[Analytical Perspectives]
[Crosscutting Programs]
[3. Homeland Security Funding Analysis]
[From the U.S. Government Printing Office, www.gpo.gov]



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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.
---------------------------------------------------------------------------
  \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.
---------------------------------------------------------------------------
  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.
---------------------------------------------------------------------------
  \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.''
---------------------------------------------------------------------------
  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).
---------------------------------------------------------------------------
  \3\ The 2009 gross homeland security funding request level excludes 
$2.2 billion for BioShield.
---------------------------------------------------------------------------
  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.................................
                                          ----------------------------------------------------------------------
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
                                          ----------------------------------------------------------------------
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..............................
                                          ----------------------------------------------------------------------
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
                                          ----------------------------------------------------------------------
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..............................
----------------------------------------------------------------------------------------------------------------
\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
                                            --------------------------------------------------------------------
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
                                            --------------------------------------------------------------------
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..
----------------------------------------------------------------------------------------------------------------

  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
                                            --------------------------------------------------------------------
Total, Intelligence and Warning............        670.8         15.2          682.7         39.1          765.9
----------------------------------------------------------------------------------------------------------------

  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 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
                                            --------------------------------------------------------------------
Total, Border and Transportation Security..     19,365.3      2,253.6       22,286.8      2,842.7       25,712.5
----------------------------------------------------------------------------------------------------------------

  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.