Would you classify the following attacks as a criminal act or act of war? Discuss your answers in 3-4 well-written paragraphs. a. 1983 Beirut barracks bombing b. 1993 attac

Homeland SecurityHomeland Security

Safeguarding the U.S. from Domestic Catastrophic DestructionSafeguarding the U.S. from Domestic Catastrophic Destruction

by CW Productions Ltd.

Edited by Richard White, Ph.D., Tina Bynum, DM, and Stan Supinski, Ph.D.

Homeland Security

Safeguarding the U.S. from Domestic Catastrophic Destruction

By CW Productions Ltd.

Edited by:

Richard White, Ph.D., Tina Bynum, DM, and Stan Supinski, Ph.D.

Homeland SecurityHomeland Security

Safeguarding the U.S. from Domestic Catastrophic DestructionSafeguarding the U.S. from Domestic Catastrophic Destruction

by CW Productions Ltd.

Edited by Richard White, Ph.D., Tina Bynum, DM, and Stan Supinski, Ph.D.

Cover art: New York City Freedom Tower, Mandritoiu, courtesy of Shutterstock.com

Copyright © 2016 by CW Productions, Ltd.

Permission in writing must be obtained from the publisher before any part of this work may be reproduced in any form or by any

means, electronic or mechanical, including photocopying and recording, or by any information storage or retrieval system.

All trademarks, service marks, registered trademarks, and registered service marks are the property of their respective owners and

are used herein for identification purposes only.

Previously published as The U.S. Department of Homeland Security: An Overview, by Richard White, Tina Markowski, and Kevin

Collins © 2010

Printed in the United States of America.

10 9 8 7 6 5 4 3 2

ISBN 0-536-15295-0

2005420444

EH

Please visit our web site at www.cwpnow.com

CW Productions Ltd.

Colorado Springs, CO

A Homeland Security Education Company

ii

Preface

Welcome to the third edition of our textbook. As indicated by the new title, this edition is significantly different than

the previous two, and accordingly stocked with mostly new material. Whereas the first two editions described “what”

was being done in the name of homeland security, this one explains “why”. In keeping with our previous approach, we

do not ascribe ourselves as “authors” but “editors” because the bulk of material is drawn directly from government

documents, either primary sources or publicly available derivatives. Two of our foremost derivative sources were

reports published by the Congressional Research Service (CRS) and Government Accountability Office (GAO). They

have access to information, unclassified as it may be, well beyond the means of the general public. We would also like

to acknowledge the many public websites that were also instrumental in completing this text. And while we were only

“editors”, we think this book offers its own unique contributions to the field of homeland security. First, it delivers both

a comprehensive yet concise treatment of a very broad subject spanning numerous separate fields, from national

security to military operations to law enforcement to emergency management, to name only a few. Second, and most

importantly, it offers insight into the exact nature of homeland security. Because it was brought to the forefront of

national attention by an act of terrorism, homeland security has become confused with terrorism. While terrorism

certainly remains a concern to homeland security, it is not the root concern. As we try to make eminently clear in this

textbook, the homeland security concern predates 9/11, stemming back to the 1995 Tokyo Subway Attacks which saw

the first employment of a weapon of mass destruction by non-state actors. As our title suggests, the homeland

security concern is domestic catastrophic destruction. 9/11 demonstrated how it could be achieved by subverting

critical infrastructure. Hurricane Katrina demonstrated how it could be accomplished without malicious intent. While

we give due attention to the terrorist motive, we don’t give it the undue attention it has gained by becoming almost

synonymous with homeland security. In this regard, we hope to set the record straight and make it clear what

homeland security “is”, and what it “is not”. Homeland security is not terrorism, nor is it mass killings. While closely

related, homeland security, terrorism, and mass killings are distinctly separate. We hope to demonstrate that in this

book. More importantly, we hope to impart a clarity of understanding that will give you, the reader, a corresponding

advantage in your academic and professional pursuits supported by this knowledge.

iii

Richard White, Ph.D.

Rick White is an Assistant Research Professor at the University of Colorado at Colorado Springs. His Ph.D. is in

Engineering Security. He has published works on critical infrastructure risk management. Rick’s interest in homeland

security stems back to 9/11 when he was teaching at the Air Force Academy and watched together with his cadets as

the hijacked aircraft crashed into the Twin Towers. A retired Air Force officer, Rick has developed and taught

homeland security courses for colleges, universities, and various government agencies over the years. Other textbooks

include Homeland Defense: An Overview (Pearson 2007), Introduction to Joint and Coalition Warfare (FastPlanet

2005), and United States Military Power (FastPlanet 2004).

Tina Bynum , DM

Tina Bynum is the University Program Director for the College of Security Studies at Colorado Technical University

where she develops and manages the curriculum for homeland security, criminal justice, and public administration

programs at the undergraduate, graduate, and doctoral levels. She is an editorial review board member for the Journal

for Homeland Security Education and is a member of the International Society for Preparedness, Resilience and

Security (INSPRS). A retired firefighter and emergency medical technician, Dr. Bynum also plays key roles in local

emergency planning and exercising under the Homeland Security Exercise and Evaluation Program (HSEEP) protocols

and teaches courses in criminal justice, emergency and fire management services, public administration, and homeland

security. While serving as the Associate Director for the University of Colorado's Trauma, Health and Hazards Center,

she developed a peer support program to build resilience and assist recovery from high-risk occupational traumatic

experiences that was implemented in local police and fire departments. This program has gone on to serve the needs

of military personnel returning from combat. Dr. Bynum also co-authored The United States Department of Homeland

Security, An Overview (2Ed, 2010).

Stan Supinski, Ph.D.

Stan Supinski is the Deputy Director of Partnership Programs and faculty member for the Naval Postgraduate School,

Center for Homeland Defense and Security. He has taught and directed Homeland security courses for a variety of

institutions, to include Long Island University, the University of Denver and the University of Massachusetts. He also

founded and formerly directed the Homeland Security/Defense Education Consortium on behalf of NORAD/US

Northern Command. Dr. Supinski is a retired US Air Force officer, having served as a professor of Russian at the US Air

Force Academy and as an intelligence officer in various locations worldwide.

About the Authors

iv

Contents

Part I: Hard Lessons Chapter 1: Turning Point ……………………………………………………………………. 3

Chapter 2: Lost Opportunities …………………………………………………………… 19

Chapter 3: We Have Some Planes ……………………………………………………. 33

Chapter 4: And They Saved Many …………………………………………………….. 47

Chapter 5: Not by Chance ………………………………………………………………… 71

Chapter 6: Surpassing Disproportion …………………………………………………. 89

Chapter 7: Failure of Imagination ………………………………………………………. 99

Chapter 8: Failure of Initiative ………………………………………………………….. 111

Part II: HS, DHS, & HS Enterprise Chapter 9: Homeland Security ………………………………………………………… 135

Chapter 10: DHS Formation ……………………………………………………………. 149

Chapter 11: DHS Evolution …………………………………………………………….. 163

Chapter 12: DHS Progress …………………………………………………………….. 187

Chapter 13: HS Enterprise ……………………………………………………………… 223

Part III: Mission Areas Chapter 14: Critical Infrastructure Protection ……………………………………… 239

Chapter 15: Counter WMD Strategy …………………………………………………. 251

Chapter 16: Cybersecurity ……………………………………………………………… 261

Chapter 17: Counterterrorism………………………………………………………….. 277

Chapter 18: Emergency Preparedness & Response …………………………… 293

Chapter 19: Aviation Security …………………………………………………………… 309

Chapter 20: Maritime Security ………………………………………………………….. 327

Chapter 21: Surface Transportation Security ……………………………………… 341

Chapter 22: Border Security …………………………………………………………….. 353

Chapter 23: Immigration Enforcement ……………………………………………….. 367

v

Contents

Part IV: Mission Components Chapter 24: National Protection & Programs Directorate ……………………… 383

Chapter 25: Science & Technology Directorate …………………………………… 397

Chapter 26: Domestic Nuclear Detection Office ………………………………….. 413

Chapter 27: Intelligence & Analysis …………………………………………………… 425

Chapter 28: Federal Emergency Management Agency ………………………… 439

Chapter 29: U.S. Coast Guard …………………………………………………………. 457

Chapter 30: Transportation Security Administration …………………………….. 473

Chapter 31: U.S. Customs & Border Protection …………………………………… 485

Chapter 32: U.S. Secret Service ………………………………………………………. 503

Chapter 33: U.S. Immigration & Customs Enforcement ………………………… 513

Chapter 34: U.S. Citizenship & Immigration Services …………………………… 529

Part V: Mission Partners Chapter 35: Congress …………………………………………………………………….. 543

Chapter 36: National Security Council ……………………………………………….. 555

Chapter 37: Intelligence Community …………………………………………………. 567

Chapter 38: Department of Defense ………………………………………………….. 583

Chapter 39: National Guard …………………………………………………………….. 595

Chapter 40: Federal Bureau of Investigation ………………………………………. 613

Chapter 41: State & Local Law Enforcement ………………………………………. 625

Chapter 42: First Responders ………………………………………………………….. 641

Appendices Appendix A: DHS Budgets ………………………………………………………………. 651

Appendix B: Glossary ……………………………………………………………………… 669

Appendix C: Index ………………………………………………………………………….. 681

Appendix D: Works Cited ………………………………………………………………… 695

vi

Contents

List of Tables 3-1: 9/11 Hijackers & Flights ……………………………………………………………… 34

3-2: 9/11 Timeline ……………………………………………………………………………. 45

8-1: Hurricane Katrina New Orleans Timeline …………………………………….. 119

10-1: Organizations Transferred to DHS ……………………………………………. 155

11-1: DHS Initial Operating Organization …………………………………………… 169

11-2: Mapping DHS Organization & Critical Mission Areas …………………… 170

11-3: Comparison of Strategy Objectives ………………………………………….. 177

11-4: QHSR Missions & Goals ………………………………………………………… 180

12-1: 2007 GAO Assessment of Border Security ………………………………… 190

12-2: 2007 GAO Assessment of Immigration Enforcement …………………… 191

12-3: 2007 GAO Assessment of Immigration Services ………………………… 192

12-4: 2007 GAO Assessment of Aviation Security ………………………………. 193

12-5: 2007 GAO Assessment of Surface Transportation Security………….. 194

12-6: 2007 GAO Assessment of Maritime Security ……………………………… 195

12-7: 2007 GAO Assessment of Emergency Preparedness& Response … 196

12-8: 2007 GAO Assessment of Critical Infrastructure Protection ………….. 197

12-9: 2007 GAO Assessment of Science and Technology …………………… 198

12-10: Comparison of 2011 & 2007 GAO Mission Area Assessments ……. 199

12-11: 2011 GAO Expectations for Aviation Security …………………………… 202

12-12: 2011 GAO Expectations for CBRN Threats ……………………………… 203

12-13: 2011 GAO Expectations for CIP of Physical Assets…………………… 204

12-14: 2011 GAO Expectations for Surface Transportation ………………….. 205

12-15: 2011 GAO Expectations for Border Security …………………………….. 207

12-16: 2011 GAO Expectations for Maritime Security ………………………….. 209

12-17: 2011 GAO Expectations for Immigration Enforcement ……………….. 211

12-18: 2011 GAO Expectations for Immigration Services …………………….. 213

12-19: 2011 GAO Expectations for CIP of Cyber Assets ……………………… 215

12-20: 2011 GAO Expectations for Emergency Preparedness & Response …….. 217

12-21: 2015 GAO Assessment of DHS Management Functions ………….. 2019

vii

Contents

List of Tables (continued) 14-1: CIP Directives, Strategies, & Plans …………………………………………… 242

14-2: Infrastructure Sectors and Lead/Sector-Specific Agencies ……………. 243

15-1: CWMD Guidance Documents ………………………………………………….. 253

16-1: U.S. Tier 1 ISPs …………………………………………………………………….. 266

16-2: DHS National Cyber Risk Alert Levels……………………………………….. 272

19-1: Transportation Subsectors ………………………………………………………. 310

19-2: Cyber Attack Vectors ……………………………………………………………… 322

19-3: Potential Types of Aircraft Cyber Attacks …………………………………… 323

20-1: Transportation Subsectors ………………………………………………………. 328

21-1: Transportation Subsectors ………………………………………………………. 342

24-1: Critical Infrastructure Sectors …………………………………………………… 386

25-1: DHS Laboratories ………………………………………………………………….. 403

25-2: DOE Laboratories ………………………………………………………………….. 403

25-3: DHs Centers of Excellence ……………………………………………………… 404

38-1: Organization of U.S. Military Forces ………………………………………….. 584

38-2: National Guard Direction, Payment, & Authorities ……………………….. 585

38-3: U.S. Combatant Commands ……………………………………………………. 585

viii

Contents

List of Figures 5-1: Pentagon Crash Sites………………………………………………………………… 75

5-2: AFCD Incident Command on 9/11 ……………………………………………….. 79

8-1: Track of Hurricane Katrina ………………………………………………………… 115

10-1: DHS Organization …………………………………………………………………. 159

11-1: 2003 DHS Organization ………………………………………………………….. 171

11-2: 2008 DHS Organization ………………………………………………………….. 179

11-3: 2015 DHS Organization ………………………………………………………….. 181

12-1: Selected Factors Influencing DHS Mission and Performance

Ten Years Following 9/11 ……………………………………………………….. 200

14-1: 2013 NIPP Risk Management Framework …………………………………. 244

14-2: PSA Security Survey Example “Dashboard” Results …………………… 246

15-1: DoD Geographic Combatant Commands ………………………………….. 254

16-1: Schematic Representation of a Portion of the Internet …………………. 265

16-2: Internet ISP Tiers ………………………………………………………………….. 266

16-3: IXP Role in Today’s Internet ……………………………………………………. 267

16-4: AVOIDIT Cyber Attack Taxonomy ……………………………………………. 269

20-1: USCG Security In-Depth ………………………………………………………… 335

22-1: Total Estimated Illegal Border Inflows, FY2000-FY2012 ………………. 364

23-1: Annual Immigration Admissions 1900-2010 ……………………………….. 369

23-2: Immigrant Countries of Origin 1900-2010 ………………………………….. 370

23-3: Foreign-Born Residents by Region of Origin 1960-2010 ………………. 371

23-4: Nonimmigrant Visas Issued by U.S. Department of State 1987-2013 ……… 372

23-5: Nonimmigrant Admissions at U.S. Ports of Entry 2003-2013 ………… 373

23-6: Inadmissible Aliens at Ports of Entry 2005-2013 …………………………. 374

23-7: Alien Formal Removals and Voluntary Returns 1990-2013 ………….. 376

23-8: Estimated Number of Unauthorized Resident Aliens …………………… 377

24-1: NPPD Organization Chart ………………………………………………………. 385

24-2: NIPP Risk Management Framework …………………………………………. 386

25-1: DHS S&T Organization …………………………………………………………… 399

ix

Contents

List of Figures (continued) 25-2: DHS S&T Annual Funding ……………………………………………………….. 406

26-1: DNDO Organization ……………………………………………………………….. 415

26-2: Layers of the Nuclear Detection Architecture ……………………………… 419

27-1: DHS Office of Intelligence & Analysis Organization Chart …………….. 428

28-1: FEMA Leadership Organization Chart ……………………………………….. 444

28-2: FEMA Regions ………………………………………………………………………. 445

29-1: United States Coast Guard Organization Chart …………………………… 466

29-2: United States Coast Guard Districts ………………………………………….. 467

30-1: TSA Organization Chart 2010 ………………………………………………….. 477

31-1: CBP Organization Chart ………………………………………………………….. 488

31-2: The U.S. Import Process …………………………………………………………. 496

32-1: U.S. Secret Service Organization Chart …………………………………….. 505

33-1: ICE Organization Chart …………………………………………………………… 515

33-2: ICE Removal Statistics ……………………………………………………………. 524

34-1: USCIS Organization Chart ………………………………………………………. 532

36-1: National Security Council Organization ……………………………………… 560

37-1: The U.S. Intelligence Community ……………………………………………… 576

38-1: Geographic Combatant Commands’ Areas of Responsibility ………… 586

38-2: Dual-Status Commander Chain of Command …………………………….. 590

39-1: Reserve Component Mobilization Authorities ……………………………… 598

40-1: Balancing Civil Liberties ………………………………………………………….. 621

42-1; Emergency Preparedness Cycle ………………………………………………. 646

x

Contents

List of Figures (continued) A-1: FY03 DHS Budget Allocation ……………………………………………………. 653

A-2: FY04 DHS Budget Allocation ……………………………………………………. 654

A-3: FY05 DHS Budget Allocation ……………………………………………………. 655

A-4: FY06 DHS Budget Allocation ……………………………………………………. 656

A-5: FY07 DHS Budget Allocation ……………………………………………………. 657

A-6: FY08 DHS Budget Allocation ……………………………………………………. 658

A-7: FY09 DHS Budget Allocation ……………………………………………………. 659

A-8: FY10 DHS Budget Allocation ……………………………………………………. 660

A-9: FY11 DHS Budget Allocation ……………………………………………………. 661

A-10: FY12 DHS Budget Allocation ………………………………………………….. 662

A-11: FY13 DHS Budget Allocation ………………………………………………….. 663

A-12: FY14 DHS Budget Allocation ………………………………………………….. 664

A-13: FY15 DHS Budget Allocation ………………………………………………….. 665

A-14: FY16 DHS Budget Allocation ………………………………………………….. 666

xi

Part I:

Hard Lessons

This section explores the events that created and shaped U.S. homeland security policy. It begins shortly after the end

of the Cold War in 1991. After a four-decade standoff between the United States and Soviet Union, there was a global

sense of relief and great expectation that the world would become a much safer place after the threat of imminent

nuclear war had subsided. Those illusions were shattered in March 1995 after a religious cult attempted to murder

thousands of Japanese commuters aboard the Tokyo subway system using Sarin nerve gas. It was the first time a non-

state actor employed a weapon of mass destruction, marking a watershed moment in history when small groups

attained the destructive power of nations. The implication was not lost on Congress which, spurred by the Oklahoma

City bombing a few months later, chartered a number of commissions to investigate the prospects of WMD attack on

U.S. soil. Because the Tokyo subway attacks sought to topple the Japanese government, they were, by definition, acts

of terrorism. The congressional committees subsequently blurred the distinction between act and motive, labeling a

WMD attack by non-state actors as “terrorism”. The committees also introduced the term “homeland security” to

describe various organizational proposals to prevent and respond to WMD attack. In February 2001, the Hart-Rudman

Commission recommended creation of a National Homeland Security Agenc

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