To the contrary, the complexity of merging so many disparate agencies threatens to distract Congress and the administration from other, more urgent security efforts. While the creation of a cabinet-level agency focusing on homeland security may have merit, the authors of this study argue that the department will not, in and of itself, make Americans safer. Policymakers have also focused too much attention on the creation of a department of homeland security-rather than identifying and addressing the kinds of threats to which the country remains vulnerable. Not enough has been done to anticipate possible new kinds of terrorist actions. Most improvements in homeland security have focused on "refighting the last war"-improving defenses against attacks similar to those the country has already suffered. The Bush administration and Congress wasted at least six months in 2002 due to partisan disagreement over a new budget for homeland security, and as one consequence, resources were slow to reach first responders across the country. A good deal has been done to improve the safety of Americans on their own soil since the attacks of September 11, 2001.
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