Transforming Homeland Security: U.S. and European Approaches Esther Brimmer, Editor Brimmer, Esther, editor. Transforming Homeland Security: U.S. and European Approaches (Washington, DC: Center for Transatlantic Relations, 2006). © Center for Transatlantic Relations, 2006 Center for Transatlantic Relations The Paul H. Nitze School of Advanced International Studies The Johns Hopkins University 1717 Massachusetts Ave., NW, Suite 525 Washington, D.C. 20036 Tel: 202-663-5880 Fax: 202-663-5879 Email: [email protected] http://transatlantic.sais-jhu.edu ISBN 0-9766434-4-8 Cover photograph: “Pristina Sport Palace on Fire—COMKFOR Gen. Reinhardt and U.N. Fire Chief Robert Triozzi.” KFOR Photos. Available at http://www.nato.int/kfor/multimedia/photos/2000/lr/pic00024_lr.jpg Table of Contents Acknowledgements . v Preface . vii Esther Brimmer Introduction: Transforming Homeland Security: A Road Map for the Transatlantic Alliance . ix Daniel S. Hamilton Implications of Homeland Security for Rethinking Transatlantic Security Chapter 1 Homeland Security and Transformation: Why It Is Essential to Bring Together Both Agendas . 3 Heiko Borchert Chapter 2 From Territorial Security to Societal Security: Implications for the Transatlantic Strategic Outlook . 23 Esther Brimmer Chapter 3 Transatlantic Homeland Security and the Challenge of Diverging Risk Perceptions . 43 Gerd Föhrenbach Transatlantic Cooperation on Homeland Security: What Do We Need to Do? What Do We Need to Do Together? Chapter 4 The Concept of Homeland Security in the European Union and in Austria—A challenge for the Austrian EU presidency . 59 Gustav Gustenau iv Transforming Homeland Security Chapter 5 What Does the United States Need to Do? The United States and Homeland Security . 81 Lawrence J. Korb Chapter 6 Structures and Cultures—Civil Military Cooperation in Homeland Security: The Danish Case . 95 Anja Dalgaard-Nielsen Chapter 7 The EU’s Approach to Homeland Security: Balancing Safety and European Ideals . 115 Gustav Lindstrom Connecting Key Capacities Chapter 8 Defending Critical Infrastructure and Systems . 133 Sandra J. Bell Chapter 9 Intelligence Cooperation and Homeland Security . 153 Yves Boyer Chapter 10 Homeland Security and the Role of Business . 163 Pauline Neville-Jones and Neil Fisher About the Authors . 171 Acknowledgements This book results from collaboration among the Center for Transatlantic Relations at the Johns Hopkins University’s Paul H. Nitze School of Advanced International Studies (CTR), the Politisch- Militärische Gesellschaft (PMG), and the Danish Institute for International Studies (DIIS). CTR would like to thank its partners for their support and dynamic and effective cooperation throughout the project. In particular, we would like to thank Col. Ralph Thiele, Dr. Heiko Borchert, and Dr. Anja Dalgaard-Nielsen. We convened two meetings of the authors and other experts, one in Berlin in September 2005 and one in Washington, DC, in November 2005. We would like to thank Katrien Maes and Jeanette Murphy at the Center for Transatlantic Relations and Anna Sturm at the Politisch-Militärische Gesellschaft for their help organizing the authors’ meetings and Carrie Schenkel and Medlir Mema, also of CTR, for their help with the text and charts. The project was kindly supported by the Transatlantic Program of the Federal Republic of Germany with funds of the European Recovery Program of the Federal Ministry of Economics and Technology (BMWI). We also want to acknowledge support from the European Commission and the EU Center of Excellence Washington DC. The Center for Transatlantic Relations will continue to address these issues as part of the newly formed Johns Hopkins University-led National Center for the Study of Preparedness and Catastrophic Event Response (PACER), a research consortium created by the United States Department of Homeland Security. Each author writes in his or her personal capacity. The views expressed are their own and not those of their institutions. Esther Brimmer vi Transforming Homeland Security vii Preface Many countries are considering how to reorganize civilian and mil- itary resources to meet the challenges of “homeland security.” The issues raised are diverse and complex, ranging from infrastructure pro- tection to social cohesion to the role of the military in a democratic society. This book was conceived as an examination of various approaches to these topics. The project took on added urgency as authors wrote in the aftermath of Hurricane Katrina, which struck the United States in August 2005. Esther Brimmer viii Transforming Homeland Security Introduction: Transforming Homeland Security: A Road Map for the Transatlantic Alliance Daniel S. Hamilton This volume addresses the need for the United States and Europe to transform their respective approaches to homeland security in ways that are more attuned to 21st century challenges. Effective homeland security may begin at home, but in an age of catastrophic terrorism no nation is home alone. If Europeans and Americans are to be safer than they are today, individual national efforts must be aligned with more effective transatlantic cooperation. While there has been no effort to force consensus among the authors in this volume, a basic theme does connect the various contri- butions: if the U.S. and its partners are to protect their societies more effectively, they must go beyond piecemeal extensions of current poli- cies. They must better understand and seek to bridge differing approaches on each side of the Atlantic; better understand what they are protecting; transform public-private and civil-military relation- ships; adopt network-centric approaches; and include homeland secu- rity as a high profile mission of key institutions and transatlantic mechanisms. This chapter seeks to extract from the various contribu- tions lessons of relevance to policymakers and practitioners on both sides of the Atlantic. Overcoming Some Hurdles If Europe and the United States are to “transform” their respective approaches to homeland security and chart some type of common path together, they first need to understand better the different paths each has been on until now. Six issues have consistently plagued transatlantic cooperation. xTransforming Homeland Security Definitional debates Just as the American term “homeland security” is largely unfamiliar to many Europeans, most Americans are unfamiliar with European concepts such as “resilience” or “societal security,” or with experiences Europeans have gained from combating domestic terrorism. Americans tend to focus on the anti-terrorist elements of “homeland security,” whereas Europeans tend to focus on the civilian emergency response or law enforcement elements of “societal security.” Over the past few years each side has become more attuned to the concerns of the other, but when Europeans and Americans meet they still tend to get lost in definitional debates. Homeland security has been advanced in the United States as a sys- tematic attempt to reduce society’s vulnerabilities and to build capabili- ties to deal with massive terrorist strikes, should they occur. Although U.S. emergency planners have experience with “all-hazard” approaches to threat and risk, between September 2001 and September 2005 home- land security came to be associated more narrowly with the anti-terrorist campaign. Homeland security is even defined in the U.S. National Strategy for Homeland Security as “a concerted national effort to pre- vent terrorist attacks within the U.S., reduce America’s vulnerability to terrorism, and minimize the damage and recover from attacks that do occur.”1 In sum, American homeland security is widely conceived as a broad-based effort to prevent, protect, respond and recover from terror—an effort involving multiple actors, covering numerous socie- tal sectors and professions, and many levels of government. In September 2005, Hurricane Katrina demonstrated forcefully that not all homeland security challenges stem from terrorism, and exposed dysfunctional response and recovery systems at every level of government. It remains unclear, however, whether the failure to cope with the devastation wrought by this natural disaster will prompt an adequate retooling of homeland security approaches. In Europe there is no generally accepted definition of the term homeland security. Whereas U.S. homeland security has been driven by the counterterrorist agenda, European efforts to protect society 1 National Strategy for Homeland Security, Office of Homeland Security, Washington, DC July 2003, p. 2. Introduction xi have derived largely from civilian emergency response communities working with domestic law enforcement agencies. In this volume, Gustav Gustenau attempts a “European” definition of homeland secu- rity. He describes it as an interagency approach to protecting society that integrates public and private participants and is based on a com- prehensive concept of security encompassing naturally occurring dan- gers as well as the threat of terrorism. He identifies various homeland security areas and tasks, all of which would resonate with Americans, such as intelligence services and early warning; security of borders and transport; anti-terror measures, including defense against catastrophic terrorist attacks; protection of critical infrastructure; and reaction and aid in the case of natural disasters. There is as yet no Europe-wide consensus on such a “homeland security” definition, however, much less a common agenda. Nonetheless, some individual