Merging the HSC and NSC: Stronger Together

Abstract

At the federal level, homeland security is inherently and fundamentally an interagency undertaking. The quality of interagency relationships and processes is central to the success or failure of federal - and national - homeland security activities. Short of giving a single Cabinet secretary directive authority over other Cabinet secretaries during major domestic incidents (which is unlikely given traditional forms of American government) the only way to ensure effective unity of effort at the federal level is to exercise strong leadership from the White House. This kind of leadership is needed not just during an actual catastrophe but also when the government is engaged in the day-to-day activities of working to prevent, protect against, and prepare for such catastrophes. In recent years the White House has not played this role, in large part because of the bifurcation of national security issues into a National Security Council and a Homeland Security Council. One of the most important and most necessary changes the new administration should make is to merge these organizations into a single council with a largely shared professional staff. This newly merged Council should exercise forceful leadership on behalf of the president of the United States in developing homeland security strategy and policy and should closely oversee its implementation.Why a Merger is NeededThere are three main reasons that the existing Homeland Security Council (HSC) and its staff have not been particularly effective. The first, and perhaps most important, is structural: by establishing a separate council and associated staff to address homeland issues, the White House artificially bifurcated its approach to national security issues, although the issues themselves frequently have both domestic and international aspects that are interrelated. For example, effectively combating terrorism involves targeting terrorists and their support networks overseas, but also addressing the potential for radicalization of individuals inside the United States. Effectively addressing 21st century security challenges requires an integrated approach that considers both sides of a given problem - but such an approach is very difficult to achieve when two different organizations inside the White House are involved. Both council staffs work in the Old Executive Office Building, but they share little more than a mailing address. Each council has a different organizational structure, each staff reports to a different adviser to the president, and each has its own executive secretariat, with separate systems for convening meetings and designating lead directorates on specific issues. The two council staffs don't even work on the same e-mail system: while the NSC staff does most of its work on the classified e-mail system, the HSC staff works mostly on the "low side," or the unclassified network. Some coordination between the two staffs does take place, but it occurs largely through the initiative of individual staff members, who must overcome the hurdles presented by the bifurcated structure.A second major reason for the ineffectiveness of the HSC on many issues is organizational: it is relatively weak, particularly compared to the NSC. A host of dry, technical personnel and budget issues have contributed significantly to this problem. Unlike the NSC and its staff, the HSC and its staff do not constitute a separate organization inside the Executive Office of the President; as a result, HSC personnel numbers count against the overall personnel ceiling for White House staff and so there is pressure to minimize the size of the HSC organization. While the NSC has more than 240 staff members, the HSC on average has only forty-five. 1 Moreover, as a consequence of HSC's administrative status within the Office of the President, the council does not have its own budget, which places a tight salary cap on the staff. Although HSC staff members have significant responsibility and work extremely long hours, even the highest paid among them earn less than senior GS-15 civil servants elsewhere in government. …