Beyond Counterterrorism: Data Sharing, Privacy, and Organizational Histories of DHS Fusion Centers

Decentralized organizational approaches to security provision introduce new challenges for controlling information-sharing practices, safeguarding civil liberties, and ensuring accountability. Department of Homeland Security "fusion centers," and the multiple organizations and databases that are part of fusion centers, engender an environment in which information is migrating beyond original purposes of counterterrorism. Indeed, based on intensive qualitative research, the authors have found that fusion centers that were originally oriented toward "counterterrorism" have quickly broadened their scope to include all crimes, and those that began as "all crimes" have migrated only marginally to terrorism. This is the result of three quite predictable factors: fusion centers have to be valuable to their states, there is too little activity that is clearly terrorism related, and fusion center personnel have to use their time and skills constructively. Nonetheless, even if local policing needs are met through fusion-center funding and support, many of the activities of fusion-center analysts lend themselves to mission creep and violations of civil liberties.