[Analytical Perspectives]
[Crosscutting Programs]
[3. Homeland Security Funding Analysis]
[From the U.S. Government Printing Office, www.gpo.gov]
[[Page 17]]
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CROSSCUTTING PROGRAMS
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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 concerted national effort to prevent terrorist attacks within the
United States, reduce America's vulnerability to terrorism, and minimize
the damage and recover from any attacks that do occur. Accordingly, we
have identified and pursued terrorists abroad, and implemented an array
of measures to secure our citizens and resources at home. We have 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; protect our
critical infrastructure and key resources; and strengthen America's
response and recovery capabilities in our cities and local communities.
Elements of our National Strategy for Homeland Security 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 the U.S. government
has no more important mission than securing the Homeland.
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 State, local, and
private sector expenditures. Since not all activities carried out by DHS
constitute homeland security funding (e.g. response to natural disasters
and 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 2009 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 2009, the President's Budget includes
$66.3 billion of gross budget authority for homeland security
activities, a $4.5 billion (7.3 percent) increase over the 2008 enacted
level. \3\ Excluding mandatory spending, fees, and the Department of
Defense's (DOD) homeland security budget, the 2009 Budget proposes a
net, non-Defense, discretionary budget authority level of $40.1 billion,
which is an increase of $3.9 billion (10.7 percent) over the 2008 level
(see Table 3-1).
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\3\ The 2009 gross homeland security funding request level excludes
$2.2 billion for BioShield.
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A total of 32 agency budgets comprise Federal homeland security
funding in 2009. Of those, five agencies--the Departments of Homeland
Security, Defense, Health and Human Services (HHS), Justice (DOJ) and
Energy (DOE)--account for approximately $60.7 billion (91 percent) of
total Government-wide gross discretionary homeland security funding in
2009.
[[Page 20]]
Table 3-1. HOMELAND SECURITY FUNDING BY AGENCY
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007 2008
Budget Authority 2007 Supplemental/ 2008 Supplemental/ 2009
Enacted Emergency Enacted Emergency \1\ Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture................ 540.5 .............. 570.0 .............. 690.9
Department of Commerce \2\............... 205.0 .............. 206.9 .............. 262.3
Department of Defense.................... 16,538.3 .............. 17,374.4 .............. 17,645.9
Department of Education.................. 26.2 .............. 27.1 .............. 30.3
Department of Energy..................... 1,719.2 .............. 1,828.7 .............. 1,942.9
Department of Health and Human Services.. 4,327.0 .............. 4,300.6 .............. 4,456.7
Department of Homeland Security.......... 26,857.9 2,695.6 30,100.6 2,639.7 32,817.1
Department of Housing and Urban 1.9 .............. 1.9 .............. 4.1
Development.............................
Department of the Interior............... 47.8 .............. 49.6 .............. 43.5
Department of Justice.................... 3,306.4 211.3 3,273.5 249.5 3,794.9
Department of Labor...................... 49.4 .............. 47.5 .............. 51.4
Department of State...................... 1,241.6 .............. 1,961.5 .............. 2,465.6
Department of Transportation............. 205.7 .............. 205.3 .............. 221.2
Department of the Treasury............... 126.8 .............. 116.0 .............. 126.6
Department of Veterans Affairs........... 259.8 .............. 271.7 .............. 348.1
Corps of Engineers....................... 42.0 .............. 42.0 .............. 42.0
Environmental Protection Agency.......... 166.7 .............. 138.1 .............. 170.3
Executive Office of the President........ 20.8 .............. 21.2 .............. 20.7
General Services Administration.......... 168.2 .............. 143.0 225.0 119.4
National Aeronautics and Space 199.2 .............. 205.2 .............. 203.0
Administration..........................
National Science Foundation.............. 385.4 .............. 373.9 .............. 379.0
Office of Personnel Management........... 2.8 .............. 2.3 .............. 2.5
Social Security Administration........... 194.0 .............. 212.6 .............. 221.5
District of Columbia..................... 8.5 .............. 3.4 .............. 15.0
Federal Communications Commission........ 2.3 .............. 2.3 .............. 2.3
Intelligence Community Management Account 56.0 .............. 122.0 .............. 12.6
National Archives and Records 17.9 .............. 17.7 .............. 18.8
Administration..........................
Nuclear Regulatory Commission............ 72.2 .............. 72.1 .............. 72.8
Securities and Exchange Commission....... 14.3 .............. 16.4 .............. 15.9
Smithsonian Institution.................. 80.7 .............. 93.1 .............. 96.6
United States Holocaust Memorial Museum.. 7.8 .............. 8.0 .............. 9.0
Corporation for National and Community 33.6 .............. ........... .............. ...........
Service.................................
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Total, Homeland Security Budget Authority 56,925.9 2,906.9 61,808.4 3,114.3 66,302.5
Less Department of Defense............... -16,538.3 .............. -17,374.4 .............. -17,645.9
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Non-Defense Homeland Security BA, 40,387.5 2,906.9 44,434.0 3,114.3 48,656.6
excluding Mandatory PSIC Grants and
BioShield...............................
Less Fee-Funded Homeland Security -4,534.4 .............. -5,347.7 .............. -5,355.3
Programs..............................
Less Mandatory Homeland Security -2,435.5 .............. -2,871.7 .............. -3,223.9
Programs..............................
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Net Non-Defense Discretionary Homeland 33,417.7 2,906.9 36,214.6 3,114.3 40,077.3
Security BA, excluding Mandatory PSIC
Grants and BioShield....................
Plus Mandatory PSIC Grants............. 1,000.0 .............. ........... .............. ...........
Plus BioShield......................... ........... .............. ........... .............. 2,175.0
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Net Non-Defense Discretionary Homeland 34,417.7 2,906.9 36,214.6 3,114.3 42,252.3
Security BA, including Mandatory PSIC
Grants and BioShield....................
Obligations Limitations
Department of Transportation Obligations 121.0 .............. 121.0 .............. 121.3
Limitation..............................
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\1\ The 2008 supplemental and emergency funding levels for the Departments of Homeland Security (DHS) and
Justice (DOJ) include both enacted and requested supplemental and emergency funding. DHS supplemental funding
includes the pending $113 million and DOJ supplemental funding includes the pending $106 million.
\2\ DOC's 2007 gross full-year CR level per H.J.Res. 20 for homeland security excludes $1 billion in mandatory
borrowing authority for the Public Safetly Interoperable Communications (PSIC) Grants program 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, at which time DOC will begin obligating funds.
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, we must apply a risk management approach across all
homeland security efforts in order to identify and assess potential
hazards (including their downstream effects), determine what levels of
relative risk are acceptable, and prioritize and allocate resources
among all homeland security partners, both public and private, to
prevent, protect against, and respond to and recover from incidents.
[[Page 21]]
Homeland security is a shared responsibility built upon a foundation
of partnerships--Federal, State, local, and Tribal governments, the
private and non-profit sectors, communities, and individual citizens all
share common goals, responsibilities, as well as accountability, for
securing the Homeland. In addition, partnerships in homeland security
also extend beyond our Nation's borders, with international cooperation
continuing to be an enduring feature of our approach to threats that
transcend jurisdictional and geographic boundaries.
The latest National Strategy for Homeland Security of 2007 continues
to provide a framework for addressing these challenges first set out by
the President's 2002 version. 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.
In October 2007, the President issued an updated National Strategy for
Homeland Security, which is serving to guide, organize, and unify our
Nation's homeland security efforts. This updated National Strategy,
which builds directly from the first National Strategy for Homeland
Security issued in July 2002, reflects our increased understanding of
the terrorist threats confronting the United States and incorporates
lessons learned from exercises and real-world catastrophes. It provides
a common framework through which our entire Nation should focus its
homeland security efforts on the following four goals:
prevent and disrupt terrorist attacks;
protect the American people, our critical infrastructure,
and key resources;
respond to and recover from incidents that do occur; and
continue to strengthen the homeland security foundation we
have built to ensure our long-term success.
Table 3-2. POLICY ESTIMATES--HOMELAND SECURITY FUNDING BY NATIONAL STRATEGY MISSION AREA
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007 2008
Agency 2007 Supplemental/ 2008 Supplemental/ 2009
Enacted Emergency Enacted Emergency Request
----------------------------------------------------------------------------------------------------------------
Intelligence and Warning................... 670.8 15.2 682.7 39.1 765.9
Border and Transportation Security......... 19,365.3 2,253.6 22,286.8 2,842.7 25,712.5
Domestic Counterterrorism.................. 5,026.6 222.8 4,896.8 154.7 5,392.9
Protecting Critical Infrastructure and Key 18,388.2 228.5 19,926.1 15.8 20,164.5
Assets....................................
Defending Against Catastrophic Threats..... 8,595.9 149.9 8,278.1 2.0 9,054.8
Emergency Preparedness and Response........ 4,822.2 37.0 5,551.4 60.0 5,013.1
Other...................................... 56.9 ............. 186.5 ............. 198.8
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Total, Homeland Security Budget Authority.. 56,925.9 2,906.9 61,808.4 3,114.3 66,302.5
Plus Mandatory Interoperability 1,000.0 ............. ........... ............. ...........
Communications Grants...................
Plus BioShield........................... ........... ............. ........... ............. 2,175.0
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Total Homeland Security Budget Authority 57,925.9 2,906.9 61,808.4 3,114.3 68,477.5
plus Mandatory PSIC Grants and BioShield..
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For this year's analysis, departments and agencies categorized their
funding data based on the critical mission areas defined in the National
Strategy for Homeland Security (July 2002), which are: Intelligence and
Warning; Border and Transportation Security; Domestic Counterterrorism;
Protecting Critical Infrastructures and Key Assets; Defending Against
Catastrophic Threats; and Emergency Preparedness and Response. Next
year's categorization will be based on the four goals of the 2007
National Strategy for Homeland Security.
At the Federal level, 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 departments and agencies, along with State and local
governments and the private sector, are working together to develop
measurable goals. Finally, in some areas, Federal departments and
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 tracking and updating 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
[[Page 22]]
intelligence and warning category may be utilized to inform law
enforcement activities in the domestic counterterrorism category.
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 activity, it does not necessarily fit into a
single homeland security 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 mission areas set
forth in the 2002 National Strategy for Homeland Security ; more
detailed analysis is provided in subsequent mission-specific analysis
sections.
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 2009, funding for intelligence and warning is distributed
between DHS (53 percent), primarily in the Office of Intelligence and
Analysis; DOJ (43 percent), primarily in the Federal Bureau of
Investigation (FBI); and other Intelligence Community members (4
percent). The 2009 funding for intelligence and warning activities is
12.2 percent above the 2008 level.
Table 3-3. INTELLIGENCE AND WARNING FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007 2008
Agency 2007 Supplemental/ 2008 Supplemental/ 2009
Enacted Emergency Enacted Emergency Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture.................. 7.6 ............. 16.8 ............. 16.8
Department of Commerce..................... 1.8 ............. 2.0 ............. 2.0
Department of Homeland Security............ 380.1 8.0 370.2 ............. 403.0
Department of Justice...................... 219.5 7.2 213.8 39.1 329.3
Department of the Treasury................. 5.7 ............. 3.6 ............. 7.3
Intelligence Community Management Account.. 56.0 ............. 76.4 ............. 7.5
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Total, Intelligence and Warning............ 670.8 15.2 682.7 39.1 765.9
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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 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
[[Page 23]]
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 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.
Over the past seven 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 percentage of the FBI's
finished intelligence reports that were responsive to National
Intelligence Priority Framework topics (which is a measure of how
responsive the program is to the U.S. Intelligence Community's
collection requirements) increased from 79 percent in 2005 to 92 percent
in 2007. In 2007, 33 percent of human sources that the FBI obtained
information from reported on Tier 1 threat groups, which is composed of
entities with high intentions to harm the homeland and moderate or
strong links with al-Qa'ida. Furthermore, the FBI's Terrorist Screening
Center has significantly increase the number of positive encounters
(database hits) with subjects through multiple Federal screening
processes from approximately 5,300 hits in 2004 to over 21,000 in 2007.
The President's 2009 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
information technology (IT) systems that reduce paperwork and facilitate
information sharing; and expand partnerships with Federal, state, local
and foreign agencies, as well as the private sector. Among the
intelligence-related enhancements in the 2009 budget are $26 million for
the confidential human source validation program, $25 million for
foreign language translation programs and $10 million for technical
collections.
As a result of the Department of Homeland Security's 2006
reorganization (Second Stage Review), a new Office of Intelligence and
Analysis (I&A) 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.
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 and intelligence analysts 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, with over 18 State and Local Fusion Centers
already able to access DHS secret-level classified systems through HSDN.
All 50 States and major urban areas are connected to HSIN, and it is
being rolled out to major counties as well. Furthermore, in recognition
of the limitations of virtual interactions through electronic
communications networks, beginning in 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. In 2007, DHS disseminated a total of 355
intelligence products to its Federal, State, local, tribal, and private
sector partners.
[[Page 24]]
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 ($23 billion, or 89 percent, in 2009) 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 a significant role. The President's 2009
request would increase funding for border and transportation security
activities by 15.4 percent over the 2008 level.
Table 3-4. BORDER AND TRANSPORTATION SECURITY FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007 2008
Agency 2007 Supplemental/ 2008 Supplemental/ 2009
Enacted Emergency Enacted Emergency Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture.................. 214.2 ............. 244.1 ............. 255.1
Department of Commerce..................... 1.5 ............. 1.6 ............. 1.8
Department of Homeland Security............ 17,823.7 2,253.6 20,004.5 2,511.7 22,970.8
Department of Justice...................... 20.6 ............. 4.5 106.0 4.6
Department of State........................ 1,190.3 ............. 1,901.8 ............. 2,395.5
Department of Transportation............... 14.6 ............. 15.3 ............. 10.7
General Services Administration............ 100.4 ............. 115.0 225.0 74.0
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Total, Border and Transportation Security.. 19,365.3 2,253.6 22,286.8 2,842.7 25,712.5
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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 2009 Budget provides approximately $9.5 billion for Customs and
Border Protection (CBP) including nearly $500 million in funding for
2,200 new Border Patrol agents. The President has committed to more than
doubling the size of the Border Patrol to 18,300 agents before he leaves
office and obtaining funding for an additional 1,700 by the end of 2009.
At the start of the President's administration, there were approximately
9,000 Border Patrol agents.
To further gain control of our borders, the Budget also continues
funding for technology and infrastructure along the border. In September
of 2006, DHS awarded a contract to implement the technological and
infrastructure component of its Secure Border Initiative (SBI) 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 $775 million 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 Mexican
illegal aliens apprehended are returned to Mexico immediately. The 2009
Budget includes $2.6 billion in detention and removal resources to
continue this success and supports a total of 33,000 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 2009
Budget includes an increase of $12 million for the 287(g) program and
the Law Enforcement Support Center, including the training of 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.
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 previously collected two digital
fingerprints and a digital photograph of all foreign visitors entering
the United States. In 2007,
[[Page 25]]
the number of biometric watch list hits for travelers processed at U.S.
ports of entry exceeded 6,000, and the number of hits for visa
applicants at consular offices exceeded 4,000. In November 2007, US-
VISIT introduced technology to collect 10 fingerprints from arriving
foreign visitors with the plan to roll-out 10-print collection to 8 more
ports soon. In order to ensure that US-VISIT has full coverage of all
potential visitors to the United States, all U.S. ports of entry will
transition to collecting 10 fingerprints by the end of 2008. The 2009
Budget includes $390 million to support the increased system
infrastructure and continue the progress toward interoperability with
the FBI's fingerprint system, the Integrated Automated Fingerprint
Identification System (IAFIS).
In order to further improve aviation security, in 2009, the
Administration will devote nearly $6.0 billion to the multi-layered,
risk-based aviation security system, including: $3 billion for over
48,000 Transportation Security Officers and technologies to screen
passengers and their baggage for weapons and explosives. TSA will
continue to provide specialized training in the detection of suspicious
behaviors, fraudulent documents, and improvised explosive devices, $131
million for enhancements at passenger checkpoints to improve the
detection of prohibited items, especially weapons and explosives,
through the use of additional sensors such as whole body imaging, liquid
bottle scanners, automated explosive sampling, and cast and prosthesis
scanners; and nearly $100 million for air cargo security inspectors,
canine teams, and the Certified Shipper Program to achieve 100 percent
screening of passenger air cargo in 2010.
The Budget will also recapitalize checked baggage screening devices
and accelerate deployment of inline systems that will increase baggage
throughput by up to 300 percent. The President's Budget proposes a
temporary, four-year surcharge on the passenger security fee of $0.50
per enplanement with a maximum increase of $1.00 per one-way trip. The
additional fee collections of $426 million would be deposited in the
mandatory Aviation Security Capital Fund to accelerate the deployment of
optimal checked baggage screening systems and address the need to
recapitalize existing equipment deployed immediately after September 11,
2001.
In the area of surface transportation security, TSA assessed
approximately 37 percent of national critical surface transportation
assets or systems in pipeline, maritime, mass transit, rail, highway,
motor carrier, and postal shipping sectors in 2007 and continues to
provide assistance to the Federal Emergency Management Agency (FEMA) in
its review of infrastructure protection grant applications. In 2009, TSA
will devote over $375 million for surface transportation security,
including funding for nearly 100 inspectors to conduct risk-based
assessments in the largest mass transit and rail systems.
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 2009, the Coast Guard
will continue to ensure compliance with MTSA port and vessel security
standards and regulations. The 2009 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 Department of State's Bureau of Consular Affairs is the second
largest contributor to border and transportation security. The
Department's Border Security Program includes visa, passport, American
Citizen Services and International Adoption programs. For foreign
visitors that require a visa, the Department of State collects the
visitor's biometric and biographic data, which is then checked against
U.S. government databases, 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 database checks improve the ability of DHS to make
admissibility decisions.
In addition, the Department of State will continue to respond to
demand for secure travel documents that will be required by the Western
Hemisphere Travel Initiative. 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.
Furthermore, the President's 2009 request significantly increases
funding for the Department of State's border security program to Mexico
for the purchase of x-ray systems to inspect trucks and trains, a mobile
x-ray van, patrol vehicles, cameras, fences, and training and systems
support to Mexican customs and immigration officials.
[[Page 26]]
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
DOJ (largely for the FBI) and DHS (largely for ICE), accounting for 52.7
and 45.5 percent of funding for 2009, respectively.
Table 3-5. DOMESTIC COUNTERRORISM FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007 2008
Agency 2007 Supplemental/ 2008 Supplemental/ 2009
Enacted Emergency Enacted Emergency Request
----------------------------------------------------------------------------------------------------------------
Department of Homeland Security............ 2,461.1 27.0 2,220.2 68.0 2,454.3
Department of Interior..................... 0.3 ............. 0.2 ............. 0.2
Department of Justice...................... 2,469.4 195.8 2,590.9 86.7 2,839.4
Department of Transportation............... 20.0 ............. 23.0 ............. 29.0
Department of the Treasury................. 74.4 ............. 62.4 ............. 69.8
Social Security Administration............. 1.4 ............. 0.2 ............. 0.2
--------------------------------------------------------------------
Total, Domestic Counterterrorism........... 5,026.6 222.8 4,896.8 154.7 5,392.9
----------------------------------------------------------------------------------------------------------------
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.
The President's 2009 Budget supports the FBI's top strategic priority:
to protect the United States from terrorist attacks. FBI continues to
build its counterterrorism capabilities post-9/11. Over the past seven
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 2007, the FBI reported
over 3,600 State and local law enforcement participants in its Joint
Terrorism Task Forces that are found all across the nation. Overall, FBI
resources in the domestic counterterrorism category have increased from
$0.9 billion in 2002 to $2 billion in 2009. Among the largest 2009
initiatives for enhancing counterterrorism capabilities are $28 million
for national security field investigations, $28 million for surveillance
operations, and $16 million for the Weapons of Mass Destruction
Directorate.
ICE works to deter and dismantle terrorist groups, individuals, and
companies involved in the illegal procurement and movement of weapons of
mass destruction and their materials and components. ICE National
Security Investigations personnel work closely with the Federal Bureau
of Investigation's Joint Terrorism Task Forces to utilize the collective
resources of the participating agencies for the prevention, deterrence,
and investigation of terrorism and related activities occurring in or
affecting the United States.
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 critical infrastructure and
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 critical infrastructure and key assets. DOD continues to
report the largest share of funding in this category for 2009 ($12
billion, or 59.8 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.
DHS has overall responsibility for prioritizing and executing
infrastructure protection activities at the national level and accounts
for $3.8 billion (18.7 percent) of 2009 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 2009
request increases funding for activities to protect critical
infrastructure and key assets by $238 million (1.2 percent) over the
2008 level.
Table 3-6. PROTECTING CRITICAL INFRASTRUCTURE AND KEY ASSETS FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007 2008
Agency 2007 Supplemental/ 2008 Supplemental/ 2009
Enacted Emergency Enacted Emergency Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture.................. 34.2 ............. 39.2 ............. 59.3
Department of Defense...................... 11,254.0 ............. 12,126.8 ............. 12,058.3
Department of Energy....................... 1,537.6 ............. 1,604.4 ............. 1,626.0
Department of Health and Human Services.... 185.4 ............. 192.4 ............. 199.6
Department of Homeland Security............ 3,107.3 222.0 3,840.4 ............. 3,768.4
Department of Justice...................... 545.0 6.5 409.4 15.8 571.4
Department of Transportation............... 155.5 ............. 149.3 ............. 162.7
Department of Veterans Affairs............. 217.7 ............. 216.3 ............. 277.4
National Aeronautics and Space 199.2 ............. 205.2 ............. 203.0
Administration............................
National Science Foundation................ 357.4 ............. 348.9 ............. 364.0
Social Security Administration............. 191.9 ............. 211.5 ............. 220.3
Other Agencies............................. 603.0 ............. 582.3 ............. 654.1
--------------------------------------------------------------------
Total, Protecting Critical Infrastructure 18,388.2 228.5 19,926.1 15.8 20,164.5
and Key Assets............................
----------------------------------------------------------------------------------------------------------------
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;
[[Page 27]]
Enabling effective partnerships to protect critical
infrastructure; and
Reducing threats and vulnerabilities in cyberspace.
Homeland Security Presidential 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 aligning protection efforts.
To provide the overall framework to integrate various critical
infrastructure protection activities, DHS developed the National
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. As a
result, each of the 17 sectors developed a Sector Specific Plan (SSP) as
part of the NIPP process. These plans build on the base NIPP plan and
establish partnership models through which public and private sector
security partners will work together to collect infrastructure
information, prioritize assets and protective programs, and develop
metrics to inform future initiatives.
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, as well as other major
security initiatives, will be part of the newly created NPPD.
The Office of Infrastructure Protection (IP) within NPPD oversees NIPP
implementation and is responsible for managing and prioritizing
infrastructure protection at the national level. IP conducts site visits
and assessments each year on critical infrastructure and provides
sector-specific threat and vulnerability information to the private
sector in partnership with DHS Intelligence and Analysis. In 2007, IP
also took on the responsibility for implementing DHS' chemical facility
security regulations, which ensure our nation's chemical facilities meet
risk-based performance standards for security. The 2009 Budget provides
$273 million for these activities. In conjunction with funding for the
Office of Infrastructure Protection, the Infrastructure Protection
Program (IPP) within FEMA consists of five grant programs funding
security enhancement projects in and around transportation assets and
other critical infrastructure sites. Awarded through the Office of
Grants and Training, IPP grants supplement State and local
infrastructure security efforts, especially detection and prevention
investments.
Cyberspace security is a key element of infrastructure protection. 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
works collaboratively with public, private, and international entities
to secure cyberspace and America's cyber assets. NCSD also manages the
U.S. Computer Emergency Response Team (US-CERT), which coordinates
defense against and responds to cyber attacks across the nation. US-CERT
deploys ``Einstein'' intrusion detection sensors on Federal networks and
oper
[[Page 28]]
ates a cyber watch, warning, and analysis center to provide real-time
alerts to Federal departments and agencies, State and local governments,
and the private sector. The 2009 budget expands US-CERT analytic
capabilities and defensive measures to ensure information on our Federal
networks is secure. To support these critical preparedness activities,
the Budget includes $294 million for the NCSD in 2009. Moreover, the
Budget includes an additional $39 million for the FBI's cyber security
activities in 2009.
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: (1) DOD ($5 billion, or 55.5
percent, of the 2009 total); (2) HHS, largely for research at the
National Institutes of Health (NIH) and for advanced development of
medical countermeasures ($2.2 billion, or 24.5 percent, of the 2009
total); and (3) DHS ($1.2 billion, or 13.7 percent, of the 2009 total).
The President's 2009 request would increase funding for activities to
defend against catastrophic threats by $777 million (8.6 percent) over
the 2008 level.
Table 3-7. DEFENDING AGAINST CATASTROPHIC THREATS FUNDING
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007 2008
Agency 2007 Supplemental/ 2008 Supplemental/ 2009
Enacted Emergency Enacted Emergency Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture.................. 233.0 ............. 215.6 ............. 296.2
Department of Commerce..................... 88.7 ............. 85.0 ............. 96.0
Department of Defense...................... 4,889.8 ............. 4,754.4 ............. 5,026.9
Department of Energy....................... 62.1 ............. 63.5 ............. 89.9
Department of Health and Human Services.... 2,022.2 ............. 2,008.3 ............. 2,219.1
Department of Homeland Security............ 1,204.4 148.0 1,056.2 ............. 1,236.2
Department of Justice...................... 42.1 1.9 45.2 2.0 40.3
Department of the Treasury................. 0.9 ............. 1.8 ............. 2.4
National Science Foundation................ 28.0 ............. 25.0 ............. 15.0
Nuclear Regulatory Commission.............. 24.7 ............. 23.2 ............. 32.8
--------------------------------------------------------------------
Total, Defending Against Catastrophic 8,595.9 149.9 8,278.1 2.0 9,054.8
Threats...................................
Plus BioShield........................... ........... ............. ........... ............. 2,175.0
--------------------------------------------------------------------
Total, Defending Against Catastrophic 8,595.9 149.9 8,278.1 2.0 11,229.8
Threats including BioShield...............
----------------------------------------------------------------------------------------------------------------
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. With an
additional 154 radiation portal monitors for screening cargo deployed to
the Nation's largest seaports, DNDO, in 2007, screened over 94% of
incoming cargo containers (by volume) to the United States for dangerous
radioactive materials. 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 2009 Budget includes $564 million for DNDO, a 16
percent increase from the 2008 level.
In 2009, DNDO will invest $113 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 $170 million for the
deployment of both fixed and mobile radiation portal monitors at
strategic points of entry throughout the country. An additional $20
million will be used to improve the detection of radiological and
nuclear materials in and around the Nation's major urban areas.
[[Page 29]]
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.
A key element in defending against catastrophic threats 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. The Budget continues HHS' investment in
developing medical countermeasures to CBRN threats with $2.1 billion in
funding, which is more than $2.0 billion over the level prior to 9/11
(this includes funding for programs focused on chemical and radiological
and nuclear countermeasures referenced below). For 2009, the Budget
includes $275 million for the advanced development of medical
countermeasures against threats of bioterrorism and next generation
ventilators. 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 $100
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), and augmenting the number and quality of border
health and quarantine stations. HHS will enhance its internal biodefense
and emergency preparedness activities with $131 million, to include an
expansion of the laboratory response network capability and capacity to
test for radiological and nuclear material exposure. 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 2008
Agency 2007 Supplemental/ 2008 Supplemental/ 2009
Enacted Emergency Enacted Emergency Request
----------------------------------------------------------------------------------------------------------------
Department of Defense...................... 394.5 ............. 493.3 ............. 560.7
Department of Energy....................... 119.5 ............. 160.8 ............. 227.0
Department of Health and Human Services.... 2,119.5 ............. 2,099.9 ............. 2,038.0
Department of Homeland Security............ 1,826.6 37.0 2,425.4 60.0 1,788.5
Other Agencies............................. 362.2 ............. 372.0 ............. 398.8
--------------------------------------------------------------------
Total, Emergency Preparedness and Response. 4,822.2 37.0 5,551.4 60.0 5,013.1
Plus Mandatory PSIC Grants............... 1,000.0 ............. ........... ............. ...........
--------------------------------------------------------------------
Total, Emergency Preparedness and Response, 5,822.2 37.0 5,551.4 60.0 5,013.1
including Mandatory Communications
Interoperability Grants...................
----------------------------------------------------------------------------------------------------------------
Emergency Preparedness and Response
The Emergency Preparedness and Response mission area covers agency
efforts to bolster capabilities nationwide to prevent and protect
against terrorist attacks, and also minimize the damage from attacks
through effective response and recovery. The mission area encompasses a
broad range of agency incident manage
[[Page 30]]
ment activities, as well as grants and other assistance to States and
localities for first responder preparedness capabilities. Response to
natural disasters and other major incidents, including catastrophic
natural events such as Hurricane Katrina and chemical or oil spills, do
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 and man-made disasters. Additionally, lessons
learned from the response to Hurricane Katrina have been used to revise
and strengthen catastrophic response planning in line with the National
Response Framework.
HHS, the largest participant in this mission area ($2 billion, or 40.7
percent, in 2009), assists States, localities and hospitals to upgrade
public health capacity, maintains a national stockpile of medicines and
vaccines for use following an event, and supports the National Disaster
Medical System. DHS maintains the second largest share of funding in
this category ($1.8 billion, or 35.7 percent, for 2009), 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:
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 the National Preparedness Guidelines 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. Recently, the
National Response Plan was substantially revised as the National
Response Framework to provide clear national response doctrine and
incorporate lessons learned from Hurricane Katrina. Additionally, the
publication of the National Preparedness Guidelines provides a
consistent 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
prevention, protection, response and recovery capabilities at all levels
of government. A related challenge is ensuring that investments in State
and local preparedness are focused on building and enhancing national
capabilities, and not simply supplanting day-to-day operating budgets.
DHS is leading an interagency effort to better match Federal resources
with achieving national target capabilities.
From 2001 through 2008, the Federal Government has allocated over $30
billion in State and local terrorism preparedness funding from the
Departments of Homeland Security, Health and Human Services, and
Justice, and the Environmental Protection Agency, increasing spending
from an annual level of approximately $350 million in 2001 to over $3.1
billion in the 2009 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. In addition, to
supplement available State and local assistance for public safety
communications interoperability, the Department of Commerce, in
consultation with DHS, awarded up to $1 billion to qualified applicants
for this purpose in 2007 from anticipated spectrum auction receipts. 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 Guidelines. As a result, the percent of participating State
and local homeland security agencies and major urban area grant
recipients reporting measurable progress made towards identified goals
and objectives to prevent and respond to terrorist attacks increased to
approximately 67 percent and 64 percent, respectively, in 2007.
The 2009 Budget provides over $150 million for DHS programs which
train and exercise first responders in preparation for catastrophic
events including the National Exercise Program, the National Domestic
Preparedness Consortium, the Center for Domestic Preparedness, the U.S.
Fire Administration, and the Emergency Management Institute. In 2007,
the Federal Emergency Management Agency (FEMA) within DHS reported that
72 percent of assisted jurisdictions demonstrated acceptable performance
on applicable critical tasks in exercises using approved scenarios. To
continue this positive trend, the 2009 Budget also provides grants which
support coordinated terrorism preparedness training, exercises, and
equipment for State and local responders across the various responder
disciplines. The 2009 request includes nearly $1.5 billion
[[Page 31]]
for terrorism preparedness grants to be administered by FEMA and
proposes to continue current progress on 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, $20 million for
FEMA'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, 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 $571 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 2009 Budget also provides
nearly $362 million to continue improvements for hospital infrastructure
and $571 million for upgrades to State and local public health capacity.
In 2009, HHS intends to align the grant cycles with the States' fiscal
year. Taking this one-time change into account, the 2009 funding is a
$25 million increase over 2008. 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 2008
Agency 2007 Supplemental/ 2008 Supplemental/ 2009
Enacted Emergency Enacted Emergency Request
----------------------------------------------------------------------------------------------------------------
Department of Energy....................... 14.3 ............. 15.7 ............. 14.4
Department of Homeland Security............ 2,910.0 ............. 2,819.0 ............. 2,985.0
Department of State........................ 1,166.7 ............. 1,878.9 ............. 1,959.0
General Services Administration............ 161.5 ............. 360.0 ............. 111.4
Social Security Administration8............ 193.3 ............. 212.4 ............. 221.3
Federal Communications Commission.......... 2.3 ............. 2.3 ............. 2.3
Nuclear Regulatory Commission.............. 72.0 ............. 43.0 ............. 46.0
Securities and Exchange Commission......... 14.3 ............. 16.4 ............. 15.9
--------------------------------------------------------------------
Total, Discretionary Homeland Security Fee- 4,534.4 ............. 5,347.7 ............. 5,355.3
Funded Activities.........................
----------------------------------------------------------------------------------------------------------------
Table 3-10. MANDATORY HOMELAND SECURITY FUNDING BY AGENCY
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007 2008
Agency 2007 Supplemental/ 2008 Supplemental/ 2009
Enacted Emergency Enacted Emergency Request
----------------------------------------------------------------------------------------------------------------
Department of Agriculture.................. 186.0 ............. 216.0 ............. 226.7
Department of Commerce..................... 16.6 ............. 19.4 ............. 19.6
Department of Energy....................... 12.0 ............. 13.0 ............. 12.0
Department of Health and Human Services.... 16.8 ............. 14.3 ............. 14.4
Department of Homeland Security............ 2,200.1 ............. 2,601.0 ............. 2,942.6
Department of Labor........................ 3.9 ............. 8.0 ............. 8.6
--------------------------------------------------------------------
Total, Homeland Security Mandatory Programs 2,435.5 ............. 2,871.7 ............. 3,223.9
Plus Mandatory PSIC Grants............... 1,000.0 ............. ........... ............. ...........
--------------------------------------------------------------------
Total, Homeland Security Mandatory Programs 3,435.5 ............. 2,871.7 ............. 3,223.9
including Mandatory PSIC Grants...........
----------------------------------------------------------------------------------------------------------------
[[Page 33]]
Table 3-11. BASELINE ESTIMATES--TOTAL HOMELAND SECURITY FUNDING BY AGENCY
(Budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
Baseline
Agency 2008 ------------------------------------------------------
Enacted 2009 2010 2011 2012 2013
----------------------------------------------------------------------------------------------------------------
Department of Agriculture..................... 571 593 575 589 603 619
Department of Commerce........................ 207 213 466 228 226 234
Department of Defense......................... 17,375 17,773 18,173 18,577 18,991 19,417
Department of Education....................... 27 28 28 29 29 30
Department of Energy.......................... 1,830 1,867 1,907 1,946 1,987 2,030
Department of Health and Human Services....... 4,300 4,399 4,493 4,595 4,697 4,798
Department of Homeland Security............... 32,661 33,756 34,727 35,803 36,901 38,039
Department of Housing and Urban Development... 2 2 2 2 2 2
Department of the Interior.................... 48 49 52 54 55 58
Department of Justice......................... 3,417 3,545 3,661 3,781 3,900 4,034
Department of Labor........................... 48 49 50 51 51 53
Department of State........................... 1,962 2,001 2,041 2,082 2,124 2,166
Department of Transportation.................. 206 215 223 231 240 249
Department of the Treasury.................... 117 120 125 127 133 137
Department of Veterans Affairs................ 271 279 285 293 300 308
Corps of Engineers............................ 42 43 44 45 45 46
Environmental Protection Agency............... 138 142 146 149 152 159
Executive Office of the President............. 20 20 22 22 22 23
General Services Administration............... 368 375 382 389 398 405
National Aeronautics and Space Administration. 205 209 213 218 222 227
National Science Foundation................... 374 381 388 397 404 413
Office of Personnel Management................ 2 2 2 2 2 2
Social Security Administration................ 212 221 225 230 235 239
District of Columbia.......................... 3 3 3 3 3 3
Federal Communications Commission............. 2 2 2 2 2 2
Intelligence Community Management Account..... 122 124 127 129 132 135
National Archives and Records Administration.. 18 18 19 19 19 20
Nuclear Regulatory Commission................. 72 75 77 80 81 85
Securities and Exchange Commission............ 16 16 17 17 17 18
Smithsonian Institution....................... 93 97 102 106 111 115
United States Holocaust Memorial Museum....... 8 8 8 8 9 9
Corporation for National and Community Service ......... ......... ......... ......... ......... .........
-----------------------------------------------------------------
Total, Homeland Security Budget Authority..... 64,737 66,625 68,585 70,204 72,093 74,075
Less Department of Defense.................. -17,375 -17,773 -18,173 -18,577 -18,991 -19,417
-----------------------------------------------------------------
Non-Defense, Discretionary Homeland Security 47,362 48,852 50,412 51,627 53,102 54,658
BA, excluding Bioshield \1\..................
Less Fee-Funded Homeland Security Programs.. -5,338 -5,557 -5,669 -5,781 -5,899 -6,014
Less Mandatory Homeland Security Programs... -2,871 -2,799 -3,056 -2,910 -3,002 -3,102
-----------------------------------------------------------------
Net Non-Defense, Discretionary Homeland 39,153 40,496 41,687 42,936 44,201 45,542
Security BA, excluding Bioshield \1\.........
Plus BioShield.............................. ......... 2,175 ......... ......... ......... .........
-----------------------------------------------------------------
Net Non-Defense, Discretionary Homeland 39,153 42,671 41,687 42,936 44,201 45,542
Security BA, including BioShield \1\.........
Obligations Limitations
Department of Transportation Obligations 139 142 144 147 152 155
Limitation.................................
----------------------------------------------------------------------------------------------------------------
\1\ 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. DHS received $1.57 billion in emergency funding
for border security in 2007.
[[Page 34]]
Estimates by Budget Function:
Table 3-12. HOMELAND SECURITY FUNDING BY BUDGET FUNCTION
(budget authority, in millions of dollars)
----------------------------------------------------------------------------------------------------------------
2007 2008 2009
Budget Authority Enacted \1\ Enacted Request
----------------------------------------------------------------------------------------------------------------
National Defense............................................................. 20,710 21,893 22,154
International Affairs........................................................ 1,241 1,962 2,465
General Science Space and Technology......................................... 1,489 1,332 1,398
Energy....................................................................... 131 125 135
Natural Resources and the Environment........................................ 307 278 328
Agriculture.................................................................. 521 539 659
Commerce and Housing Credit \1\.............................................. 158 164 198
Transportation............................................................... 9,425 10,038 10,811
Community and Regional Development........................................... 2,505 3,313 2,216
Education, Training, Employment and Social Services.......................... 191 165 176
Health....................................................................... 4,340 4,320 4,473
Medicare..................................................................... 15 14 19
Income Security.............................................................. 8 11 14
Social Security.............................................................. 193 212 221
Veterans Benefits and Services............................................... 260 271 348
Administration of Justice.................................................... 17,421 18,870 19,729
General Government........................................................... 907 1,196 967
----------------------------------
Total, Homeland Security Budget Authority.................................... 59,822 64,703 66,311
Less National Defense, DoD................................................. -16,538 -17,375 -17,647
----------------------------------
Non-Defense Homeland Security BA, excluding Mandatory PSIC Grants and 43,284 47,328 48,664
BioShield...................................................................
Less Fee-Funded Homeland Security Programs................................. -4,433 -5,279 -5,282
Less Mandatory Homeland Security Programs.................................. -2,435 -2,871 -3,225
----------------------------------
Net Non-Defense, Discretionary Homeland Security BA, excluding Mandatory PSIC 36,416 39,178 40,157
Grants and BioShield........................................................
Plus BioShield............................................................. ........... ......... 2,175
Plus Mandatory PSIC Grants................................................. 1,000 ......... .........
----------------------------------
Net Non-Defense, Discretionary Homeland Security BA, including Mandatory PSIC 37,416 39,178 42,332
Grants and BioShield........................................................
----------------------------------------------------------------------------------------------------------------
\1\ 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)
----------------------------------------------------------------------------------------------------------------
Baseline
Budget Authority 2008 ------------------------------------------------------
Enacted 2009 2010 2011 2012 2013
----------------------------------------------------------------------------------------------------------------
National Defense.............................. 21,893 22,413 22,933 23,459 23,997 24,557
International Affairs......................... 1,962 2,001 2,041 2,082 2,124 2,166
General Science Space and Technology.......... 1,332 1,358 1,385 1,414 1,441 1,471
Energy........................................ 125 128 130 134 136 141
Natural Resources and the Environment......... 278 285 294 301 306 318
Agriculture................................... 539 560 541 554 568 583
Commerce and Housing Credit................... 164 169 421 182 179 185
Transportation................................ 10,038 10,329 10,601 10,944 11,295 11,655
Community and Regional Development............ 3,313 3,381 3,448 3,520 3,589 3,662
Education, Training, Employment and Social 165 170 176 182 188 195
Services.....................................
Health........................................ 4,320 4,419 4,514 4,616 4,717 4,819
Medicare...................................... 14 15 15 16 17 17
Income Security............................... 11 12 12 12 12 12
Social Security............................... 212 221 225 230 235 239
Veterans Benefits and Services................ 271 279 285 293 300 308
Administration of Justice..................... 18,904 19,679 20,334 21,015 21,714 22,450
General Government............................ 1,196 1,206 1,230 1,250 1,275 1,297
-----------------------------------------------------------------
Total, Homeland Security Budget Authority..... 64,737 66,625 68,585 70,204 72,093 74,075
Less National Defense, DoD.................. -17,375 -17,773 -18,173 -18,577 -18,991 -19,417
-----------------------------------------------------------------
Non-Defense, Discretionary Homeland Security 47,362 48,852 50,412 51,627 53,102 54,658
BA, excluding Bioshield......................
Less Fee-Funded Homeland Security Programs.. -5,338 -5,557 -5,669 -5,781 -5,899 -6,014
Less Mandatory Homeland Security Programs... -2,871 -2,799 -3,056 -2,910 -3,002 -3,102
-----------------------------------------------------------------
Net Non-Defense, Discretionary Homeland 39,153 40,496 41,687 42,936 44,201 45,542
Security BA, excluding Bioshield.............
Plus BioShield.............................. ......... 2,175 ......... ......... ......... .........
-----------------------------------------------------------------
Net Non-Defense, Discretionary Homeland 39,153 42,671 41,687 42,936 44,201 45,542
Security BA, including BioShield.............
Obligations Limitations
Department of Transportation Obligations 139 142 144 147 152 155
Limitation.................................
----------------------------------------------------------------------------------------------------------------
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.