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Fusion centers: issues and options for Congress.

July 6, 2007


Although elements of the information and intelligence fusion function were conducted prior to 9/11, often at state police criminal intelligence bureaus, the events of 9/11 provided the primary catalyst for the formal establishment of more than 40 state, local, and regional fusion centers across the country. Currently, a number of bills pending before Congress, including S. 4, H.R. 1, S. 1644, and H.R. 2638, have elements that address fusion centers.

The value proposition for fusion centers is that by integrating various streams of information and intelligence, including that flowing from the federal government, state, local, and tribal governments, as well as the private sector, a more accurate picture of risks to people, economic infrastructure, and communities can be developed and translated into protective action. The ultimate goal of fusion is to prevent manmade (terrorist) attacks and to respond to natural disasters and manmade threats quickly and efficiently should they occur. As recipients of federal government-provided national intelligence, another goal of fusion centers is to model how events inimical to U.S. interests overseas may be manifested in their communities, and align protective resources accordingly. There are several risks to the fusion center concept--including potential privacy and civil liberties violations, and the possible inability of fusion centers to demonstrate utility in the absence of future terrorist attacks, particularly during periods of relative state fiscal austerity.

Fusion centers are state-created entities largely financed and staffed by the states, and there is no one "model" for how a center should be structured. State and local law enforcement and criminal intelligence seem to be at the core of many of the centers. Although many of the centers initially had purely counterterrorism goals, for numerous reasons, they have increasingly gravitated toward an all-crimes and even broader all-hazards approach. While many of the centers have prevention of attacks as a high priority, little "true fusion," or analysis of disparate data sources, identification of intelligence gaps, and pro-active collection of intelligence against those gaps which could contribute to prevention is occurring. Some centers are collocated with local offices of federal entities, yet in the absence of a functioning intelligence cycle process, collocation alone does not constitute fusion.

The federal role in supporting fusion centers consists largely of providing financial assistance, the majority of which has flowed through the Homeland Security Grant Program; sponsoring security clearances; providing human resources; producing some fusion center guidance and training; and providing congressional authorization and appropriation of national foreign intelligence program resources, as well as oversight hearings. This report includes over 30 options for congressional consideration to clarify and potentially enhance the federal government's relationship with fusion centers. One of the central options is the potential drafting of a formal national fusion center strategy that would outline, among other elements, the federal government's clear expectations of fusion centers, its position on sustainment funding, metrics for assessing fusion center performance, and definition of what constitutes a "mature" fusion center. This report will be updated.

A Methodological Note

Research for this report included a review of literature related to state and regional fusion centers, primary source interviews with the majority of state fusion center leaders and operational directors, as well as with stakeholders within the federal government, including Intelligence Community (IC) organizations, Department of Homeland Security (DHS) and the Government Accountability Office (GAO) officials. In the interest of engaging in open dialogue with the centers, the conversations were conducted on a "not for attribution basis." The inherent limitations of the survey method are acknowledged, but were adopted in the interest of efficiency and effectiveness. Other stakeholders and interested observers of state fusion centers outside the government, including individuals in academia, the American Civil Liberties Union (ACLU), and state and local law enforcement were also consulted. Primary source interviews were conducted by the authors and were based on a survey they developed.

Todd Masse

Specialist in Domestic Intelligence and Counterterrorism

Domestic Social Policy Division

Siobhan O'Neil

Analyst in Domestic Security and Intelligence

Domestic Social Policy Division

John Rollins

Specialist in Terrorism and International Crime

Foreign Affairs, Defense, and Trade Division
COPYRIGHT 2007 Congressional Research Service (CRS) Reports and Issue Briefs
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Author:Masse, Todd; O'Neil, Siobhan; Rollins, John
Publication:Congressional Research Service (CRS) Reports and Issue Briefs
Article Type:Report
Geographic Code:1USA
Date:Jul 1, 2007
Previous Article:For additional reading.
Next Article:Introduction.

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