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STATEMENT
OF DR. STEPHEN CAMBONE
PRINCIPAL DEPUTY UNDER SECRETARY
OF DEFENSE FOR POLICY
ON THE RELATIONSHIP BETWEEN
THE DEPARTMENT OF DEFENSE AND
A DEPARTMENT OF HOMELAND SECURITY
BEFORE THE HOUSE ARMED SERVICES COMMITTEE
UNITED STATES HOUSE OF REPRESENTATIVES
JUNE 26, 2002
Introduction
Mr.
Chairman and Members of the Committee:
I appreciate the opportunity to meet with
you on the subject of the President's proposal
to establish a Department of Homeland Security
(DHS) and the relationship of the Department of
Defense to it.
In
presenting his proposal to the nation, the
President said, "Today no Federal Government
agency has homeland security as its primary
mission. Responsibilities
for homeland security are dispersed among more
than 100 different entities of the Federal
Government.
America needs a unified homeland security
structure that will improve protection against
today's threats and be flexible enough to help
meet the unknown threats of the future."
Secretary
Rumsfeld sketched the Department's approach to
the proposed DHS earlier this month when he
said: "The first task of the federal
government is to provide for the national
defense. Because
of the new national security environment we
face, it is clearly time for a Department of
Homeland Security.
We look forward to working with the newly
proposed organization to do everything possible
to provide for our country's national
defense."
Before
discussing the relationship of DoD to the
proposed Department of Homeland Security, it is
important to define two terms.
Homeland Security is defined as a
concerted national effort to prevent terrorist
attacks within the United States, reduce the
vulnerability of the United States to terrorism,
and minimize the damage and assist in the
recovery from terrorist attacks.
Homeland Defense is defined by DoD as the
protection of United States territory, domestic
population, and critical defense infrastructure
against external threats and aggression.
It also includes routine, steady-state
activities designed to deter aggressors and to
prepare U.S. military forces for action if
deterrence fails.
With
respect to Homeland Security, DoD will operate
in support of a lead federal agent.
With respect to Homeland Defense, DoD
would take the lead and be supported by other
federal agencies.
DoD Activity
Let me begin with what DoD is now doing, or
planning to do, before turning to its
relationship with the proposed DHS.
War
on Terrorism
First, DoD is prosecuting the war on terrorism
abroad.
The President understands that a
terrorist can attack at any time, at any place,
using any conceivable technique.
He also understands that it is physically
impossible to defend against every conceivable
threat in every place, at every time.
To
successfully defend against terrorism, and other
21st century threats, requires that
we take the war to the enemy.
And the task of DoD is to put pressure on
terrorists wherever they are, in Afghanistan,
across the globe, to ensure that they have no
safe haven, no sanctuary.
With
respect to the war abroad, U.S. military forces,
at the direction of the President, are charged
with engaging terrorist forces and the
governments or other entities that harbor them.
In this effort, DoD works closely with
other government agencies, including the
departments of State, Treasury, and Justice, and
the intelligence community.
Northern
Command
Second, the President has approved a
revision to the Unified Command Plan to
establish Northern Command, or NORTHCOM as it
will undoubtedly be called.
NORTHCOM will be given the mission of
defending the people and territory of the United
States against external threats and coordinating
the employment of U.S. military forces in
support of civil authorities.
In addition, NORTHCOM will be responsible
for certain aspects of security cooperation and
coordination with Canada and with Mexico.
NORTHCOM will "stand up" on October
1, 2002.
Peterson Air Force Base in Colorado is
the site that the department has selected as the
preferred location for the new NORTHCOM
headquarters.
The President has nominated Gen. Ralph
Eberhart, currently the Commander of U.S. Space
Command, as the first Commander, U.S. Northern
Command.
Office
of Homeland Defense Policy
Third, DoD will establish its own Office of
Homeland Defense Policy within the Office of the
Secretary of Defense to ensure internal
coordination of DoD policy direction, to provide
guidance to Northern Command for its homeland
defense mission and its military activities in
support of homeland security, to include support
to civil authorities, and to provide for
coordination with the Office of Homeland
Security, DHS, and other government agencies.
Homeland
defense and security functions are resident in
many components within the Department.
Therefore, the DoD Office of Homeland
Defense Policy will be a small, responsive, and
agile organization that uses a matrix management
approach to leverage expertise outside its core
staff.
This new office, with its short lines of
authority to facilitate senior decision-making
and delegated authority for decentralized
execution of activities, will provide strong,
centralized guidance by:
·
Developing strategic planning guidance
for DoD's role in homeland security;
·
Developing force employment policy,
guidance, and oversight;
·
Supervising DoD preparedness activities
to support civil authorities in emergencies in
accordance with the single federal emergency
response plan that the President has proposed;
·
Providing DoD support, as appropriate, to
assist in developing capacities and capabilities
of civilian agencies requisite to conducting
homeland security missions; and
·
Directing DoD domestic crisis management
activities
New
DoD Office of Intelligence
Fourth, the Administration has proposed to the
Congress the creation of an Under Secretary of
Defense for Intelligence.
This
new office would have as its primary
responsibilities assuring that the senior
leadership of the department and combatant
commanders receive the warning, actionable
intelligence and counter-intelligence support
needed to pursue the objectives of our new
defense strategy.
This
new office will enhance DoD intelligence-related
activities, provide a single point of contact
for coordination of national and military
intelligence activities with the DCI's
Community Management Staff and strengthen the
relationship between the Secretary of Defense
and the Director of Central Intelligence.
In
addition, it is through this office the
department would support, consistent with extant
laws and regulations, the new DHS with
intelligence derived products from DoD
activities.
NDAA
2002 Study
In addition to establishing an internal
Office of Homeland Defense, standing up Northern
Command and proposing creation of an Under
Secretary for Intelligence, the department is
conducting a study on the DoD role in homeland
security, as directed by the 2002 National
Defense Authorization Act.
The law calls for a comprehensive plan on
the organization of the Office of Secretary of
Defense that addresses the most beneficial
organizational structures for homeland security,
combating terrorism, and securing intelligence.
We expect the study to be completed this
summer.
DoD Roles and Missions
DoD may employ U.S. military forces as follows:
Extraordinary
First, under extraordinary circumstances that
require the department to execute its
traditional military missions to deter, dissuade
or defeat an attack from external entities.
In these circumstances, DoD would take
the lead.
As
with military missions abroad, DoD has the lead
role in the conduct of traditional military
missions in defense of the people and the
territory of our country.
In these instances, DoD is supported by
other federal agencies.
The draft legislation for DHS recognizes
the lead role of DoD in traditional military
operations.
DoD supports the inclusion of section 304
in the draft legislation ".Nothing in this
Act will confer upon the Secretary of DHS any
authority to engage in warfighting, the military
defense of the United States, or other
traditional military activities."
This section clearly delineates the
difference between homeland defense activities
and homeland security activities - a precision
that will be important to keep in our minds and
to articulate clearly to the American public.
Plans for such activities would be
coordinated, as appropriate, and to the extent
possible, with the National Security Council,
the Homeland Security Council, the Department of
Homeland Security, and other affected
departments and agencies.
As
an example, in the case of combat air patrols,
the Federal Aviation Administration, a civilian
agency, provides data to assist the efforts of
Air Force fighter pilots, and the Guard and the
Reserves, in identifying, and if necessary,
intercepting suspicious or hostile aircraft.
Also
included in the category of extraordinary
circumstances are cases in which the President,
exercising his constitutional authority as
Commander-in-Chief and Chief Executive,
authorizes military action.
This inherent constitutional authority
may be used in cases, such as a terrorist
attack, where normal measures are insufficient
to carry out federal functions.
Emergency
Second, to act in emergency circumstances of a
catastrophic nature; for example, responding to
an attack or assisting in response to forest
fires or floods, hurricanes, tornadoes, and so
forth. The
President's legislative proposal envisions
that the DHS will be the lead federal agency for
domestic contingencies of national significance.
In some instances, due to the severity or
scale of the incident, the Department of Defense
may be asked to act quickly to provide or to
supply capabilities that other agencies simply
do not have.
Limited
Scope or Duration
Third, missions or assignments that are limited
in scope or duration where other federal
agencies take the lead from the outset. An example of this would be security at a special event like
the Olympics, where DoD literally had more men
and women in uniform in the state of Utah for
the Salt Lake City Olympics than we had in
Afghanistan at the same time.
Another example is assisting other
federal agencies in developing capabilities to
detect chemical and biological threats.
The
first of those three categories, extraordinary
circumstances, when DoD conducts traditional
military missions to defend the people or
territory of the United States at the direction
of the President, falls under the heading of
homeland defense.
In these cases, the department is
prepared to take the lead.
DoD will apply the capability developed
to prepare for and to conduct these missions
when it is called upon to support civil
authorities.
The
second and third categories are activities which
are emergency or temporary in nature and for
which other federal agencies take the lead and
DoD lends support.
The Department of Homeland Security will
have the responsibility for coordinating the
response of federal agencies and, as
appropriate, the interaction of those federal
agencies with state and local entities.
DoD will take an active role in this
interagency process.
In
the event of multiple requests for DoD assets,
the President would be the one to make the
decision on the allocation of these assets.
The coordination mechanism of the
National Security Council and the Homeland
Security Council exist to support just
such a decision.
The DoD is represented on both the NSC
and HSC.
In
sum, the Department of Defense has two roles to
play in providing for the security of the
American people where they live and work.
The first is to provide forces to conduct
traditional military missions under
extraordinary conditions such as the active
defense of the nation's airspace and its
maritime approaches.
The second is to support the broader
efforts of the DHS and federal domestic
departments and agencies, and, indeed, the state
and local governments.
National
Guard
In this context, I would like to discuss the
role of the National Guard briefly.
The National Guard can support homeland
security in several ways, first in state service
under the direction of the governors.
For example, on September 11, the
National Guard of New York, New Jersey and
Connecticut responded to the attacks on the
World Trade Center.
Second,
in state service but performing duties of
federal interest; Title 32 status.
Third,
in federal service, the so-called Title 10
status, for example when the National Guard is
mobilized to serve under the direction of the
President or the Secretary of Defense.
The Commander of Northern Command will
have authority over the Guard only when it is
serving in a Title 10 status.
Otherwise, although he can set training
and readiness standards for Guard units when
they operate in Title 10 status, authority over
the Guards' activities would remain with State
governors.
These
arrangements have worked well in the past.
The challenge today is to translate them
into our new security environment.
There are many proposals for doing so,
and we'll work with the NSC, HSC, DHS,
Congress, and the governors to make certain that
we have an approach that meets the nation's
needs.
Conclusion
In conclusion, departments and agencies
charged with U.S. national security share a
common goal: to assure the security of American
citizens, territory, and sovereignty.
DoD and DHS will have complementary
missions and capabilities and we welcome DHS as
a partner that will bring together critical
functions in a way that will be greater and more
effective than the sum of its individual parts.
Thank
you, Mr. Chairman.
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