Managing Homeland Security: PUAD 637 School of Policy, Government, and International Affairs George Mason University Spring Semester 2015

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1 Managing Homeland Security: PUAD 637 School of Policy, Government, and International Affairs George Mason University Spring Semester 2015 Instructor: Professor Conant Phone: (703) Office: Robinson Hall A221 Office Hours: Mon. 3:00 4:00 Mailbox: Robinson A201 Tue. 3:00-4:00, or by Appointment Course Purpose and Organization: The primary purpose of this class is to give graduate students an opportunity to examine the U. S. government s efforts to protect American citizens from terrorist attacks before and after September 11, In doing so, we will focus on public law, the executive branch departments and agencies assigned the responsibility for implementing public law, and the people who manage, work in, and serve as contractors for, those executive branch organizations. We will begin the class with a focus on the development and implementation of public law in American government. In particular, we will examine the principal institutions, people, and processes of American government. Then, we will turn our attention to: 1) the terrorist attacks on September 11, 2001, 2) the attempts by U.S. government employees and elected officials to improvise a homeland security defense, and 3) the way in which police officers and fire fighters responded to the attacks on the World Trade Towers and the Pentagon. In the third part of the class, we will focus on the ways in which Congress and the President responded to the 9/11 attacks. Specifically, we will look at legislative efforts to fix the policy, management, and organizational weaknesses that the terrorists exploited on 9/11. We will give special attention to the USA Patriot Act, the Aviation and Transportation Security Act of 2001 (ATSA), and the Homeland Security Act of 2002 (HSA). For example, we will look at the sweeping new powers granted to the intelligence agencies in the Patriot Act, and the goals and requirements established in the ATSA and the HSA. In the fourth segment of the class, we will focus on the evolution of homeland security and the management of the Department of Homeland Security (DHS). As part of our study, we will examine the management of DHS from both top-down and bottom-up perspectives, with emphasis on leadership, structure, strategy, resources, and front line operations. We will also examine the challenges associated with coordinating the activities of the principal agencies within DHS (intradepartmental management), the management challenges associated with coordinating DHS activities with other U.S. departments and agencies that have homeland security functions (interdepartmental management), and DHS efforts to coordinate with state and local governments (intergovernmental management).

2 Course Pedagogy This class will be conducted in a seminar style. Most class sessions will be conducted in a discussion mode, and course readings will serve as the basis for discussion. Your responsibilities for each class include completing required readings and being prepared to discuss those readings. I will present mini-lectures during most class sessions. I may also invite other faculty members or DHS managers to give guest presentations on topics we are studying. Additionally, I may arrange a class visit to one or more of the principal agencies we are studying within DHS in order to facilitate presentations to the class by senior managers in those organizations. Course Learning Objectives: At the end of this course, you will be able to be able to identify some of the principal institutional, policy, organizational, and management failures that allowed the Al Qaeda terrorists to carry out their deadly plans on 9/11. You will also be able to identify some of the most important institutional, policy, organizational, and management changes that were made in response to the 9/11 terrorists attacks. Finally, you will be able to identify some of the key challenges associated with managing the DHS secretariat, managing the principal agencies within DHS, coordinating homeland security activities within DHS, coordinating DHS activities with the activities of other U.S. government executive branch organizations that have homeland security responsibilities, and coordinating DHS activities with state and local governments. Course Work and Grades: The work for this course will include: 1) a four to five page paper on the Aviation and Transportation Security Act, 2) a five to six page paper, and 3) a final paper. Paper 2 and the final paper are linked. Paper 2 will consist of the first four sections of the Final Paper. The format and content requirements for these writing assignments will be provided in class. All written work must be submitted electronically. Paper 1 Due Class #6 Paper 2 Due Class #8 Final Paper Due May 6 Class Disc. Each Class Total 15% 20% 45% 20% 100% Grade Scale: = A; 91-90=A-; 89-88= B+; 87-82=B; 81-80=B-; < 80=C; < 70=F Late Papers: All written assignments must be submitted electronically by the beginning of the class period on which they are due. A one-grade penalty will be applied to a paper that is one to three days late; a two-grade penalty will be applied for three to seven days. Incompletes for the course are discouraged, but extraordinary circumstances can be accommodated. Requests for an incomplete must be submitted in writing at the earliest possible date. Honor Code: George Mason University has an Honor Code, which requires all members of this community to maintain the highest standards of academic honesty and integrity. 2

3 Cheating, plagiarism, lying, and stealing are all prohibited. All violations of the Honor Code will be reported to the Honor Committee. See honorcode.gmu for more detailed information. The core presumption of the code is that all written work is your own work. Proper citation of material taken from other published work is required. Disability: If you are a student with a disability and you need academic accommodations, please see me and contact the Office of Disability Resources at All academic accommodations must be arranged through that office. Enrollment Status: All students are responsible for verifying their enrollment in this class. Schedule adjustments should be made by the deadlines published in the Schedule of Classes. The last day to add a course is January 27, The last day to drop a course with no tuition penalty is February 27, The last day to drop a class is February 20, Withdrawing from a class after this deadline requires the approval of the dean and is only allowed for nonacademic reasons. Required Readings Available for Purchase at the GMU Arlington Bookstore: 1. Reader I (only available at the GMU Bookstore-Arlington Campus) 2. Reader II (only available at the GMU Bookstore-Arlington Campus) 3. James Q. Wilson, Bureaucracy (2000) 4. The National Commission on Terrorists Attacks Upon the United States: The 9/11 Commission Report (2004) 5. David Halberstam, Firehouse (2002) 6. Donald Kettl, System Under Stress: Homeland Security and American Politics, 3rd ed. (2006) 7. Bullock, Haddow, and Coppola, Introduction to Homeland Security, 4 th ed. Recommended Readings Available for Purchase at the GMU Arlington Bookstore: Staff Report of the National Commission on Terrorist Attacks Upon the United States, Terrorist Travel Required Readings that are not Available for Purchase at the GMU Bookstore: Stephen Flynn, America the Vulnerable (2004) Strasser, ed., The 9/11 Investigations (2003) 3

4 The course calendar and topic list provided below constitutes a plan for this course. Inclement weather, changes in the availability of guest presenters, or other factors may necessitate amendments to this plan. I. INTRODUCTION AND OVERVIEW 1. Policy-making and Management in the U.S. Governmental System (Jan. 20) Reader I, Table of Contents items Donald Kettl, System Under Stress, 3 rd. ed., Chapter 1. James Q. Wilson, Bureaucracy, Preface Robert Katz, Skills of an Effective Administrator, HBR, 1974 Charles Lindblom, The Science of Muddling Through, Public Administration Review, Policy-making and Management in the U.S. Governmental System (Jan. 27) Reader I, Table of Contents items Luther Gulick, Notes on a Theory of Organization, web James Q. Wilson, Bureaucracy, pages and Chapter 13 Congress James Q. Wilson, Bureaucracy, Chapter 14 Presidents, James Q. Wilson, Bureaucracy, Chapter 15 Courts II. THE TERRORIST ATTACKS ON SEPTEMBER 11, The Aviation Security System on 9/11, Terrorist Hijacking of Four Commercial Airliners, and Efforts to Improvise a Homeland Security Defense (Feb. 3) The 9/11 Commission Report, Chapter 1 We Have Some Planes The 9/11 Investigations, Staff Statement No. 3 The Aviation Security System and the 9/11 Attacks The 9/11 Investigations, Staff Statement No. 4 The Four Flights James Q. Wilson, Chapters 7-9 Fredrik Logevall ed., Terrorism and 9/11 (2002) 4

5 4. The World Trade Towers and the Pentagon: On the Front Lines with the Emergency Responders (Feb. 10) David Halberstam, Firehouse The 9/11 Commission Report, Chapter 9 James Q. Wilson, Chapters 3-6 Recommended Benson, Bruce, "Preparing for the Improbable and Unpredictable: The Arlington County Police Department's Response to the 9/11 Terrorist Attack on the Pentagon" (2004) 5. The 1993 Attack on the World Trade Towers, Bin Laden, The Evolution of the Al-Qaeda Terrorist Threat and U.S. Government Responses Before 9/11 (Feb. 17) The 9/11 Investigations, pp , Selected Events in the Chronology of Terrorism, The 9/11 Commission Report, Chapters 2 8 The 9/11 Investigations, The Presidential Daily Brief, August 6, 2001 pp The 9/11 Investigations Appendix D, The Presidential Daily Brief, August 6, 2001 Recommended Reading: Robin Wright, Sacred Rage: The Wrath of Militant Islam III. PRESIDENTIAL and CONGRESSIONAL RESPONSES TO THE 9/11 ATTACKS: 2001 and The Military Campaign in Afghanistan, The USA Patriot Act, The Aviation and Transportation Security Act, and the Process of Building the TSA (Feb. 24) **Paper 1 is Due Donald Kettl, System Under Stress, 3 rd ed., Chapter 6 The Aviation and Transportation Security Act of 2001 (Reader I) USA Patriot Act The 9/11 Commission Report, Strategies for Aviation and Transportation Security, pp Staff Report of the National Commission on Terrorist Attacks Upon the United States, Terrorist Travel 5

6 7. Homeland Security Strategy, The Homeland Security Act of 2002, Building Department of Homeland Security by Reorganizing the Executive Branch, the Creation of the 9/11 Commission and the 9/11 Commission Report (March 3) Donald Kettl, System Under Stress, 3 rd. ed., pp. pp and Chapter 3 The Homeland Security Act of 2002 The 9/11 Investigations, Introduction by Craig Whitney The 9/11 Investigations, Staff Statement No. 1 and Staff Statement No. 2 The 9/11 Commission Report, Chapters Bullock, Haddow, and Coppola, Introduction to Homeland Security, 4 th ed., Chapter 1 The 9/11 Commission Report, Chapters Homeland Security Strategy, 2002 PBS FRONTLINE Video, The Man Who Knew (Special Agent John O Neill) PBS FRONTLINE Video, Inside 9/11 Samuel P. Huntington, The Clash of Civilizations and the Remaking of World Order (1996, 2003) **SPRING BREAK: March 9-15 IV. EVOLUTION AND MANAGEMENT OF HOMELAND SECURITY: Secretary Chertoff Reorganizes DHS; The Focus on Terrorism Leads to a Disaster and Another Reorganization of DHS; Current Structure of DHS, Other Departments and Agencies with Homeland Security Functions (March 17) **Paper 2 is Due Bullock, Haddow, and Coppola, Introduction to Homeland Security, 4 th ed., pp Kettl, Chapter 4 Bullock, Haddow, and Coppola, Chapter 4 Post-Katrina Emergency Management Reform Act of Managing DHS: The Secretary, Secretariat, Political Appointees, Congressional Oversight, and Intergovernmental Relations (March 24) Kettl, Chapter 5 James Q. Wilson, Chapters

7 Chertoff s Letter (Reader II) Balunis and Hemphill, Escaping the Entanglement: Reversing Jurisdictional Fragmentation over the Department of Homeland Security (Reader II) Bullock, Haddow, and Coppola, Chapter Managing Transportation Security: Airports and Commercial Aviation, Rail, and Buses (March 31) Bullock, Haddow, and Coppola, Chapter 7 Conant, Appropriating for Transportation Security (Reader II) Josh Fudge, Rail Security (Reader II) 11. Managing Border Security, Immigration, and Customs Enforcement: Airports (April 7) Bullock, Haddow, and Coppola, Chapter 6 Betancourt, Laura, Chris Daly, and Paige Hess, "Dulles Case Study" (Reader II) 12. Managing Immigration, Trade, and Border Security: Sea Ports, Land Ports, and Borders (April 14) Montaigne, Fen, Policing America s Ports, Smithsonian, Jan (Reader II) Stephen Flynn, America the Vulnerable 13. Managing Intelligence and Counterterrorism: Linking DHS to the DOD and the Intelligence Agencies (April 21) Bullock, Haddow, and Coppola, Chapter Managing Cyber security, Managing Infrastructure Protection, and the Future of Homeland Security (April 28) Bullock, Haddow, and Coppola, Chapter 8 Bullock, Haddow, and Coppola, Chapter 13 Kettl, Chapter 7 Final Papers Due: May 5 7

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