homeland Security............. 2,032.8 ............ 2,257.5 ............. 2,042.2
Department of Labor......................... 3.9 ............ 3.9 ............. 8.8
-------------------------------------------------------------------
Total, Homeland Security Mandatory Programs. 2,256.9 ............ 2,487.7 ............. 2,291.0
Plus Mandatory Communications ........... ............ 1,000.0 ............. ...........
Interoperability Grants..................
-------------------------------------------------------------------
Total, Homeland Security Mandatory Programs 2,256.9 ............ 3,487.7 ............. 2,291.0
including Mandatory Communications
Interoperability Grants....................
----------------------------------------------------------------------------------------------------------------
[[Page 33]]
Table 3-11. BASELINE ESTIMATES--TOTAL HOMELAND SECURITY FUNDING BY AGENCY
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007 Baseline
Agency Enacted/ ------------------------------------------------------
CR \1\ 2008 2009 2010 2011 2012
----------------------------------------------------------------------------------------------------------------
Department of Agriculture..................... 523 545 559 574 587 602
Department of Commerce \2\.................... 193 200 205 210 215 222
Department of Defense......................... 16,538 17,064 17,569 18,077 18,591 19,110
Department of Education....................... 24 25 25 26 26 27
Department of Energy.......................... 1,695 1,738 1,777 1,817 1,856 1,896
Department of Health and Human Services....... 4,313 4,422 4,532 4,640 4,752 4,853
Department of Homeland Security............... 28,572 29,562 30,549 31,508 32,480 33,466
Department of Housing and Urban Development... 2 2 2 2 2 3
Department of the Interior.................... 45 46 48 50 53 55
Department of Justice......................... 3,090 3,210 3,327 3,446 3,566 3,694
Department of Labor........................... 49 54 51 52 52 53
Department of State........................... 1,239 1,268 1,299 1,327 1,354 1,380
Department of Transportation.................. 179 187 193 202 210 219
Department of the Treasury.................... 109 113 116 120 123 127
Department of Veterans Affairs................ 245 252 259 268 276 282
Corps of Engineers............................ 43 44 45 46 47 48
Environmental Protection Agency............... 133 137 141 145 148 153
Executive Office of the President............. 20 20 21 21 22 23
General Services Administration............... 74 75 78 79 80 81
National Aeronautics and Space Administration. 199 203 208 213 217 222
National Science Foundation................... 344 352 360 368 376 384
Office of Personnel Management................ 3 3 3 3 3 3
Social Security Administration................ 194 217 186 190 192 196
District of Columbia.......................... 8 8 8 9 9 9
Federal Communications Commission............. 2 2 2 2 2 2
Intelligence Community Management Account..... 56 57 59 60 61 62
National Archives and Records Administration.. 18 18 19 19 20 20
Nuclear Regulatory Commission................. 66 69 71 74 75 78
Securities and Exchange Commission............ 14 18 18 19 19 20
Smithsonian Institution....................... 80 84 88 92 96 100
United States Holocaust Memorial Museum....... 8 8 8 8 9 9
Corporation for National and Community Service 20 20 21 21 21 22
-----------------------------------------------------------------
Total, Homeland Security Budget Authority..... 58,098 60,023 61,847 63,688 65,540 67,421
Less Department of Defense.................. -16,538 -17,064 -17,569 -18,077 -18,591 -19,110
-----------------------------------------------------------------
Non-Defense Homeland Security Budget 41,560 42,959 44,278 45,611 46,949 48,311
Authority, excluding Mandatory
Interoperability Communications Grants and
BioShield \3\................................
Less Fee-Funded Homeland Security Programs.. -4,397 -4,833 -4,909 -5,020 -5,124 -5,228
Less Mandatory Homeland Security Programs... -2,489 -2,290 -2,426 -2,531 -2,631 -2,735
-----------------------------------------------------------------
Net Non-Defense, Discretionary Homeland 34,674 35,836 36,943 38,060 39,194 40,348
Security Budget Authority, excluding
Mandatory Interoperability Communications
Grants and Bioshield \3\.....................
Plus Mandatory Communications 1,000 ......... ......... ......... ......... .........
Interoperability Grants....................
Plus BioShield.............................. ......... ......... 2,175 ......... ......... .........
-----------------------------------------------------------------
Net Non-Defense, Discretionary Homeland 35,674 35,836 39,118 38,060 39,194 40,348
Security Budget Authority, including
Mandatory Interoperability Communications
Grants and BioShield \3\.....................
Obligations Limitations
Department of Transportation Obligations 121 124 126 130 133 135
Limitation.................................
----------------------------------------------------------------------------------------------------------------
\1\ 2007 levels include enacted supplemental appropriations ($1,696 million in DHS) but exclude GWOT
supplemental requests in DHS, DOJ, and Treasury totaling $219 million.
\2\ DOC's 2007 gross Continuing Resolution full-year estimate for homeland security excludes $1 billion in
mandatory borrowing authority to provide Federal grants to public safety agencies for communications
interoperability purposes. Although technically scored in 2007, this funding will be made available from
proceeds of the Federal Communications Commission's 2008 auction of returned television spectrum.
\3\ The Deficit Reduction Act of 2005 appropriated $1 billion from anticipated spectrum auction receipts for the
Department of Commerce, in consultation with the Department of Homeland Security, to make grants to public
safety agencies for communications interoperability purposes.
[[Page 34]]
Estimates by Budget Function:
Table 3-12. HOMELAND SECURITY FUNDING BY BUDGET FUNCTION
(budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007
Agency 2006 Enacted/ 2008
Actual \1\ CR \2\ Request \3\
----------------------------------------------------------------------------------------------------------------
National Defense............................................................ 22,056 20,463 21,359
International Affairs....................................................... 1,107 1,239 1,406
General Science Space and Technology........................................ 616 602 635
Energy...................................................................... 124 106 122
Natural Resources and the Environment....................................... 288 264 292
Agriculture................................................................. 581 506 679
Commerce and Housing Credit4................................................ 149 154 180
Transportation.............................................................. 8,186 9,161 9,453
Community and Regional Development.......................................... 2,212 2,257 2,010
Education, Training, Employment and Social Services......................... 177 174 179
Health...................................................................... 4,393 4,317 4,451
Medicare.................................................................... 12 15 14
Income Security............................................................. 8 8 14
Social Security............................................................. 175 193 216
Veterans Benefits and Services.............................................. 299 245 270
Administration of Justice................................................... 15,917 17,792 18,941
General Government.......................................................... 816 821 890
-----------------------------------
Total, Homeland Security Budget Authority................................... 57,116 58,317 61,111
Less National Defense, DoD................................................ -17,508 -16,538 -17,465
-----------------------------------
Non-Defense Homeland Security Budget Authority, excluding Mandatory 39,608 41,779 43,646
Interoperability Communications Grants \4\.................................
Less Fee-Funded Homeland Security Programs................................ -3,509 -4,317 -4,899
Less Mandatory Homeland Security Programs................................. -2,257 -2,489 -2,290
-----------------------------------
Net Non-Defense, Discretionary Homeland Security Budget Authority, excluding 33,842 34,973 36,457
Mandatory Interoperability Communications Grants \4\.......................
Plus Mandatory Interoperability Communications Grants..................... .......... 1,000 ...........
-----------------------------------
Net Non-Defense, Discretionary Homeland Security Budget Authority, including 33,842 35,973 36,457
Mandatory Interoperability Communications Grants \4\.......................
----------------------------------------------------------------------------------------------------------------
\1\ 2006 actual levels include enacted supplemental appropriations.
\2\ For 2007, only DOD and DHS have enacted appropriations; all other agencies' funding levels are based on
their full-year CR rates. 2007 funding levels also include enacted supplemental appropriations ($1,696
million) and requested 2007 supplemental budget authority ($219 million) in the GWOT supplemental request.
\3\ DOC's 2007 gross Continuing Resolution full-year estimate for homeland security excludes $1 billion in
mandatory borrowing authority to provide Federal grants to public safety agencies for communications
interoperability purposes. Although technically scored in 2007, this funding will be made available from
proceeds of the Federal Communications Commission's 2008 auction of returned television spectrum.
\4\ The Deficit Reduction Act of 2005 appropriated $1 billion from anticipated spectrum auction receipts for the
Department of Commerce, in consultation with the Department of Homeland Security, to make grants to public
safety agencies for communications interoperability purposes.
[[Page 35]]
Table 3-13. BASELINE ESTIMATES--HOMELAND SECURITY FUNDING BY BUDGET FUNCTION
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007 Baseline
Budget Authority Enacted/ ------------------------------------------------------
CR\1\ 2008 2009 2010 2011 2012
----------------------------------------------------------------------------------------------------------------
National Defense.............................. 20,264 20,897 21,508 22,120 22,738 23,364
International Affairs......................... 1,239 1,268 1,299 1,327 1,354 1,380
General Science Space and Technology.......... 602 616 630 644 657 672
Energy........................................ 106 111 112 116 117 121
Natural Resources and the Environment......... 264 271 279 287 295 304
Agriculture................................... 506 528 541 555 568 583
Commerce and Housing Credit \2\............... 154 164 167 172 175 181
Transportation................................ 9,161 9,537 9,832 10,132 10,438 10,745
Community and Regional Development............ 2,257 2,312 2,367 2,418 2,469 2,523
Education, Training, Employment and Social 174 179 186 192 197 204
Services.....................................
Health........................................ 4,317 4,425 4,536 4,644 4,755 4,855
Medicare...................................... 15 16 16 17 18 19
Income Security............................... 8 13 8 8 8 9
Social Security............................... 193 216 185 189 191 195
Veterans Benefits and Services................ 245 252 259 268 276 282
Administration of Justice..................... 17,775 18,379 19,057 19,712 20,375 21,053
General Government............................ 818 839 865 887 909 931
-----------------------------------------------------------------
Total, Homeland Security Budget Authority..... 58,098 60,023 61,847 63,688 65,540 67,421
Less National Defense, DoD.................. -16,538 -17,064 -17,569 -18,077 -18,591 -19,110
-----------------------------------------------------------------
Non-Defense, Discretionary Homeland Security 41,560 42,959 44,278 45,611 46,949 48,311
Budget Authority, excluding Mandatory
Interoperability Communications Grants and
Bioshield \3\................................
Less Fee-Funded Homeland Security Programs.. -4,397 -4,833 -4,909 -5,020 -5,124 -5,228
Less Mandatory Homeland Security Programs... -2,489 -2,290 -2,426 -2,531 -2,631 -2,735
-----------------------------------------------------------------
Net Non-Defense, Discretionary Homeland 34,674 35,836 36,943 38,060 39,194 40,348
Security Budget Authority, excluding
Mandatory Interoperability Communications
Grants and Bioshield \3\.....................
Plus Mandatory Communications 1,000 ......... ......... ......... ......... .........
Interoperability Grants....................
Plus BioShield.............................. ......... ......... 2,175 ......... ......... .........
-----------------------------------------------------------------
Net Non-Defense, Discretionary Homeland 35,674 35,836 39,118 38,060 39,194 40,348
Security Budget Authority, including
Mandatory Interoperability Communications
Grants and BioShield \3\.....................
Obligations Limitations
Department of Transportation Obligations 199 203 208 213 217 222
Limitation.................................
----------------------------------------------------------------------------------------------------------------
\1\ 2007 levels include enacted supplemental appropriations ($1,696 million in DHS) but exclude GWOT
supplemental requests in DHS, DOJ, and Treasury totaling $219 million.
\2\ DOC's 2007 gross full-year CR estimate for homeland security excludes $1 billion in mandatory borrowing
authority to provide Federal grants to public safety agencies for communications interoperability purposes.
Although technically scored in 2007, this funding will be made available from proceeds of the Federal
Communications Commission's 2008 auction of returned television spectrum.
\3\ The Deficit Reduction Act of 2005 appropriated $1 billion from anticipated spectrum auction receipts for the
Department of Commerce, in consultation with the Department of Homeland Security, to make grants to public
safety agencies for communications interoperability purposes.
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.