The Department of Homeland Security: A Primer

Changes from March 7, 2023 to March 21, 2023

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The Department of Homeland Security:
March March 721, 2023 , 2023
A Primer
William L. Painter
Established in early 2003, the Department of Homeland Security (DHS) is the “youngest” Established in early 2003, the Department of Homeland Security (DHS) is the “youngest”
Specialist in Homeland Specialist in Homeland
cabinet-level department of the U.S. government, and has a broad and complex mission. This cabinet-level department of the U.S. government, and has a broad and complex mission. This
Security and Security and
report is intended to brief congressional staff on the mission, structure, staffing, and funding report is intended to brief congressional staff on the mission, structure, staffing, and funding
Appropriations Appropriations
of DHS. of DHS.

After an initial set of “snapshots” of these four parameters, this report includes a basic After an initial set of “snapshots” of these four parameters, this report includes a basic

history of history of:
 the establishment of DHS,  the establishment of DHS,
 how it has been reorganized over the years, and  how it has been reorganized over the years, and
 how the House and Senate are organized to oversee and legislate on its operations.  how the House and Senate are organized to oversee and legislate on its operations.
More in-depth data are then presented on component-level staffing, and department and component-level funding. More in-depth data are then presented on component-level staffing, and department and component-level funding.
An appendix provides a list of experts congressional clients may choose to reach out to for further information. An appendix provides a list of experts congressional clients may choose to reach out to for further information.
This report provides a perspective on DHS reflecting its status at the end of FY2022, with information added to reflect This report provides a perspective on DHS reflecting its status at the end of FY2022, with information added to reflect
enacted FY2023 appropriations as of March 1, 2023. enacted FY2023 appropriations as of March 1, 2023.
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Introduction
Established in early 2003, the Department of Homeland Security (DHS) is the “youngest” Established in early 2003, the Department of Homeland Security (DHS) is the “youngest”
cabinet-level department of the U.S. government, and has a broad and complex mission. This cabinet-level department of the U.S. government, and has a broad and complex mission. This
report is intended to brief congressional staff on the mission, structure, staffing, and funding of report is intended to brief congressional staff on the mission, structure, staffing, and funding of
DHS. DHS.
After an initial set of “snapshots” of these four parameters, this report includes a basic history of After an initial set of “snapshots” of these four parameters, this report includes a basic history of:
 the establishment of DHS,  the establishment of DHS,
 how it has been reorganized over the years, and  how it has been reorganized over the years, and
 how the House and Senate are organized to oversee and legislate on its operations.  how the House and Senate are organized to oversee and legislate on its operations.
More in-depth data are then presented on component-level staffing, and department and More in-depth data are then presented on component-level staffing, and department and
component-level funding. component-level funding.
In the event that clients have particular questions about components or their missions, they can In the event that clients have particular questions about components or their missions, they can
consult the table of experts provided iconsult the table of experts provided in Appendix B.
Should congressional clients be interested in exploring the data behind these figures or require Should congressional clients be interested in exploring the data behind these figures or require
additional analyses, please contact the author. additional analyses, please contact the author.
DHS: Current Snapshot
Mission(s)
Department of Homeland Security Mission Statement
“With honor and integrity, we will safeguard the American people, our homeland, “With honor and integrity, we will safeguard the American people, our homeland, and our and our
values.” values.”
Six “overarching mission areas”
1. Counter Terrorism and Homeland Security Threats 1. Counter Terrorism and Homeland Security Threats
2. Secure U.S. Borders and Approaches 2. Secure U.S. Borders and Approaches
3. Secure Cyberspace and Critical Infrastructure 3. Secure Cyberspace and Critical Infrastructure
4. Preserve and Uphold the Nation’s Prosperity and Economic Security 4. Preserve and Uphold the Nation’s Prosperity and Economic Security
5. Strengthen Preparedness and Resilience 5. Strengthen Preparedness and Resilience
6. Champion the DHS Workforce and Strengthen the Department 6. Champion the DHS Workforce and Strengthen the Department
https://www.dhs.gov/mission
DHS Structure
An enhanced version of the public organizational chart for DHS is included asAn enhanced version of the public organizational chart for DHS is included as Figure 1. The The
chart shows the number of departmental elements that have a direct reporting relationship with chart shows the number of departmental elements that have a direct reporting relationship with
the office of the Secretary, but does not provide information about the scale, missions, or roles the office of the Secretary, but does not provide information about the scale, missions, or roles
within the department. within the department.
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Headquarters components are made up of the subcomponents in three shades of blue, operational Headquarters components are made up of the subcomponents in three shades of blue, operational
components are in dark gray (law enforcement) and red (preparedness, response, and recovery), components are in dark gray (law enforcement) and red (preparedness, response, and recovery),
and the Office of Inspector General is in light gray. and the Office of Inspector General is in light gray.
Figure 1. DHS Organizational Chart, ~~January~~March 1, 2023

Source: DHS.gov and CRS analysis. DHS.gov and CRS analysis.
Notes: The FY2023 DHS Budget-in-Brief refers to the Office of Operations Coordination as the Office of
~~Situational Awareness. However, the organizational chart on the DHS website does not reflect such a change.~~
~~Staffing Levels1~~
Staffing Levels1 Figure 2 shows the relative proportion of DHS civilian personnel to DHS servicemembers, which shows the relative proportion of DHS civilian personnel to DHS servicemembers, which
are made up of U.S. Coast Guard active duty and reserve personnel. are made up of U.S. Coast Guard active duty and reserve personnel.

1 As of the end of September 2022. 1 As of the end of September 2022.
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Figure 2. DHS Overall Staffing as of September 30, 2022

Source: Civilian staffing levels from U.S. Office of Personnel Management’s FedScope data sets; Servicemember Civilian staffing levels from U.S. Office of Personnel Management’s FedScope data sets; Servicemember
data from U.S. Coast Guard (USCG) email, February 2, 2023. data from U.S. Coast Guard (USCG) email, February 2, 2023.
FY2023 Year Appropriations
 FY2023 gross total budget authority from congressional documents:  FY2023 gross total budget authority from congressional documents: $95.39 billion:2
 $1.42 billion in advance appropriations from Division J of P.L. 117-58;  $1.42 billion in advance appropriations from Division J of P.L. 117-58;
 $86.47 billion in discretionary annual appropriations from Division F of P.L. 117- $86.47 billion in discretionary annual appropriations from Division F of P.L. 117-
328; 328;
 Offset by $5.43 billion in collections and $394 million in rescissions; and  Offset by $5.43 billion in collections and $394 million in rescissions; and
 Including $19.95 billion in disaster relief-designated funding.  Including $19.95 billion in disaster relief-designated funding.
 $2.04 billion in appropriated mandatory spending from the same; and  $2.04 billion in appropriated mandatory spending from the same; and
 $5.46 billion in supplemental appropriations from Division N of P.L. 117-328.  $5.46 billion in supplemental appropriations from Division N of P.L. 117-328.
FY2022 Appropriations and Budget
 FY2022 gross total budget authority from congressional documents:  FY2022 gross total budget authority from congressional documents: $87.08 billion:3
 $587 million in emergency-designated costs and appropriations from Divisions B  $587 million in emergency-designated costs and appropriations from Divisions B
and C of P.L. 117-43;4 and C of P.L. 117-43;4
 $3.08 billion in emergency appropriations from Division J of P.L. 117-58;  $3.08 billion in emergency appropriations from Division J of P.L. 117-58;

2 Drawn from the detail table at the end of explanatory statement accompanying the FY2023 DHS appropriations act 2 Drawn from the detail table at the end of explanatory statement accompanying the FY2023 DHS appropriations act
(P.L. 117-328, Div. F; detail table available in the December 20, 2022 (P.L. 117-328, Div. F; detail table available in the December 20, 2022 Congressional Record, S8600-S8643), counting , S8600-S8643), counting
emergency advance appropriations in the year they become available for obligation. emergency advance appropriations in the year they become available for obligation.
3 Ibid., with the same conditions. 3 Ibid., with the same conditions.
4 This include $344 million in emergency-designated costs in FY2022 related to policy changes in P.L. 117-43. 4 This include $344 million in emergency-designated costs in FY2022 related to policy changes in P.L. 117-43.
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 $147 million in emergency appropriations from Division B of P.L. 117-70;  $147 million in emergency appropriations from Division B of P.L. 117-70;
 $81.26 billion in discretionary annual appropriations from Division F of P.L. 117- $81.26 billion in discretionary annual appropriations from Division F of P.L. 117-
103; 103;
 Offset by $4.42 billion in collections and $460 million in rescissions; and  Offset by $4.42 billion in collections and $460 million in rescissions; and
 Including $18.80 billion in disaster relief-designated funding.  Including $18.80 billion in disaster relief-designated funding.
 $1.96 billion in appropriated mandatory spending was provided in the same.  $1.96 billion in appropriated mandatory spending was provided in the same.
 FY2022 Final Combined Statement for the DHS Budget:  FY2022 Final Combined Statement for the DHS Budget: $102.20 billion:5 5
 $88.81 billion in net appropriations and other obligational authority; and  $88.81 billion in net appropriations and other obligational authority; and
 $13.40 billion in total offsetting receipts.  $13.40 billion in total offsetting receipts.
Components and Missions
The following sections describe the mission, current funding level and staffing for each The following sections describe the mission, current funding level and staffing for each
component, grouped by type, and (within type) in the order they appear in DHS appropriations component, grouped by type, and (within type) in the order they appear in DHS appropriations
measures. measures.
Law Enforcement Operational Components (DHS Appropriations Title II)
 U.S. Customs and Border Protection  U.S. Customs and Border Protection
 Immigration and Customs Enforcement  Immigration and Customs Enforcement
 Transportation Security Administration  Transportation Security Administration
 U.S. Coast Guard  U.S. Coast Guard
 U.S. Secret Service  U.S. Secret Service
Preparedness, Response, and Recovery Operations Components (Title III)
 Cybersecurity and Infrastructure Security Agency  Cybersecurity and Infrastructure Security Agency
 Federal Emergency Management Agency  Federal Emergency Management Agency
USCIS and Support Components (Title IV)
 U.S. Citizenship and Immigration Services (an operational component)  U.S. Citizenship and Immigration Services (an operational component)
 Federal Law Enforcement Training Center  Federal Law Enforcement Training Center
 Science and Technology Directorate  Science and Technology Directorate
 Countering Weapons of Mass Destruction Office  Countering Weapons of Mass Destruction Office
Headquarters (Title I)
 Departmental Management and Operations  Departmental Management and Operations
 Office of the Secretary and Executive Management  Office of the Secretary and Executive Management
 Management Directorate (includes the Federal Protective Service)  Management Directorate (includes the Federal Protective Service)
 Office of Intelligence and Analysis  Office of Intelligence and Analysis
~~ Operations Coordination~~

5 Drawn from the year-ending 5 Drawn from the year-ending Combined Statement of Receipts, Outlays and Balances of the United States
Government. This document is assembled by the Bureau of the Fiscal Service, and includes not only discretionary . This document is assembled by the Bureau of the Fiscal Service, and includes not only discretionary
appropriations provided by Congress, but also mandatory spending, trust funds, and other budgetary elements in a appropriations provided by Congress, but also mandatory spending, trust funds, and other budgetary elements in a
statement of total resources available to the department. statement of total resources available to the department.
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  Operations Coordination  Office of Inspector General Office of Inspector General

Data Sources and Methodology for the Review of Component Missions, ~~Funding,~~
Funding, and Staffing
Mission summaries are drawn from the FY2023 Mission summaries are drawn from the FY2023 DHS Budget-in-Brief.
Discretionary appropriations for FY2023 are drawn from the explanatory statement accompanying P.L. 117-328, Discretionary appropriations for FY2023 are drawn from the explanatory statement accompanying P.L. 117-328,
Division F. The detail tables for the DHS portion of that statement are found in the December 20, 2022 Division F. The detail tables for the DHS portion of that statement are found in the December 20, 2022
Congressional Record, on pages S8600-S8643. , on pages S8600-S8643.
Civilian employee data are drawn from the Office of Personnel Management’s FedScope data set, and reflect Civilian employee data are drawn from the Office of Personnel Management’s FedScope data set, and reflect
staffing as of the end of September, 2022. staffing as of the end of September, 2022.
Total budget authority for FY2022 is taken from the year-ending Total budget authority for FY2022 is taken from the year-ending Combined Statement of Receipts, Outlays and
Balances of the United States Government. Assembled by the U.S. Department of the Treasury’s Bureau of the Fiscal . Assembled by the U.S. Department of the Treasury’s Bureau of the Fiscal
Service, this document includes not only discretionary appropriations provided by Congress, but also mandatory Service, this document includes not only discretionary appropriations provided by Congress, but also mandatory
spending, trust funds, and other budgetary elements in a statement of total resources available to the component.6 spending, trust funds, and other budgetary elements in a statement of total resources available to the component.6
Law Enforcement Operational Components
Funding for law enforcement operational components is generally provided in Title II of the DHS Funding for law enforcement operational components is generally provided in Title II of the DHS
appropriations acts. appropriations acts.
U.S. Customs and Border Protection (CBP)
CBP “is responsible for securing America’s borders, coastlines, and ports of entry. CBP also CBP “is responsible for securing America’s borders, coastlines, and ports of entry. CBP also
protects the United States against terrorist threats and prevents the illegal entry of inadmissible protects the United States against terrorist threats and prevents the illegal entry of inadmissible
persons and contraband while facilitating lawful travel, trade, and immigration.”7 persons and contraband while facilitating lawful travel, trade, and immigration.”7
 FY2023 discretionary appropriations as of March 1, 2023: FY2023 discretionary appropriations as of March 1, 2023: $18.34 billion$18.34 billion (does not (does not
include $213 million in discretionary costs offset by fee collections) include $213 million in discretionary costs offset by fee collections)
 Civilian employees (as of September, 2022): 63,621  Civilian employees (as of September, 2022): 63,621
 Total budget authority provided in FY2022: $18.74 billion  Total budget authority provided in FY2022: $18.74 billion
Immigration and Customs Enforcement (ICE)
ICE “is the principal criminal investigative agency within DHS... ICE enforces [U.S.] customs, ICE “is the principal criminal investigative agency within DHS... ICE enforces [U.S.] customs,
trade and immigration laws.”8 trade and immigration laws.”8
 FY2023 discretionary appropriations as of March 1, 2023: FY2023 discretionary appropriations as of March 1, 2023: $8.76 billion $8.76 billion
 Civilian employees (as of September, 2022): 20,167  Civilian employees (as of September, 2022): 20,167
 Total budget authority provided in FY2022: $8.94 billion  Total budget authority provided in FY2022: $8.94 billion

6 The 6 The Combined Statement is available at https://www.fiscal.treasury.gov/reports-statements/combined-statement/. is available at https://www.fiscal.treasury.gov/reports-statements/combined-statement/.
7 Department of Homeland Security, 7 Department of Homeland Security, Budget-in Brief, Fiscal Year 2023, Washington, DC, p. 26, https://www.dhs.gov/, Washington, DC, p. 26, https://www.dhs.gov/
publication/fy-2023-budget-brief (hereinafter publication/fy-2023-budget-brief (hereinafter Budget-in-Brief). ).
8 Ibid., p. 33. 8 Ibid., p. 33.
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Transportation Security Administration (TSA)
TSA was established “to protect the nation’s transportation systems and ensure the free and TSA was established “to protect the nation’s transportation systems and ensure the free and
secure movement of people and commerce.”9 secure movement of people and commerce.”9
 FY2023 discretionary appropriations as of March 1, 2023: $6.48 billion (does not  FY2023 discretionary appropriations as of March 1, 2023: $6.48 billion (does not
include $2.84 billion in discretionary costs offset by fee collections) include $2.84 billion in discretionary costs offset by fee collections)
 Civilian employees (as of September, 2022): 61,555  Civilian employees (as of September, 2022): 61,555
 Total budget authority provided in FY2022: $6.46 billion (does not include $2.31  Total budget authority provided in FY2022: $6.46 billion (does not include $2.31
billion in discretionary costs offset by fee collections) billion in discretionary costs offset by fee collections)
U.S. Coast Guard (USCG)
The USCG “is the principal federal agency responsible for maritime safety, security, and The USCG “is the principal federal agency responsible for maritime safety, security, and
environmental stewardship of U.S. ports and inland waterways.”10 The USCG is a hybrid agency environmental stewardship of U.S. ports and inland waterways.”10 The USCG is a hybrid agency
with law enforcement, regulatory, and first responder responsibilities. It is not only a component with law enforcement, regulatory, and first responder responsibilities. It is not only a component
of DHS, but also a member of the intelligence community in its own right, as well as an element of DHS, but also a member of the intelligence community in its own right, as well as an element
of the U.S. Armed Forces. of the U.S. Armed Forces.
 FY2023 discretionary appropriations as of March 1, 2023 (including $155 million in  FY2023 discretionary appropriations as of March 1, 2023 (including $155 million in
emergency funding): $11.79 billion emergency funding): $11.79 billion
 Civilian employees (as of September, 2022): 9,199  Civilian employees (as of September, 2022): 9,199
 Military personnel (as of September 30, 2022): 45,838  Military personnel (as of September 30, 2022): 45,838
 Active duty servicemembers: 39,80211  Active duty servicemembers: 39,80211
 Reserve status servicemembers: 6,03612  Reserve status servicemembers: 6,03612
 Total budget authority provided in FY2022: $14.77 billion  Total budget authority provided in FY2022: $14.77 billion
U.S. Secret Service (USSS)
The USSS isThe USSS is responsible for protecting the President, the Vice-President, their families and responsible for protecting the President, the Vice-President, their families and
residences, past Presidents and their spouses, national and world leaders visiting the United residences, past Presidents and their spouses, national and world leaders visiting the United
States, designated buildings (including the White House and Vice President’s Residence), and States, designated buildings (including the White House and Vice President’s Residence), and
special events of national significance. The USSS also investigates and enforces laws related to special events of national significance. The USSS also investigates and enforces laws related to
counterfeiting and certain other financial crimes.13 counterfeiting and certain other financial crimes.13
 FY2023 discretionary appropriations as of February 3, 2023: FY2023 discretionary appropriations as of February 3, 2023: $2.82 billion $2.82 billion
 Civilian employees (as of September, 2022): 7,778  Civilian employees (as of September, 2022): 7,778
 Total budget authority provided in FY2022: $2.88 billion  Total budget authority provided in FY2022: $2.88 billion
Preparedness, Response, and Recovery Operational Components
Funding for the operational components focused on incident response and recovery is generally Funding for the operational components focused on incident response and recovery is generally
found in Title III of the DHS appropriations act. It includes funding for FEMA, which has the found in Title III of the DHS appropriations act. It includes funding for FEMA, which has the

9 Ibid., p. 41. 9 Ibid., p. 41.
10 Ibid., p. 48. 10 Ibid., p. 48.
11 Per e-mail to CRS from USCG Liaison Office, January 25, 2023. 11 Per e-mail to CRS from USCG Liaison Office, January 25, 2023.
12 Ibid. 12 Ibid.
13 13 Budget-in-Brief, p. 55. , p. 55.
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largest budget of any DHS component. FEMA’s appropriations are largely driven by disaster largest budget of any DHS component. FEMA’s appropriations are largely driven by disaster
programs authorized under the Stafford Act, but the overall budget for FEMA also includes a programs authorized under the Stafford Act, but the overall budget for FEMA also includes a
significant amount of significant amount of ~~non-appropriated~~nonappropriated funding for the National Flood Insurance Program. funding for the National Flood Insurance Program.
Cybersecurity and Infrastructure Security Agency (CISA)
Formerly known as the National Protection and Programs Directorate (NPPD), CISA “leads the Formerly known as the National Protection and Programs Directorate (NPPD), CISA “leads the
Federal Government’s effort to understand, manage, and reduce risk to the Nation’s cyber and Federal Government’s effort to understand, manage, and reduce risk to the Nation’s cyber and
physical infrastructure.”14 physical infrastructure.”14
 FY2023 discretionary appropriations as of March 1, 2023 (including $20 million in  FY2023 discretionary appropriations as of March 1, 2023 (including $20 million in
emergency funding): emergency funding): $2.93 billion $2.93 billion
 Civilian employees (as of September, 2022): 2,671  Civilian employees (as of September, 2022): 2,671
 Total budget authority provided in FY2022: $2.60 billion  Total budget authority provided in FY2022: $2.60 billion
Federal Emergency Management Agency (FEMA)
FEMA “reduces the loss of life and property and protects the nation from all hazards by leading FEMA “reduces the loss of life and property and protects the nation from all hazards by leading
and supporting the nation in a risk-based, comprehensive emergency management system.”15 and supporting the nation in a risk-based, comprehensive emergency management system.”15
 FY2023 discretionary appropriations as of March 1, 2023 (including $6.4 billion in  FY2023 discretionary appropriations as of March 1, 2023 (including $6.4 billion in
emergency and $19.95 billion in disaster relief funding): emergency and $19.95 billion in disaster relief funding): $31.82 billion $31.82 billion
 Civilian employees (as of September, 2022): 22,146  Civilian employees (as of September, 2022): 22,146
 Total budget authority provided in FY2022: $36.81 billion  Total budget authority provided in FY2022: $36.81 billion
USCIS and Support Components
Funding for support components is generally found in Title IV of the DHS appropriations bill. Funding for support components is generally found in Title IV of the DHS appropriations bill.
U.S. Citizenship and Immigration Services (USCIS)
USCIS administers federal immigration laws related to processing immigration and USCIS administers federal immigration laws related to processing immigration and
nonimmigrant petitions that facilitate temporary admission and permanent immigration to the nonimmigrant petitions that facilitate temporary admission and permanent immigration to the
United States.16 Despite being generally funded in Title IV of the DHS appropriations acts, United States.16 Despite being generally funded in Title IV of the DHS appropriations acts,
USCIS is usually considered an operational component of DHS. USCIS is usually considered an operational component of DHS.
 FY2023 discretionary appropriations as of March 1, 2023: FY2023 discretionary appropriations as of March 1, 2023: $268 million $268 million
 Civilian employees (as of September, 2022): 19,119  Civilian employees (as of September, 2022): 19,119
 Total budget authority provided in FY2022: $5.51 billion  Total budget authority provided in FY2022: $5.51 billion

14 Ibid., p. 60. 14 Ibid., p. 60.
15 Ibid., p. 67. 15 Ibid., p. 67.
16 16 Budget-in-Brief, p. 74. A large share of FLETC’s budget is reimbursement for the training they provide—FLETC , p. 74. A large share of FLETC’s budget is reimbursement for the training they provide—FLETC
was projected to receive more than $212 million in FY2022 and $232 million in FY2023 in such reimbursements. was projected to receive more than $212 million in FY2022 and $232 million in FY2023 in such reimbursements.
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Federal Law Enforcement Training Centers (FLETC)
FLETC is “a technical training school for law enforcement professionals,” designed to meet the FLETC is “a technical training school for law enforcement professionals,” designed to meet the
basic and specialized training needs of approximately 118 federal agencies, as well as state and basic and specialized training needs of approximately 118 federal agencies, as well as state and
local organizations.17 local organizations.17
 FY2023 discretionary appropriations as of March 1, 2023 (including emergency  FY2023 discretionary appropriations as of March 1, 2023 (including emergency
funding): funding): $407 million $407 million
 Civilian employees (as of September, 2022): 1,306  Civilian employees (as of September, 2022): 1,306
 Total budget authority provided in FY2022: $350 million  Total budget authority provided in FY2022: $350 million
Science and Technology Directorate (S&T)
S&T leads and coordinates research, development, testing, and evaluation work for DHS and the S&T leads and coordinates research, development, testing, and evaluation work for DHS and the
broader homeland security enterprise, and supports departmental acquisitions.18 broader homeland security enterprise, and supports departmental acquisitions.18
 FY2023 discretionary appropriations as of March 1, 2023 (including emergency  FY2023 discretionary appropriations as of March 1, 2023 (including emergency
funding): funding): $901 million $901 million
 Civilian employees (as of September, 2022): 486  Civilian employees (as of September, 2022): 486
 Total budget authority provided in FY2022: $1.04 billion  Total budget authority provided in FY2022: $1.04 billion
Countering Weapons of Mass Destruction Office (CWMD)
CWMD is “the single hub for the department’s activities to prevent and mitigate the impacts of CWMD is “the single hub for the department’s activities to prevent and mitigate the impacts of
[Chemical, Biological, Radiological, and Nuclear] threats.”19 Until FY2023, it also included the [Chemical, Biological, Radiological, and Nuclear] threats.”19 Until FY2023, it also included the
Department’s Chief Medical Officer, who has since been transferred to the new Office of Health Department’s Chief Medical Officer, who has since been transferred to the new Office of Health
Security within the Management Directorate. Security within the Management Directorate.
 FY2023 discretionary appropriations as of March 1, 2023 (including emergency  FY2023 discretionary appropriations as of March 1, 2023 (including emergency
funding): funding): $431 million $431 million
 Civilian employees (as of September, 2022): 249  Civilian employees (as of September, 2022): 249
 Total budget authority provided in FY2022: $452 million  Total budget authority provided in FY2022: $452 million
Headquarters Components
Funding for headquarters components is traditionally found in Title I of the DHS appropriations Funding for headquarters components is traditionally found in Title I of the DHS appropriations
act, although some initiatives have been funded in the past through general provisions in Title V act, although some initiatives have been funded in the past through general provisions in Title V
of the act. of the act.
Departmental Management and Operations (DMO)
DHS headquarters is at times treated as a single entity (DMO) or as individual components or DHS headquarters is at times treated as a single entity (DMO) or as individual components or
subcomponents. The two components under DMO are: subcomponents. The two components under DMO are:

17 Ibid., p. 79. 17 Ibid., p. 79.
18 Ibid., p. 84. 18 Ibid., p. 84.
19 Ibid., p. 90. 19 Ibid., p. 90.
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Office of the Secretary and Executive Management (OSEM): OSEM provides central OSEM provides central
leadership, management, direction and oversight for all DHS components.20 leadership, management, direction and oversight for all DHS components.20
 FY2023 discretionary appropriations as of March 1, 2023: $385 million  FY2023 discretionary appropriations as of March 1, 2023: $385 million
Departmental Management Directorate (MGMT): MGMT provides DHS-wide mission MGMT provides DHS-wide mission
support services.21 support services.21
 FY2023 discretionary appropriations as of March 1, 2023: $2.07 billion (does not  FY2023 discretionary appropriations as of March 1, 2023: $2.07 billion (does not
include $2.11 billion in Federal Protective Service costs offset by projected fees) include $2.11 billion in Federal Protective Service costs offset by projected fees)
 FY2023 total discretionary appropriations for DMO as of March 1, 2023: $4.57  FY2023 total discretionary appropriations for DMO as of March 1, 2023: $4.57
billion billion
Intelligence, Analysis, and Operations (IA&O)
IA&O covers two separate offices: IA&O covers two separate offices:
The Office of Intelligence and Analysis (I&A): integrates and shares intelligence with DHS integrates and shares intelligence with DHS
components and stakeholders to allow them to identify, mitigate, and respond to threats; and components and stakeholders to allow them to identify, mitigate, and respond to threats; and
The Office of Operations Coordination:22 provides information sharing and situational 22 provides information sharing and situational
awareness to DHS and its partners. It also helps provide the common operating picture for awareness to DHS and its partners. It also helps provide the common operating picture for
DHS by maintaining the National Operations Center.23 DHS by maintaining the National Operations Center.23
 FY2023 discretionary appropriations for IA&O as of March 1, 2023: $316 million  FY2023 discretionary appropriations for IA&O as of March 1, 2023: $316 million
 FY2023 discretionary appropriations for DMO and IA&O combined as of March 1,  FY2023 discretionary appropriations for DMO and IA&O combined as of March 1,
2023: $2.77 billion (does not include $2.11 billion in Federal Protective Service costs 2023: $2.77 billion (does not include $2.11 billion in Federal Protective Service costs
offset by projected fees) offset by projected fees)
 Total budget authority for DMO and IA&O combined in FY2022: $3.44 billion (does  Total budget authority for DMO and IA&O combined in FY2022: $3.44 billion (does
not include $1.65 billion in Federal Protective Service costs offset by projected fees) not include $1.65 billion in Federal Protective Service costs offset by projected fees)
 Civilian employees for DMO and IA&O combined (as of September, 2022): 5,07624  Civilian employees for DMO and IA&O combined (as of September, 2022): 5,07624
Office of Inspector General (OIG)
The OIG is “an independent, objective audit, inspection, and investigative body that reports to the The OIG is “an independent, objective audit, inspection, and investigative body that reports to the
Secretary and to Congress on DHS efficiency and effectiveness, and works to prevent waste, Secretary and to Congress on DHS efficiency and effectiveness, and works to prevent waste,
fraud, and abuse.”25 fraud, and abuse.”25
 FY2023 discretionary appropriations as of March 1, 2023 (including emergency  FY2023 discretionary appropriations as of March 1, 2023 (including emergency
funding): funding): $215 million $215 million
 Civilian employees (as of September, 2022): 748  Civilian employees (as of September, 2022): 748
 Total budget authority provided in FY2022: $213 million  Total budget authority provided in FY2022: $213 million

20 Ibid20 Ibid., p. 12. , p. 12.
21 Ibid. Together, the Office of the Secretary and Executive Management (OSEM) and Departmental Management 21 Ibid. Together, the Office of the Secretary and Executive Management (OSEM) and Departmental Management
Directorate (DM) are referred to in the Directorate (DM) are referred to in the Budget-in-Brief as Departmental Management and Operations (DMO). as Departmental Management and Operations (DMO).
22 The “Office of Operations Coordination” was referred to in the 22 The “Office of Operations Coordination” was referred to in the Budget-in-Brief as the “Office of Homeland Security as the “Office of Homeland Security
Situational Awareness.” However, the DHS website generally does not show signs of the name change. Situational Awareness.” However, the DHS website generally does not show signs of the name change.
23 23 Budget-in-Brief, p. 19. , p. 19.
24 FedScope provides civilian staffing levels for OSEM, MGMT, and IA&O as a single combined number. 24 FedScope provides civilian staffing levels for OSEM, MGMT, and IA&O as a single combined number.
25 Ibid., p. 24. 25 Ibid., p. 24.
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DHS History
Establishment
Prior to the 9/11 attacks, some in Congress were evaluating options to alter national security Prior to the 9/11 attacks, some in Congress were evaluating options to alter national security
policy given the new post-Cold War strategic situation. Two commissions engaged in the policy given the new post-Cold War strategic situation. Two commissions engaged in the
evolution of national security thinking presented two alternative approaches. evolution of national security thinking presented two alternative approaches.
In the 1999 National Defense Authorization Act, Section 1405 authorized the U.S. Congressional In the 1999 National Defense Authorization Act, Section 1405 authorized the U.S. Congressional
Advisory Panel to Assess Domestic Response Capabilities for Terrorism Involving Weapons of Advisory Panel to Assess Domestic Response Capabilities for Terrorism Involving Weapons of
Mass Destruction—more commonly known as the Gilmore Commission, after its chair, then-Mass Destruction—more commonly known as the Gilmore Commission, after its chair, then-
Governor James Gilmore of Virginia.26 In December 2000, its second annual report, “Toward a Governor James Gilmore of Virginia.26 In December 2000, its second annual report, “Toward a
National Strategy for Combating Terrorism,” called for the creation of a “National Office for National Strategy for Combating Terrorism,” called for the creation of a “National Office for
Combating Terrorism.” This office would have been headed by a Senate-confirmed director who Combating Terrorism.” This office would have been headed by a Senate-confirmed director who
would formulate strategy and use the budget process to help coordinate the estimated 40 parts of would formulate strategy and use the budget process to help coordinate the estimated 40 parts of
the federal government involved in counter-terrorism activities. The director would the federal government involved in counter-terrorism activities. The director would not have had have had
operational control of the various elements.27 operational control of the various elements.27
Separately, in July 1998, the Secretary of Defense set up the U.S. Commission on National Separately, in July 1998, the Secretary of Defense set up the U.S. Commission on National
Security/21st Century—more commonly known as the Hart-Rudman Commission, after its co-Security/21st Century—more commonly known as the Hart-Rudman Commission, after its co-
chairs, former Senators Gary Hart and Warren Rudman.28 In January 2001, the commission’s chairs, former Senators Gary Hart and Warren Rudman.28 In January 2001, the commission’s
third report in a series on American security policy in the 21st century, entitled “Roadmap for third report in a series on American security policy in the 21st century, entitled “Roadmap for
Security: An Imperative for Change,” called for a number of actions to shore up American Security: An Imperative for Change,” called for a number of actions to shore up American
security and economic competitiveness.29 These included creation of “a new National Homeland security and economic competitiveness.29 These included creation of “a new National Homeland
Security Agency to consolidate and refine the missions of the nearly two dozen disparate Security Agency to consolidate and refine the missions of the nearly two dozen disparate
departments and agencies that have a role in U.S. homeland security today.”30 departments and agencies that have a role in U.S. homeland security today.”30
After 9/11, Congress legislated on a range of homeland security issues in a matter of days, After 9/11, Congress legislated on a range of homeland security issues in a matter of days,
including the establishment of the Transportation Security Administration. Broader shifts in the including the establishment of the Transportation Security Administration. Broader shifts in the
overall federal approaches to homeland security moved more slowly. This process began on overall federal approaches to homeland security moved more slowly. This process began on
September 20, 2001, when President George W. Bush announced that he would sign an executive September 20, 2001, when President George W. Bush announced that he would sign an executive
order establishing an Office of Homeland Security, to be headed by an Assistant to the President order establishing an Office of Homeland Security, to be headed by an Assistant to the President
for Homeland Security, and a Homeland Security Council, without further reorganization of for Homeland Security, and a Homeland Security Council, without further reorganization of
existing federal activities.31 On October 11, 2001, three days after the president actually signed existing federal activities.31 On October 11, 2001, three days after the president actually signed

26 Reports available through http://www.rand.org/nsrd/terrpanel.html. 26 Reports available through http://www.rand.org/nsrd/terrpanel.html.
27 Advisory Panel to Assess Domestic Response Capabilities for Terrorism Involving Weapons of Mass Destruction, 27 Advisory Panel to Assess Domestic Response Capabilities for Terrorism Involving Weapons of Mass Destruction,
“Second Annual Report to the President and the Congress of the Advisory Panel to Assess Domestic Response “Second Annual Report to the President and the Congress of the Advisory Panel to Assess Domestic Response
Capabilities for Terrorism Involving Weapons of Mass Destruction: Toward a National Strategy for Combating Capabilities for Terrorism Involving Weapons of Mass Destruction: Toward a National Strategy for Combating
Terrorism,” December 15, 2000, at http://www.rand.org/content/dam/rand/www/external/nsrd/terrpanel/terror2.pdf. Terrorism,” December 15, 2000, at http://www.rand.org/content/dam/rand/www/external/nsrd/terrpanel/terror2.pdf.
28 Reports available through http://govinfo.library.unt.edu/nssg/Reports/reports.htm. 28 Reports available through http://govinfo.library.unt.edu/nssg/Reports/reports.htm.
29 See, for example, U.S. Congress, House Committee on Transportation and Infrastructure, Subcommittee on 29 See, for example, U.S. Congress, House Committee on Transportation and Infrastructure, Subcommittee on
Economic Development, Public Buildings and Emergency Management, Economic Development, Public Buildings and Emergency Management, Combating Terrorism: Options to Improve
Federal Response, 107th Cong., 1st sess., April 24, 2001, Serial No. 107-11 (Washington: GPO, 2002); and U.S. , 107th Cong., 1st sess., April 24, 2001, Serial No. 107-11 (Washington: GPO, 2002); and U.S.
Congress, Senate Committee on the Judiciary, Subcommittee on Technology, Terrorism, and Government Information, Congress, Senate Committee on the Judiciary, Subcommittee on Technology, Terrorism, and Government Information,
Homeland Defense: Exploring the Hart-Rudman Report, 107th Cong., 1st sess., April 3, 2001, S.Hrg. 107-239 , 107th Cong., 1st sess., April 3, 2001, S.Hrg. 107-239
(Washington: GPO, 2002). (Washington: GPO, 2002).
30 United States Commission on National Security/21st Century, “Road Map for National Security: Imperative for 30 United States Commission on National Security/21st Century, “Road Map for National Security: Imperative for
Change,” January 2001, p. iv. Change,” January 2001, p. iv.
31 Executive Order 13228, “Establishing the Office of Homeland Security and the Homeland Security Council,” 6631 Executive Order 13228, “Establishing the Office of Homeland Security and the Homeland Security Council,” 66
Federal Register 51812, October 8, 2001. 51812, October 8, 2001.
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the executive order, Senators Joseph Lieberman and Arlen Specter introduced S. 1534, to the executive order, Senators Joseph Lieberman and Arlen Specter introduced S. 1534, to
establish a “Department of National Homeland Security,” along the general lines of the Hart-establish a “Department of National Homeland Security,” along the general lines of the Hart-
Rudman Commission proposal. Rudman Commission proposal.
Many observers worried that the Office of Homeland Security lacked the authority needed to Many observers worried that the Office of Homeland Security lacked the authority needed to
overcome bureaucratic obstacles or change the way the existing executive branch agencies overcome bureaucratic obstacles or change the way the existing executive branch agencies
addressed homeland security issues.32 Even so, in the months after 9/11, the Administration addressed homeland security issues.32 Even so, in the months after 9/11, the Administration
publicly opposed the creation of a new department.33 Although there wasn’t a single consensus publicly opposed the creation of a new department.33 Although there wasn’t a single consensus
approach, legislation emerged in both the House and Senate along the general lines of the Hart-approach, legislation emerged in both the House and Senate along the general lines of the Hart-
Rudman Commission proposal.34 Rudman Commission proposal.34
On June 6, 2002, President Bush publicly reversed the Administration’s previous opposition to On June 6, 2002, President Bush publicly reversed the Administration’s previous opposition to
the establishment of a new department with the release of his draft proposal for “The Department the establishment of a new department with the release of his draft proposal for “The Department
of Homeland Security.” The Administration’s vision of DHS was broader and more complex than of Homeland Security.” The Administration’s vision of DHS was broader and more complex than
the original plans discussed by the Hart-Rudman commission or embodied in congressional the original plans discussed by the Hart-Rudman commission or embodied in congressional
proposals. proposals.
Legislative History of the Homeland Security Act (HSA)
The House ultimately passed a bill based on the Administration’s plan in the span of 21 The House ultimately passed a bill based on the Administration’s plan in the span of 21
legislative days. The Senate debated the bill for almost as long, but did not obtain cloture and legislative days. The Senate debated the bill for almost as long, but did not obtain cloture and
bring debate to a close, and moved on to other business after October 1, 2002. bring debate to a close, and moved on to other business after October 1, 2002.
After the November elections, the 107th Congress returned for a “lame-duck” session. A new After the November elections, the 107th Congress returned for a “lame-duck” session. A new
version of legislation to create the Department of Homeland Security (DHS)—H.R. 5710—was version of legislation to create the Department of Homeland Security (DHS)—H.R. 5710—was
introduced in the House on November 12, 2002. Operating under a special rule that allowed no introduced in the House on November 12, 2002. Operating under a special rule that allowed no
amendments, the House passed it the next day 299-121. amendments, the House passed it the next day 299-121.
Representative Mac Thornberry, having proposed homeland national security reorganization Representative Mac Thornberry, having proposed homeland national security reorganization
efforts prior to and after 9/11, provided his perspective on the bill during debate: efforts prior to and after 9/11, provided his perspective on the bill during debate:
Mr. Speaker, having worked on this issue for close to 2 years, I have had many doubts that Mr. Speaker, having worked on this issue for close to 2 years, I have had many doubts that
it would ever come to this point; but now I believe it will happen. it would ever come to this point; but now I believe it will happen.
This is not a perfect bill, and it is relatively easy for me and others to find fault, ways that This is not a perfect bill, and it is relatively easy for me and others to find fault, ways that
we wish it would be different. But all of those individual differences we may have with we wish it would be different. But all of those individual differences we may have with
provisions are no competition in my mind to the fact that time is slipping by. If we do not provisions are no competition in my mind to the fact that time is slipping by. If we do not
do it this week, we are at least 3 months further along, 3 months during which our enemies do it this week, we are at least 3 months further along, 3 months during which our enemies
are plotting and planning against us, more time during which we are not as prepared as we are plotting and planning against us, more time during which we are not as prepared as we
could and should be, more months where we are not making preparations to protect could and should be, more months where we are not making preparations to protect
ourselves. ourselves.
Time is a critical factor. Just yesterday we had another threat, and whether it is bin Laden’s Time is a critical factor. Just yesterday we had another threat, and whether it is bin Laden’s
voice or not, it is clear it is someone who intends to kill more Americans. He is very explicit voice or not, it is clear it is someone who intends to kill more Americans. He is very explicit
in the threat. We cannot sit by and have differences over this provision or that provision in the threat. We cannot sit by and have differences over this provision or that provision
keep us from acting.35 keep us from acting.35

32 For example, see U.S. Congress, Senate Committee on Governmental Affairs, 32 For example, see U.S. Congress, Senate Committee on Governmental Affairs, Legislation to Establish a Department
of National Homeland Security and a White House Office to Combat Terrorism, 107th Cong., 2nd sess., April 11, 2002, , 107th Cong., 2nd sess., April 11, 2002,
S.Hrg. 107-472, p. 2 (Sen. Lieberman’s remarks), p. 25 (Sen. Warren Rudman’s remarks), and p. 30 (Comptroller S.Hrg. 107-472, p. 2 (Sen. Lieberman’s remarks), p. 25 (Sen. Warren Rudman’s remarks), and p. 30 (Comptroller
General David Walker’s remarks). General David Walker’s remarks).
33 CQ Newsmaker Transcripts, “White House Holds Regular News Briefing,” March 19, 2002. 33 CQ Newsmaker Transcripts, “White House Holds Regular News Briefing,” March 19, 2002.
34 S. 1534, S. 2452, and H.R. 4660, 107th Congress. 34 S. 1534, S. 2452, and H.R. 4660, 107th Congress.
35 Representative William Thornberry, “Homeland Security Act of 2002,” House debate, 35 Representative William Thornberry, “Homeland Security Act of 2002,” House debate, Congressional Record, ,
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Senator Fred Thompson offered the text of House-passed H.R. 5710 as an amendment to the Senator Fred Thompson offered the text of House-passed H.R. 5710 as an amendment to the
House-passed H.R. 5005, succeeded in getting cloture, defeated attempts to alter the amendment, House-passed H.R. 5005, succeeded in getting cloture, defeated attempts to alter the amendment,
and amended H.R. 5005 passed the Senate on November 19, 2002. On November 22, the House and amended H.R. 5005 passed the Senate on November 19, 2002. On November 22, the House
agreed by unanimous consent to the amended bill, as passed by the Senate. President Bush signed agreed by unanimous consent to the amended bill, as passed by the Senate. President Bush signed
into the bill into law as the Homeland Security Act of 2002 (HSA)36 on November 25. into the bill into law as the Homeland Security Act of 2002 (HSA)36 on November 25.
Initial DHS Organizational Challenges
Enactment of the HSA put in motion what many considered an ambitious timeline to stand up the Enactment of the HSA put in motion what many considered an ambitious timeline to stand up the
department. The act required the establishment of the department within 60 days (the effective department. The act required the establishment of the department within 60 days (the effective
date of the act was January 24, 2003) and the transfer of its major operational components into date of the act was January 24, 2003) and the transfer of its major operational components into
DHS by March 1, 2003. DHS by March 1, 2003.
Almost 10 years later, retired Coast Guard Commandant Admiral Thad Allen asserted in Almost 10 years later, retired Coast Guard Commandant Admiral Thad Allen asserted in
testimony the complications this schedule posed for the new department: testimony the complications this schedule posed for the new department:
The legislation was passed between sessions of Congress, so there was no ability for the The legislation was passed between sessions of Congress, so there was no ability for the
Senate to be empaneled and confirm appointees, although Secretary Ridge was done I Senate to be empaneled and confirm appointees, although Secretary Ridge was done I
believe a day before he was required to become the Secretary. We moved people over that believe a day before he was required to become the Secretary. We moved people over that
had already been confirmed because we could do that. And it took up to a year to get some had already been confirmed because we could do that. And it took up to a year to get some
of the other senior leaders confirmed. of the other senior leaders confirmed.
We were in the middle of a fiscal year. There was no appropriation, so in addition to the We were in the middle of a fiscal year. There was no appropriation, so in addition to the
money that was moved over from the legacy organizations from the Department where money that was moved over from the legacy organizations from the Department where
they were at, some of the new entities, we had to basically reprogram funds from across they were at, some of the new entities, we had to basically reprogram funds from across
government. It was a fairly chaotic time to try and stand up the organic organization of the government. It was a fairly chaotic time to try and stand up the organic organization of the
Department and put together a headquarters. ... Department and put together a headquarters. ...
[W]e had the migration of 22 agencies with legacy appropriations structures, legacy [W]e had the migration of 22 agencies with legacy appropriations structures, legacy
internal support structures, different shared services, and different mission support internal support structures, different shared services, and different mission support
structures in the Departments where they came from. And because of that, a lot of the structures in the Departments where they came from. And because of that, a lot of the
resources associated with how you actually run the components or need to run the resources associated with how you actually run the components or need to run the
Department rest in the components and still do today. And I am talking about things like Department rest in the components and still do today. And I am talking about things like
human resource management, information technology (IT), property management, and so human resource management, information technology (IT), property management, and so
forth, the blocking and tackling of how you have to run an agency in government.37 forth, the blocking and tackling of how you have to run an agency in government.37
Former DHS Inspector General Richard Skinner testified: “We brought over all of the operational Former DHS Inspector General Richard Skinner testified: “We brought over all of the operational
aspects of 22 different agencies, but we did not bring the management support functions to aspects of 22 different agencies, but we did not bring the management support functions to
support those operations.”38 support those operations.”38
Over the life of the department, conceptual differences have remained over the role of its Over the life of the department, conceptual differences have remained over the role of its
management. The original department proposal from the Administration envisioned minimal management. The original department proposal from the Administration envisioned minimal
management, with components continuing their missions as their experience informed their management, with components continuing their missions as their experience informed their
actions. Others advocated a management cadre capable of coordinating department activities to actions. Others advocated a management cadre capable of coordinating department activities to
improve efficiency, effectiveness, and enabling betting information flow and oversight. improve efficiency, effectiveness, and enabling betting information flow and oversight.
Oversight
On January 7, 2003, the House established the temporary Select Committee on Homeland On January 7, 2003, the House established the temporary Select Committee on Homeland
Security. The committee had 50 members—27 Republicans and 23 Democrats. Aside from its Security. The committee had 50 members—27 Republicans and 23 Democrats. Aside from its

November 13, 2002, H8700. November 13, 2002, H8700.
36 P.L. 107-296. 36 P.L. 107-296.
37 S.Hrg. 112-612, p. 48. 37 S.Hrg. 112-612, p. 48.
38 S.Hrg. 112-612, p. 51. 38 S.Hrg. 112-612, p. 51.
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legislative and oversight mandates, the committee was to submit a report to the Rules Committee legislative and oversight mandates, the committee was to submit a report to the Rules Committee
recommending rules changes pertaining to homeland security, including committee jurisdictions. recommending rules changes pertaining to homeland security, including committee jurisdictions.
In February 2003, when the House Appropriations Committee organized itself, it established a In February 2003, when the House Appropriations Committee organized itself, it established a
new Homeland Security Subcommittee to oversee funding for the new department. The new Homeland Security Subcommittee to oversee funding for the new department. The
reorganization was made without consulting the Senate, which reorganized on similar lines the reorganization was made without consulting the Senate, which reorganized on similar lines the
following month. Jim Dyer, Staff Director of the House Appropriations Committee at the time following month. Jim Dyer, Staff Director of the House Appropriations Committee at the time
described the committee’s reorganization effort as being “the tip of the spear,” and indicated that described the committee’s reorganization effort as being “the tip of the spear,” and indicated that
they consulted extensively with the House leadership and authorizing committees about their they consulted extensively with the House leadership and authorizing committees about their
approach to reorganizing.39 approach to reorganizing.39
Support for establishing a permanent committee in the House was bipartisan. On September 9, Support for establishing a permanent committee in the House was bipartisan. On September 9,
2003, former Speakers of the House Tom Foley and Newt Gingrich urged House leadership that 2003, former Speakers of the House Tom Foley and Newt Gingrich urged House leadership that
the House Homeland Security Committee be made permanent in hearing testimony.40 the House Homeland Security Committee be made permanent in hearing testimony.40
The Select Committee submitted its report on September 30, 2004, which recommended The Select Committee submitted its report on September 30, 2004, which recommended
establishing a permanent select committee with legislative and oversight jurisdiction over DHS establishing a permanent select committee with legislative and oversight jurisdiction over DHS
and relevant homeland security missions and functions. The committee would not automatically and relevant homeland security missions and functions. The committee would not automatically
have primary jurisdiction over homeland security-related legislation referred to multiple have primary jurisdiction over homeland security-related legislation referred to multiple
committees, however. Decisions over primary jurisdiction would be left up to the Speaker.41 committees, however. Decisions over primary jurisdiction would be left up to the Speaker.41
The 9/11 Commission, when it issued its report in July 2004, released a statement outlining their The 9/11 Commission, when it issued its report in July 2004, released a statement outlining their
recommendations. They emphasizedrecommendations. They emphasized:
We need unity of effort in the Congress. Right now, authority and responsibility are too We need unity of effort in the Congress. Right now, authority and responsibility are too
diffuse... Oversight for Homeland Security is splintered among too many Committees... diffuse... Oversight for Homeland Security is splintered among too many Committees...
We need aWe need a single committee in each chamber providing oversight of the Department of single committee in each chamber providing oversight of the Department of
Homeland Security.42 Homeland Security.42
Senate Committee Reorganization
In response, the Senate assembled a 22-Senator task force, which put together a committee reform In response, the Senate assembled a 22-Senator task force, which put together a committee reform
plan. The plan would have shifted jurisdiction from nine other Senate Committees to a plan. The plan would have shifted jurisdiction from nine other Senate Committees to a
“Homeland Security Authorization Committee”—a renamed Senate Governmental Affairs “Homeland Security Authorization Committee”—a renamed Senate Governmental Affairs
Committee. Committee.
On October 9, 2004, the Senate passed an amended version of the reorganization resolution43 On October 9, 2004, the Senate passed an amended version of the reorganization resolution43
(S.Res. 445), which instead renamed the Senate Committee on Governmental Affairs the Senate (S.Res. 445), which instead renamed the Senate Committee on Governmental Affairs the Senate
Committee on Homeland Security and Governmental Affairs, giving it jurisdiction over the Committee on Homeland Security and Governmental Affairs, giving it jurisdiction over the
management of the department and some components of four of the new department’s management of the department and some components of four of the new department’s
directorates. However, some major DHS components remained in the jurisdiction of other directorates. However, some major DHS components remained in the jurisdiction of other
committees, including Senate Committees on the Judiciary; Foreign Relations; Commerce, committees, including Senate Committees on the Judiciary; Foreign Relations; Commerce,

39 CRS interview with Jim Dyer, former House Appropriations Committee Staff Director, January 16, 2014. 39 CRS interview with Jim Dyer, former House Appropriations Committee Staff Director, January 16, 2014.
40 Duran, Nicole, “Gingrich Foley Urging House Leaders to make Select Security Panel Permanent in 109th Congress,” 40 Duran, Nicole, “Gingrich Foley Urging House Leaders to make Select Security Panel Permanent in 109th Congress,”
Roll Call, September 10, 2003, p. 6. Roll Call, September 10, 2003, p. 6.
41 Representative David Dreier, 41 Representative David Dreier, Congressional Record, January 4, 2005, p. H24. , January 4, 2005, p. H24.
42 Public Statement Release of 9/11 Commission Report The Hon. Thomas H. Kean and the Hon. Lee H. Hamilton, 42 Public Statement Release of 9/11 Commission Report The Hon. Thomas H. Kean and the Hon. Lee H. Hamilton,
July 22, 2004, http://govinfo.library.unt.edu/911/report/911Report_Statement.pdf. July 22, 2004, http://govinfo.library.unt.edu/911/report/911Report_Statement.pdf.
43 S.Res. 445, 108th Congress. 43 S.Res. 445, 108th Congress.
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Science, and Transportation; and Finance. Media reports at the time noted “the reorganization Science, and Transportation; and Finance. Media reports at the time noted “the reorganization
debate amounted to a public mugging of the Governmental Affairs Committee.”44 debate amounted to a public mugging of the Governmental Affairs Committee.”44
House Committee Reorganization
On January 4, 2005, the House adopted a rules package that created a permanent Homeland On January 4, 2005, the House adopted a rules package that created a permanent Homeland
Security Committee. Media observers at the time noted chairs of several powerful House Security Committee. Media observers at the time noted chairs of several powerful House
committees had opposed broader jurisdiction for the new committee. Representative Curt Weldon committees had opposed broader jurisdiction for the new committee. Representative Curt Weldon
noted that language allowing numerous committees to maintain oversight of the department had noted that language allowing numerous committees to maintain oversight of the department had
been included in the record. What Rules Committee Chairman David Dreier termed “a system of been included in the record. What Rules Committee Chairman David Dreier termed “a system of
purposeful redundancy,”45 Representative Carolyn Maloney referred to as “still a confusing purposeful redundancy,”45 Representative Carolyn Maloney referred to as “still a confusing
mess,” claiming 88 committees and subcommittees still had jurisdiction over homeland security.46 mess,” claiming 88 committees and subcommittees still had jurisdiction over homeland security.46
Chairman Dreier put in the Chairman Dreier put in the Congressional Record that day a “legislative history” regarding the that day a “legislative history” regarding the
changes made in Rule X, outlining their intent for oversight of the department. changes made in Rule X, outlining their intent for oversight of the department.
Oversight and legislative jurisdiction for homeland security remains distributed among a Oversight and legislative jurisdiction for homeland security remains distributed among a
significant number of House and Senate panels. Periodically, memorandums of understanding significant number of House and Senate panels. Periodically, memorandums of understanding
between the committee chairs are published in the between the committee chairs are published in the Congressional Record at the beginning of a at the beginning of a
Congress to outline rules of engagement. Congress to outline rules of engagement.
Departmental Reorganization
The HSA provided a basic structure for DHS: Five major directorates47 and a number of agencies The HSA provided a basic structure for DHS: Five major directorates47 and a number of agencies
that reported directly to the Secretary. The HSA included two provisions to allow for that reported directly to the Secretary. The HSA included two provisions to allow for
reorganization of the department as the Administration saw fit: Section 1502, which provided reorganization of the department as the Administration saw fit: Section 1502, which provided
temporary authority for the President to reorganize the department on the basis of a temporary authority for the President to reorganize the department on the basis of a
reorganization plan; and Section 872, which authorized the Secretary to do so after notifying reorganization plan; and Section 872, which authorized the Secretary to do so after notifying
Congress.48 Congress.48
Section 1502
President Bush submitted his reorganization plan for DHS to Congress on November 25, 2002— President Bush submitted his reorganization plan for DHS to Congress on November 25, 2002—
the day the HSA was enacted.49 The Administration modified the plan during the following the day the HSA was enacted.49 The Administration modified the plan during the following
months and submitted a final plan January 30, 2003.50 Among other changes, the revised plan set months and submitted a final plan January 30, 2003.50 Among other changes, the revised plan set
up organizational units within the Border and Transportation Security Directorate of DHS, which up organizational units within the Border and Transportation Security Directorate of DHS, which

44 Andrew Taylor, “In ‘Farce,’ Senators Pick Apart Oversight Restructuring Plan,” CQ Weekly, October 16, 2004, p. 44 Andrew Taylor, “In ‘Farce,’ Senators Pick Apart Oversight Restructuring Plan,” CQ Weekly, October 16, 2004, p.
2390. 2390.
45 Rep. David Dreier, House debate, 45 Rep. David Dreier, House debate, Congressional Record, January 4, 2005, p. H24. , January 4, 2005, p. H24.
46 As quoted by Greta Wodele in “House Vote Makes Homeland Security Panel Permanent,” 46 As quoted by Greta Wodele in “House Vote Makes Homeland Security Panel Permanent,” Congress Daily, January , January
5, 2005. 5, 2005.
47 The five directorates were the Directorate for Information Analysis and Infrastructure Protection; the Directorate of 47 The five directorates were the Directorate for Information Analysis and Infrastructure Protection; the Directorate of
Science and Technology; the Directorate of Border and Transportation Security; the Directorate of Emergency Science and Technology; the Directorate of Border and Transportation Security; the Directorate of Emergency
Preparedness and Response; and an implied Directorate for Management. Preparedness and Response; and an implied Directorate for Management.
48 6 U.S.C. §542 and 6 U.S.C. §452, respectively. 48 6 U.S.C. §542 and 6 U.S.C. §452, respectively.
49 U.S. Congress, House Select Committee on Homeland Security, 49 U.S. Congress, House Select Committee on Homeland Security, Reorganization Plan for the Department of
Homeland Security, 108th Cong., 1st sess., January 7, 2003, H.Doc. 108-16 (Washington: GPO, 2003). , 108th Cong., 1st sess., January 7, 2003, H.Doc. 108-16 (Washington: GPO, 2003).
50 U.S. Congress, House Select Committee on Homeland Security, 50 U.S. Congress, House Select Committee on Homeland Security, Reorganization Plan Modification for the
Department of Homeland Security, 108th Cong., 1st sess., February 4, 2003, H.Doc. 108-32 (Washington: GPO, 2003). , 108th Cong., 1st sess., February 4, 2003, H.Doc. 108-32 (Washington: GPO, 2003).
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are now known as U.S. Customs and Border Protection and U.S. Immigration and Customs are now known as U.S. Customs and Border Protection and U.S. Immigration and Customs
Enforcement. Enforcement.
Section 872
Section 872 of the HSA provides broad authority for the DHS Secretary to reorganize the Section 872 of the HSA provides broad authority for the DHS Secretary to reorganize the
Department’s functions. The authority was used nine times before it was blocked by an Department’s functions. The authority was used nine times before it was blocked by an
appropriations rider in May 2007.51 These “reorganizations” varied significantly in scope, from appropriations rider in May 2007.51 These “reorganizations” varied significantly in scope, from
some that just renamed a component52 or shifted a single function53 to one that included large some that just renamed a component52 or shifted a single function53 to one that included large
shifts of responsibilities and personnel within the DHS structure in 2005 after Secretary shifts of responsibilities and personnel within the DHS structure in 2005 after Secretary
Chertoff’s “Second Stage Review” of department functions.54 Chertoff’s “Second Stage Review” of department functions.54
DHS twice has exercised Section 872 authority since the rider’s first inclusion, when it was set DHS twice has exercised Section 872 authority since the rider’s first inclusion, when it was set
aside in whole or in part. Once in 2017 to create the Office of Countering Weapons of Mass aside in whole or in part. Once in 2017 to create the Office of Countering Weapons of Mass
Destruction from existing components and offices,55 and once to transfer functions from that Destruction from existing components and offices,55 and once to transfer functions from that
office to a new Office of Health Security within the Office of the Secretary in 2022.56 office to a new Office of Health Security within the Office of the Secretary in 2022.56
Mission Evolution
Original Directive
The language of the Homeland Security Act states that the primary mission of the Department of The language of the Homeland Security Act states that the primary mission of the Department of
Homeland Security has seven parts: Homeland Security has seven parts:
1. prevent terrorist attacks within the United States; 1. prevent terrorist attacks within the United States;
2. reduce the vulnerability of the United States to terrorism; 2. reduce the vulnerability of the United States to terrorism;
3. minimize the damage, and assist in the recovery, from terrorist attacks that do 3. minimize the damage, and assist in the recovery, from terrorist attacks that do
occur within the United States; occur within the United States;
4. carry out all functions of entities transferred to the Department, including by 4. carry out all functions of entities transferred to the Department, including by
acting as a focal point regarding natural and manmade crises and emergency acting as a focal point regarding natural and manmade crises and emergency
planning; planning;
5. ensure that the functions of the agencies and sub-divisions within the Department 5. ensure that the functions of the agencies and sub-divisions within the Department
that are not related directly to securing the homeland are not diminished or that are not related directly to securing the homeland are not diminished or
neglected except by a specific explicit Act of Congress; neglected except by a specific explicit Act of Congress;
6. ensure that the overall economic security of the United States is not diminished 6. ensure that the overall economic security of the United States is not diminished
by efforts, activities, and programs aimed at securing the homeland; and by efforts, activities, and programs aimed at securing the homeland; and

51 P.L. 110-28, §3501. 51 P.L. 110-28, §3501.
52 Letter from Tom Ridge, DHS Secretary, to The Honorable Susan M. Collins, Chairman, Committee on 52 Letter from Tom Ridge, DHS Secretary, to The Honorable Susan M. Collins, Chairman, Committee on
Governmental Affairs, U.S. Senate, June 23, 2004. Governmental Affairs, U.S. Senate, June 23, 2004.
53 Letter from Tom Ridge, DHS Secretary, to The Honorable C.W. Young, Chairman, Committee on Appropriations, 53 Letter from Tom Ridge, DHS Secretary, to The Honorable C.W. Young, Chairman, Committee on Appropriations,
U.S. House of Representatives, September 24, 2004. U.S. House of Representatives, September 24, 2004.
54 Details of this reorganization are available at https://www.dhs.gov/department-six-point-agenda. 54 Details of this reorganization are available at https://www.dhs.gov/department-six-point-agenda.
55 Letter from Alejandro N. Mayorkas, DHS Secretary, to The Honorable Ron Johnson, Chairman, Committee on 55 Letter from Alejandro N. Mayorkas, DHS Secretary, to The Honorable Ron Johnson, Chairman, Committee on
Homeland Security and Governmental Affairs, U.S. Senate, October 6, 2017. Homeland Security and Governmental Affairs, U.S. Senate, October 6, 2017.
56 Letter from Alejandro N. Mayorkas, DHS Secretary, to The Honorable Kay Granger, Ranking Member, Committee 56 Letter from Alejandro N. Mayorkas, DHS Secretary, to The Honorable Kay Granger, Ranking Member, Committee
on Appropriations, U.S. House of Representative, May 19, 2022. on Appropriations, U.S. House of Representative, May 19, 2022.
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7. monitor connections between illegal drug trafficking and terrorism, coordinate 7. monitor connections between illegal drug trafficking and terrorism, coordinate
efforts to sever such connections, and otherwise contribute to efforts to interdict efforts to sever such connections, and otherwise contribute to efforts to interdict
illegal drug trafficking.57 illegal drug trafficking.57
It can be argued that a significant portion of this mission is indirectly defined. Two of the seven It can be argued that a significant portion of this mission is indirectly defined. Two of the seven
elements of the statutorily defined mission speak only to “carrying out” component functions or elements of the statutorily defined mission speak only to “carrying out” component functions or
“not diminishing” functions “not directly related to securing the homeland.” A third element “not diminishing” functions “not directly related to securing the homeland.” A third element
places the onus on the fledgling department of conducting its security mission while not places the onus on the fledgling department of conducting its security mission while not
diminishing overall U.S. economic security. diminishing overall U.S. economic security.
Quadrennial Homeland Security Review Homeland Security Missions
In the Implementing Recommendations of the 9/11 Commission Act,58 Congress required DHS to In the Implementing Recommendations of the 9/11 Commission Act,58 Congress required DHS to
“conduct a comprehensive review of the homeland security of the Nation” every four years. Its “conduct a comprehensive review of the homeland security of the Nation” every four years. Its
scope was broad: scope was broad:
a comprehensive examination of the homeland security strategy of the Nation, including a comprehensive examination of the homeland security strategy of the Nation, including
recommendations regarding the long-term strategy and priorities of the Nation for recommendations regarding the long-term strategy and priorities of the Nation for
homeland security and guidance on the programs, assets, capabilities, budget, policies, and homeland security and guidance on the programs, assets, capabilities, budget, policies, and
authorities of the Department.59 authorities of the Department.59
The first Quadrennial Homeland Security Review (QHSR), published in 2010, lists five homeland The first Quadrennial Homeland Security Review (QHSR), published in 2010, lists five homeland
security missions: security missions:
1. Preventing Terrorism and Enhancing Security 1. Preventing Terrorism and Enhancing Security
2. Securing and Managing Our Borders 2. Securing and Managing Our Borders
3. Enforcing and Administering Our Immigration Laws 3. Enforcing and Administering Our Immigration Laws
4. Safeguarding and Securing Cyberspace 4. Safeguarding and Securing Cyberspace
5. Ensuring Resilience to Disasters 5. Ensuring Resilience to Disasters
The QHSR 2010 goes on to note a need to focus on “maturing the homeland security The QHSR 2010 goes on to note a need to focus on “maturing the homeland security
enterprise.”60 enterprise.”60
The second QHSR, published in 2014, “refined” those missions, “to reflect the evolving The second QHSR, published in 2014, “refined” those missions, “to reflect the evolving
landscape of homeland security threats and hazards.”61 The primary change in mission titles was landscape of homeland security threats and hazards.”61 The primary change in mission titles was
the fifth mission, which shifted from “Ensuring Resilience to Disasters,” to “Strengthen[ing] the fifth mission, which shifted from “Ensuring Resilience to Disasters,” to “Strengthen[ing]
National Preparedness and Resilience.”62 The narrative detailing this overarching mission noted National Preparedness and Resilience.”62 The narrative detailing this overarching mission noted
the need for the department to improve its own efficiency and effectiveness, improve the morale the need for the department to improve its own efficiency and effectiveness, improve the morale
of its workforce, and promote confidence in itself and the capability of the government to serve of its workforce, and promote confidence in itself and the capability of the government to serve
the public.63 the public.63

57 P.L. 107-296, §101(b)(1). 57 P.L. 107-296, §101(b)(1).
58 P.L. 110-53, enacted August 3, 2007. 58 P.L. 110-53, enacted August 3, 2007.
59 P.L. 110-53, §2401; 6 U.S.C. §347. 59 P.L. 110-53, §2401; 6 U.S.C. §347.
60 U.S. Department of Homeland Security, 60 U.S. Department of Homeland Security, Quadrennial Homeland Security Review Report: Executive Summary, ,
February 2010, p. iv, available at https://www.dhs.gov/quadrennial-homeland-security-review. February 2010, p. iv, available at https://www.dhs.gov/quadrennial-homeland-security-review.
61 U.S. Department of Homeland Security, 61 U.S. Department of Homeland Security, Quadrennial Homeland Security Review Report: Executive Summary, June , June
2014, p. 5, available at https://www.dhs.gov/quadrennial-homeland-security-review. 2014, p. 5, available at https://www.dhs.gov/quadrennial-homeland-security-review.
62 Ibid., p. 8. 62 Ibid., p. 8.
63 The statutorily required QHSR for 2018 was not issued; the statutorily required QHSR for 2022 has yet to be 63 The statutorily required QHSR for 2018 was not issued; the statutorily required QHSR for 2022 has yet to be
released. released.
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Today’s Definition
These broadly defined homeland security missions laid the groundwork for the six broad mission These broadly defined homeland security missions laid the groundwork for the six broad mission
areas DHS identifies as its own, noted at the beginning of this report: areas DHS identifies as its own, noted at the beginning of this report:
1. Counter Terrorism and Homeland Security Threats 1. Counter Terrorism and Homeland Security Threats
2. Secure U.S. Borders and Approaches 2. Secure U.S. Borders and Approaches
3. Security Cyberspace and Critical Infrastructure 3. Security Cyberspace and Critical Infrastructure
4. Preserve and Uphold the Nation’s Prosperity and Economic Security 4. Preserve and Uphold the Nation’s Prosperity and Economic Security
5. Strengthen Preparedness and Resilience 5. Strengthen Preparedness and Resilience
6. Champion the DHS Workforce and Strengthen the Department 6. Champion the DHS Workforce and Strengthen the Department
Two readily noticeable differences are that the sixth mission from the HSA is included in #4 as an Two readily noticeable differences are that the sixth mission from the HSA is included in #4 as an
affirmative mission area for the department; and workforce and departmental improvement is affirmative mission area for the department; and workforce and departmental improvement is
viewed as an explicit mission area on its own, rather than a consideration across or within viewed as an explicit mission area on its own, rather than a consideration across or within
missions in the past QHSRs. missions in the past QHSRs.
Staffing
With more than 200,000 civilian personnel, DHS has the third-highest number of civilian With more than 200,000 civilian personnel, DHS has the third-highest number of civilian
employees in the federal government, behind only the Department of Veterans Affairs and the employees in the federal government, behind only the Department of Veterans Affairs and the
Department of the Army. Department of the Army.
Figure 3 shows the end-of year staffing level for the past five fiscal years for each of the types of shows the end-of year staffing level for the past five fiscal years for each of the types of
departmental components described at the beginning of the report. departmental components described at the beginning of the report.
Figure 3. Five-year DHS Civilian Staffing Trend, by Component Type

Source: CRS analysis of OPM FedScope data for Septembers 2018-2022. CRS analysis of OPM FedScope data for Septembers 2018-2022.
Notes: FEMA = Federal Emergency Management Agency; CBP = U.S. Customs and Border Protection; USCG = FEMA = Federal Emergency Management Agency; CBP = U.S. Customs and Border Protection; USCG =
U.S. Coast Guard; TSA = Transportation Security Administration; ICE = U.S. Immigration and Customs U.S. Coast Guard; TSA = Transportation Security Administration; ICE = U.S. Immigration and Customs
Enforcement; MGMT = Departmental Management Directorate; USSS = U.S. Secret Service; CISA = Enforcement; MGMT = Departmental Management Directorate; USSS = U.S. Secret Service; CISA =
Cybersecurity and Infrastructure Security Agency; USCIS = U.S. Citizenship and Immigration Services; S&T = Cybersecurity and Infrastructure Security Agency; USCIS = U.S. Citizenship and Immigration Services; S&T =
Science and Technology Directorate; CWMD = Countering Weapons of Mass Destruction Office; FLETC = Science and Technology Directorate; CWMD = Countering Weapons of Mass Destruction Office; FLETC =
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Federal Law Enforcement Training Centers; IA&O = Intelligence, Analysis, and Operations; OSEM = Office of the Federal Law Enforcement Training Centers; IA&O = Intelligence, Analysis, and Operations; OSEM = Office of the
Secretary and Executive Management; OIG = Office of Inspector General. Does not include USCG active duty Secretary and Executive Management; OIG = Office of Inspector General. Does not include USCG active duty
and reserve servicemembers (39,802, and 6,036, respectively, at the end of FY2022). and reserve servicemembers (39,802, and 6,036, respectively, at the end of FY2022).
Figure 4 shows the breakdown of year-end civilian staffing for DHS beginning with FY2004 in a shows the breakdown of year-end civilian staffing for DHS beginning with FY2004 in a
line graph. Detail is provided for all components with more than 5,000 personnel. To show how line graph. Detail is provided for all components with more than 5,000 personnel. To show how
these contribute to the total,these contribute to the total, Figure 5 presents the same data as a stacked bar graph. presents the same data as a stacked bar graph.
The figures do not show USCG uniformed personnel, as they are not tracked in the OPM system. The figures do not show USCG uniformed personnel, as they are not tracked in the OPM system.
Figure 4. DHS Civilian Staffing Trends, FY2004-FY2022
Fiscal year-end personnel levels as reported by OPM Fiscal year-end personnel levels as reported by OPM

Source: CRS analysis of OPM FedScope data for Septembers 2004-2022. CRS analysis of OPM FedScope data for Septembers 2004-2022.
~~Notes~~Note: Does not include USCG active duty and reserve servicemembers (39,802, and 6,036, respectively, at the Does not include USCG active duty and reserve servicemembers (39,802, and 6,036, respectively, at the
end of FY2022). end of FY2022).

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Figure 5. DHS Civilian Staffing Trends, FY2004-FY2022
Fiscal year-end personnel levels as reported by OPM Fiscal year-end personnel levels as reported by OPM

Source: CRS analysis of OPM FedScope data for Septembers 2004-2022. CRS analysis of OPM FedScope data for Septembers 2004-2022.
~~Notes~~Note: Does not include USCG active duty and reserve servicemembers (39,802, and 6,036, respectively, at the Does not include USCG active duty and reserve servicemembers (39,802, and 6,036, respectively, at the
end of FY2022). end of FY2022).

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Funding
DHS Budget and Appropriations Trends
There are several different options for tracking the funding available to a federal government There are several different options for tracking the funding available to a federal government
agency as large and complex as the DHS. Departmental budgets are often tracked on the basis of agency as large and complex as the DHS. Departmental budgets are often tracked on the basis of
discretionary funding made available through appropriations measures. A complete overview of discretionary funding made available through appropriations measures. A complete overview of
the department’s budget must also include an understanding of funding made available through the department’s budget must also include an understanding of funding made available through
permanent law. This mandatory spending makes up a significant portion of DHS’s total budget, permanent law. This mandatory spending makes up a significant portion of DHS’s total budget,
providing significant funding to CBP, TSA, the USCG, FEMA, and USCIproviding significant funding to CBP, TSA, the USCG, FEMA, and USCIS. Figure 6 shows the shows the
trend in yearly funding for DHS’s total budget and appropriations since 2007.64 trend in yearly funding for DHS’s total budget and appropriations since 2007.64
Figure 6. DHS Total Budget and Appropriations, FY2007-FY2022
Nominal budget authority Nominal budget authority

Source: CRS analysis of DHS appropriations measures and year-end reporting from the Bureau of the Fiscal CRS analysis of DHS appropriations measures and year-end reporting from the Bureau of the Fiscal
Service, U.S. Department of the Treasury. Service, U.S. Department of the Treasury.
Notes: Net discretionary appropriations includes discretionary budget authority, including disaster relief and Net discretionary appropriations includes discretionary budget authority, including disaster relief and
emergency designated budget authority provided through annual and supplemental appropriations, less offsetting emergency designated budget authority provided through annual and supplemental appropriations, less offsetting
col ections. However, $51.2 bil ion in mandatory appropriations reflected in the DHS gross budget for FY2021 col ections. However, $51.2 bil ion in mandatory appropriations reflected in the DHS gross budget for FY2021
from P.L. 117-2 are not included in DHS net discretionary appropriations. Rescissions are not reflected. Advance from P.L. 117-2 are not included in DHS net discretionary appropriations. Rescissions are not reflected. Advance
appropriations are shown in the year they are made available for use. appropriations are shown in the year they are made available for use.
Operational and Support Component Budgets
DHS Budget Share
DHS classifies a large number of its components as “operational”—performing homeland DHS classifies a large number of its components as “operational”—performing homeland
security missions “in the field.” These include all of the law enforcement operational components security missions “in the field.” These include all of the law enforcement operational components
listed above in listed above in “Components and Missions” (CBP, ICE, TSA, USCG, and USSS), as well as (CBP, ICE, TSA, USCG, and USSS), as well as
CISA, FEMA, and USCIS. The remaining components are considered “support components,” or CISA, FEMA, and USCIS. The remaining components are considered “support components,” or
“headquarters and support.” A“headquarters and support.” As Figure 7 shows, the vast majority of the DHS budget is shows, the vast majority of the DHS budget is

64 Due to a series of changes in structure in DHS’s early years, FY2007 represents the first year of a relatively 64 Due to a series of changes in structure in DHS’s early years, FY2007 represents the first year of a relatively
consistent structure for the DHS budget. consistent structure for the DHS budget.
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consumed by operational componentsThe relative size of the support components’ aggregate consumed by operational componentsThe relative size of the support components’ aggregate
budget is roughly $1.6 billion higher starting in FY2020 due to the transfer of the Federal budget is roughly $1.6 billion higher starting in FY2020 due to the transfer of the Federal
Protective Service from CISA to the Management Directorate. Protective Service from CISA to the Management Directorate.
Figure 7. DHS Total Budget Authority, Operational Components v. Support
Components, FY2007-FY2022
Billions of Billions of ~~Nominal Dollars of Budget Authority~~nominal dollars of budget authority

Source: CRS analysis of DHS appropriations measures. CRS analysis of DHS appropriations measures.
Notes: Appropriations includes funding provided through annual and supplemental appropriations. $51.2 bil ion Appropriations includes funding provided through annual and supplemental appropriations. $51.2 bil ion
reflected in the DHS gross budget for FY2021 from P.L. 117-2 is not included in DHS discretionary reflected in the DHS gross budget for FY2021 from P.L. 117-2 is not included in DHS discretionary
appropriations. FY2013 data does not reflect the effect of sequestration. Advance appropriations are shown in appropriations. FY2013 data does not reflect the effect of sequestration. Advance appropriations are shown in
the year they are made available for use. the year they are made available for use.
Individual Component Budget Comparison
BelowBelow,, Figure 8 aand Figure 9 further break down the budgets of non-FEMA operational further break down the budgets of non-FEMA operational
components and DHS headquarters and support components. The data source used for these components and DHS headquarters and support components. The data source used for these
figures continues to use the legacy names for both the Cybersecurity and Infrastructure Security figures continues to use the legacy names for both the Cybersecurity and Infrastructure Security
Agency (CISA, formerly known as the National Protection and Programs Directorate, or NPPD) Agency (CISA, formerly known as the National Protection and Programs Directorate, or NPPD)
and the Countering Weapons of Mass Destruction Office (CWMD, formerly known as the and the Countering Weapons of Mass Destruction Office (CWMD, formerly known as the
Domestic Nuclear Detection Office, or DNDO). The two figures are at different scales to allow Domestic Nuclear Detection Office, or DNDO). The two figures are at different scales to allow
for interpretation of the smaller elements among the support components. for interpretation of the smaller elements among the support components.
I In Figure 8, the fluctuation in FEMA’s budget and its effect on the operational top line is shown. the fluctuation in FEMA’s budget and its effect on the operational top line is shown.
IIn Figure 9, the increase in DMO in FY2022 was due in part to the structure of additional the increase in DMO in FY2022 was due in part to the structure of additional
appropriations provided through Departmental Management for crosscutting activities. appropriations provided through Departmental Management for crosscutting activities.
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Figure 8. Total Budgets, DHS Operational Components, FY2007-FY2022
Nominal budget authority Nominal budget authority

Source: CRS analysis of year-end reporting from the Bureau of the Fiscal Service, U.S. Department of the CRS analysis of year-end reporting from the Bureau of the Fiscal Service, U.S. Department of the
Treasury. Treasury.
Notes: FEMA = Federal Emergency Management Agency; CBP = U.S. Customs and Border Protection; USCG = FEMA = Federal Emergency Management Agency; CBP = U.S. Customs and Border Protection; USCG =
U.S. Coast Guard; TSA = Transportation Security Administration; ICE = U.S. Immigration and Customs U.S. Coast Guard; TSA = Transportation Security Administration; ICE = U.S. Immigration and Customs
Enforcement; USSS = U.S. Secret Service; CISA = Cybersecurity and Infrastructure Security Agency; USCIS = Enforcement; USSS = U.S. Secret Service; CISA = Cybersecurity and Infrastructure Security Agency; USCIS =
U.S. Citizenship and Immigration Services. Although the source documents refer to it by its original name, NPPD U.S. Citizenship and Immigration Services. Although the source documents refer to it by its original name, NPPD
became CISA, and in the process transferred the Federal Protective Service to the Management Directorate became CISA, and in the process transferred the Federal Protective Service to the Management Directorate
starting in FY2020. starting in FY2020.
Figure 9. Total Budgets, DHS HQ and Support Components, FY2007-FY2022
Nominal budget authority Nominal budget authority

Source: CRS analysis of year-end reporting from the Bureau of the Fiscal Service, U.S. Department of the CRS analysis of year-end reporting from the Bureau of the Fiscal Service, U.S. Department of the
Treasury. Treasury.
Notes: DNDO = Domestic Nuclear Detection Office; S&T= Science and Technology Directorate; FLETC = DNDO = Domestic Nuclear Detection Office; S&T= Science and Technology Directorate; FLETC =
Federal Law Enforcement Training Centers; OIG = Office of Inspector General; DMO = Departmental Federal Law Enforcement Training Centers; OIG = Office of Inspector General; DMO = Departmental
Management and Operations. Figures for DMO for FY2020 going forward include the Federal Protective Service Management and Operations. Figures for DMO for FY2020 going forward include the Federal Protective Service
(FPS). DNDO became the Office of Countering Weapons of Mass Destruction (CWMD) in FY2019. (FPS). DNDO became the Office of Countering Weapons of Mass Destruction (CWMD) in FY2019.
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Finding Longer-Term Trends
The volatility in DHS funding levels is largely due to disaster activity, especially since FY2016. The volatility in DHS funding levels is largely due to disaster activity, especially since FY2016.
This activity, and the supplemental appropriations often associated with it, can significantly alter This activity, and the supplemental appropriations often associated with it, can significantly alter
FEMA’s budget, and thus the top line of the whole department. The following two figures control FEMA’s budget, and thus the top line of the whole department. The following two figures control
for that volatility in order to reveal longer-term trends. for that volatility in order to reveal longer-term trends.
DHS Budget Size
Figure 10 shows the DHS operational component aggregate budget; then, with two broken lines, shows the DHS operational component aggregate budget; then, with two broken lines,
shows the operational components’ budgets without FEMA’s Disaster Relief Fund, and without shows the operational components’ budgets without FEMA’s Disaster Relief Fund, and without
FEMA entirely, as FEMA’s overall budget also includes the National Flood Insurance Fund. FEMA entirely, as FEMA’s overall budget also includes the National Flood Insurance Fund.
Figure 10. DHS Operational Component Budget, Controlled for Disaster Volatility,
FY2007-FY2022
Nominal budget authority Nominal budget authority

Source: CRS analysis of year-end reporting from the Bureau of the Fiscal Service, U.S. Department of the CRS analysis of year-end reporting from the Bureau of the Fiscal Service, U.S. Department of the
Treasury. Treasury.
Notes: FEMA FEMA = Federal Emergency Management Agency; DRF= Federal Emergency Management Agency; DRF= = Disaster Relief Fund. Advance appropriations are Disaster Relief Fund. Advance appropriations are
shown in the year they are made available for use. shown in the year they are made available for use.
DHS Annual v. Supplemental Appropriations
Given the periodic need to respond to unexpected events, DHS often has received supplemental Given the periodic need to respond to unexpected events, DHS often has received supplemental
appropriations—those provided in addition to the baseline annual appropriatiappropriations—those provided in addition to the baseline annual appropriation. Figure 11 shows shows
how supplemental appropriations have contributed to total discretionary appropriations for DHS how supplemental appropriations have contributed to total discretionary appropriations for DHS
since FY2007. A marker on each stacked column shows the total appropriation provided to since FY2007. A marker on each stacked column shows the total appropriation provided to
accounts other than the Disaster Relief Fund—the length of the bar above the marker therefore accounts other than the Disaster Relief Fund—the length of the bar above the marker therefore
represents the total amount of funding provided for the DRF that year, but not necessarily the represents the total amount of funding provided for the DRF that year, but not necessarily the
proportion provided in annual or supplemental appropriations. proportion provided in annual or supplemental appropriations.
The underlying data shows an increase in the proportion of DRF funding in the annual The underlying data shows an increase in the proportion of DRF funding in the annual
appropriations measure. This is due to the implementation of the “disaster relief” designation appropriations measure. This is due to the implementation of the “disaster relief” designation
under the Budget Control Act, which allowed a certain amount of the costs of major disasters to under the Budget Control Act, which allowed a certain amount of the costs of major disasters to
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be provided without using the “emergency” designation (more commonly used for supplemental be provided without using the “emergency” designation (more commonly used for supplemental
appropriations) or competing with other discretionary priorities in the annual appropriations bills. appropriations) or competing with other discretionary priorities in the annual appropriations bills.
Figure 11. DHS Discretionary Appropriations, Annual v. Supplemental, Showing
Non-Disaster Relief Total, FY2007-FY2023
(Nominal dollars of discretionary budget authorityNominal dollars of discretionary budget authority)

Source: CRS analysis of DHS appropriations measures. CRS analysis of DHS appropriations measures.
Notes: * = Reflects part-year data, through March 1, 2023. FY2013 data does not reflect sequestration. $51.2 * = Reflects part-year data, through March 1, 2023. FY2013 data does not reflect sequestration. $51.2
bil ion in supplemental mandatory appropriations for FY2021 from P.L. 117-2 is not included. $344 mil ion in bil ion in supplemental mandatory appropriations for FY2021 from P.L. 117-2 is not included. $344 mil ion in
emergency-designated costs in FY2022 related to policy changes in P.L. 117-43 are not included. Rescissions and emergency-designated costs in FY2022 related to policy changes in P.L. 117-43 are not included. Rescissions and
reappropriations are not reflected. Advance appropriations are shown in the year they are made available for reappropriations are not reflected. Advance appropriations are shown in the year they are made available for
use. use.
Trends in Timing of DHS Appropriations
The trends in the timing of the DHS annual appropriations measure from its establishment The trends in the timing of the DHS annual appropriations measure from its establishment
through FY2023 are shown ithrough FY2023 are shown in Figure 12.
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Figure 12. DHS Appropriations Process, FY2004-FY2023
(As of March 1, 2023As of March 1, 2023)

Source: CRS analysis of presidential budget request release dates and legislative action from Congress.gov. CRS analysis of presidential budget request release dates and legislative action from Congress.gov.
Notes: Final action on annual appropriations for FY2011, FY2013-FY2015, FY2017-FY2019, and FY2022 did not Final action on annual appropriations for FY2011, FY2013-FY2015, FY2017-FY2019, and FY2022 did not
occur until after the beginning of the new calendar year. A three-day lapse in January of FY2018 and an hours-occur until after the beginning of the new calendar year. A three-day lapse in January of FY2018 and an hours-
long lapse in February of that same year are not displayed due to limitations of scale. Please note that the long lapse in February of that same year are not displayed due to limitations of scale. Please note that the
FY2019 lapse began in December 2018. FY2019 lapse began in December 2018.

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Appendix A. Glossary of Abbreviations
Table A-1. Glossary of Abbreviations
IA&O
Intelligence Analysis and Operations Support Intelligence Analysis and Operations Support
CBO
Congressional Budget Office Congressional Budget Office
CBP
U.S. Customs and Border Protection U.S. Customs and Border Protection
CISA
Cybersecurity and Infrastructure Security Agency Cybersecurity and Infrastructure Security Agency
CRS
Congressional Research Service Congressional Research Service
CWMD
Countering Weapons of Mass Destruction Office Countering Weapons of Mass Destruction Office
DHS
U.S. Department of Homeland Security U.S. Department of Homeland Security
DRF
Disaster Relief Fund Disaster Relief Fund
FEMA
Federal Emergency Management Agency Federal Emergency Management Agency
FLETC
Federal Law Enforcement Training Centers Federal Law Enforcement Training Centers
FPS
Federal Protective Service Federal Protective Service
FY
Fiscal Year Fiscal Year
ICE
U.S. Immigration and Customs Enforcement U.S. Immigration and Customs Enforcement
MGMT
Departmental Management Directorate Departmental Management Directorate
OBIM
Office of Biometric Identity Management Office of Biometric Identity Management
OIG
Office of Inspector General Office of Inspector General
OPM
Office of Personnel Management Office of Personnel Management
OSEM
Office of the Secretary and Executive Management Office of the Secretary and Executive Management
R&D
Research and Development Research and Development
S&T
Science and Technology Directorate Science and Technology Directorate
TSA
Transportation Security Administration Transportation Security Administration
USCG
U.S. Coast Guard U.S. Coast Guard
USCIS
U.S. Citizenship and Immigration Services U.S. Citizenship and Immigration Services
USSS
U.S. Secret Service U.S. Secret Service

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Appendix B. Experts List
Table B-1. CRS Department of Homeland Security Experts
Area of Expertise
Name
~~Phone~~
~~Email~~
Coordinator, Department of Homeland Coordinator, Department of Homeland
Wil iam L. Painter Wil iam L. Painter
~~7-3335~~
~~wpainter@crs.loc.gov~~
Security; Cross-cutting Issues; Federal Security; Cross-cutting Issues; Federal
Emergency Management Agency (FEMA) Emergency Management Agency (FEMA)
Disaster Relief Fund (DRF) Disaster Relief Fund (DRF)
Departmental Management, Personnel Departmental Management, Personnel
Barbara L. Schwemle Barbara L. Schwemle
~~7-8655~~
~~bschwemle@crs.loc.gov~~
Issues Issues
Analysis and Operations Analysis and Operations
Lisa Sacco Lisa Sacco
~~7-7359~~
~~lsacco@crs.loc.gov~~
Office of Inspector General Office of Inspector General
Ben Wilhelm Ben Wilhelm
~~7-8037~~
~~bwilhelm@crs.loc.gov~~
U.S. Customs and Border Protection (CBP) Abigail Kolker U.S. Customs and Border Protection (CBP) Abigail Kolker
~~7-2802~~
~~akolker@crs.loc.gov~~
Office of Field Operations (at Ports of Office of Field Operations (at Ports of
Entry) Entry)
Immigration and Customs Enforcement; Immigration and Customs Enforcement;
Hol y Straut- Hol y Straut-
~~7-9178~~
~~hstrauteppsteiner@crs.loc.gov~~
CBP Border Patrol (between Ports of CBP Border Patrol (between Ports of
Eppsteiner Eppsteiner
Entry) Entry)
Transportation Security Administration; Transportation Security Administration;
Bart Elias Bart Elias
~~7-7771~~
~~belias@crs.loc.gov~~
Aviation Security Aviation Security
U.S. Coast Guard (USCG), Personnel and U.S. Coast Guard (USCG), Personnel and
Alan Ott Alan Ott
~~7-1344~~
~~aott@crs.loc.gov~~
Administration Administration
USCG, Health Care USCG, Health Care
Bryce H.P. Mendez Bryce H.P. Mendez
~~7-1577~~
~~bhmendez@crs.loc.gov~~
USCG, Shipbuilding USCG, Shipbuilding
Ronald O'Rourke Ronald O'Rourke
~~7-7610~~
~~rorourke@crs.loc.gov~~
USCG, Maritime Transportation USCG, Maritime Transportation
John Frittelli John Frittelli
~~7-7033~~
~~jfrittelli@crs.loc.gov~~
U.S. Secret Service; Federal Protective U.S. Secret Service; Federal Protective
Shawn Reese Shawn Reese
~~7-0635~~
~~sreese@crs.loc.gov~~
Service; FEMA Preparedness Grants Service; FEMA Preparedness Grants
Cybersecurity and Infrastructure Security Cybersecurity and Infrastructure Security
Chris Jaikaran Chris Jaikaran
~~7-0750~~
~~cjaikaran@crs.loc.gov~~
Agency (CISA), Cybersecurity Agency (CISA), Cybersecurity
CISA, Infrastructure Protection; FEMA, CISA, Infrastructure Protection; FEMA,
Brian E. Humphreys Brian E. Humphreys
~~7-0975~~
~~bhumphreys@crs.loc.gov~~
Fire Grants and U.S. Fire Administration Fire Grants and U.S. Fire Administration
Office of Countering Weapons of Mass Office of Countering Weapons of Mass
Frank Gottron Frank Gottron
~~7-5854~~
~~fgottron@crs.loc.gov~~
Destruction Destruction
FEMA, Disaster Response / Recovery; FEMA, Disaster Response / Recovery;
Elizabeth Webster Elizabeth Webster
~~7-9197~~
~~ewebster@crs.loc.gov~~
Individual Assistance Program Individual Assistance Program
FEMA, Mitigation Programs and National FEMA, Mitigation Programs and National
Diane P. Horn Diane P. Horn
~~7-3472~~
~~dhorn@crs.loc.gov~~
Flood Insurance Program Flood Insurance Program
FEMA, Disaster Response / Recovery; FEMA, Disaster Response / Recovery;
Erica Lee Erica Lee
~~7-3829~~
~~ealee@crs.loc.gov~~
Public Assistance Program Public Assistance Program
Disaster Declarations Disaster Declarations
Bruce R. Lindsay Bruce R. Lindsay
~~7-3752~~
~~blindsay@crs.loc.gov~~
U.S. Citizenship and Immigration Services U.S. Citizenship and Immigration Services
Wil iam A. Kandel Wil iam A. Kandel
~~7-4703~~
~~wkandel@crs.loc.gov~~
Science and Technology Directorate Science and Technology Directorate
Daniel Morgan Daniel Morgan
~~7-5849~~
~~dmorgan@crs.loc.gov~~

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Author Information

William L. Painter William L. Painter

Specialist in Homeland Security and Appropriations Specialist in Homeland Security and Appropriations

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