110TH CONGRESS 
1ST SESSION 
H. R. 1
AN ACT 
To provide for the implementation of the recommendations 
of the National Commission on Terrorist Attacks Upon 
the United States.
Be it enacted by the Senate and House of Representa-
tives of the United States of America in Congress assembled,
SECTION 1. SHORT TITLE. 
This Act may be cited as the ‘‘Implementing the 9/
11 Commission Recommendations Act of 2007’’. 
SEC. 2. TABLE OF CONTENTS. 
The table of contents for this Act is as follows:
Sec. 1. Short title. 
Sec. 2. Table of contents. 
TITLE I—RISK-BASED ALLOCATION OF HOMELAND SECURITY 
GRANTS 
Sec. 101. First responders homeland security funding. 
TITLE II—ENSURING COMMUNICATIONS INTEROPERABILITY FOR 
FIRST RESPONDERS 
Sec. 201. Improve Communications for Emergency Response Grant Program. 
TITLE III—STRENGTHENING USE OF A UNIFIED INCIDENT 
COMMAND DURING EMERGENCIES 
Sec. 301. National exercise program design. 
Sec. 302. National exercise program model exercises. 
Sec. 303. Responsibilities of Regional Administrators of the Federal Emergency 
Management Agency. 
TITLE IV—STRENGTHENING AVIATION SECURITY 
Sec. 401. Installation of in-line baggage screening equipment. 
Sec. 402. Aviation security capital fund. 
Sec. 403. Airport checkpoint screening explosive detection. 
Sec. 404. Strengthening explosive detection at airport screening checkpoints. 
Sec. 405. Extension of authorization of aviation security funding. 
Sec. 406. Inspection of cargo carried aboard passenger aircraft. 
Sec. 407. Appeal and redress process for passengers wrongly delayed or prohib-
ited from boarding a flight. 
Sec. 408. Transportation Security Administration personnel management. 
Sec. 409. Strategic 
plan 
to 
test 
and 
implement 
advanced 
passenger 
prescreening system. 
TITLE V—STRENGTHENING THE SECURITY OF CARGO 
CONTAINERS 
Sec. 501. Requirements relating to entry of containers into the United States. 
TITLE VI—STRENGTHENING EFFORTS TO PREVENT TERRORIST 
TRAVEL 
Subtitle A—Human Smuggling and Trafficking Center Improvements 
Sec. 601. Strengthening the capabilities of the Human Smuggling and Traf-
ficking Center.
Subtitle B—International Collaboration to Prevent Terrorist Travel 
Sec. 611. Report on international collaboration to increase border security, en-
hance global document security, and exchange terrorist infor-
mation. 
Subtitle C—Biometric Border Entry and Exit System 
Sec. 621. Submittal of plan on biometric entry and exit verification system im-
plementation. 
TITLE VII—IMPROVING INTELLIGENCE AND INFORMATION SHAR-
ING WITH LOCAL LAW ENFORCEMENT AND FIRST RESPOND-
ERS 
Subtitle A—Fusion and Law Enforcement Education and Teaming (FLEET) 
Grant Program 
Sec. 701. Findings. 
Sec. 702. FLEET Grant program. 
Subtitle B—Border Intelligence Fusion Center Program 
Sec. 711. Findings. 
Sec. 712. Establishment of Border Intelligence Fusion Center Program. 
Subtitle C—Homeland Security Information Sharing Enhancement 
Sec. 721. Short title. 
Sec. 722. Homeland Security Advisory System. 
Sec. 723. Homeland security information sharing. 
Subtitle D—Homeland Security Information Sharing Partnerships 
Sec. 731. Short title. 
Sec. 732. State, Local, and Regional Information Fusion Center Initiative. 
Sec. 733. Homeland Security Information Sharing Fellows Program. 
Subtitle E—Homeland Security Intelligence Offices Reorganization 
Sec. 741. Departmental reorganization. 
Sec. 742. Intelligence components of Department of Homeland Security. 
Sec. 743. Office of Infrastructure Protection. 
TITLE VIII—PROTECTING PRIVACY AND CIVIL LIBERTIES WHILE 
EFFECTIVELY FIGHTING TERRORISM 
Subtitle A—Privacy and Civil Liberties Oversight Boards 
Sec. 801. Short title. 
Sec. 802. Findings. 
Sec. 803. Making the Privacy and Civil Liberties Oversight Board independent. 
Sec. 804. Requiring all members of the Privacy and Civil Liberties Oversight 
Board be confirmed by the Senate. 
Sec. 805. Subpoena power for the Privacy and Civil Liberties Oversight Board. 
Sec. 806. Reporting requirements. 
Subtitle B—Enhancement of Privacy Officer Authorities 
Sec. 811. Short title.
Sec. 812. Authorities of the privacy officer of the Department of Homeland Se-
curity. 
TITLE IX—IMPROVING CRITICAL INFRASTRUCTURE SECURITY 
Sec. 901. Vulnerability assessment and report on critical infrastructure infor-
mation. 
Sec. 902. National Asset Database and the National At-Risk Database. 
TITLE X—TRANSPORTATION SECURITY PLANNING AND 
INFORMATION SHARING 
Sec. 1001. Strategic transportation security information sharing. 
Sec. 1002. Transportation security strategic planning. 
TITLE XI—PRIVATE SECTOR PREPAREDNESS 
Sec. 1101. Participation of private sector organizations in emergency prepared-
ness and response activities. 
TITLE XII—PREVENTING WEAPONS OF MASS DESTRUCTION 
PROLIFERATION AND TERRORISM 
Sec. 1201. Findings. 
Sec. 1202. Definitions. 
Subtitle A—Repeal and Modification of Limitations on Assistance for 
Prevention of WMD Proliferation and Terrorism 
Sec. 1211. Repeal and modification of limitations on assistance for prevention 
of weapons of mass destruction proliferation and terrorism. 
Subtitle B—Proliferation Security Initiative 
Sec. 1221. Proliferation Security Initiative improvements and authorities. 
Sec. 1222. Authority to provide assistance to cooperative countries. 
Subtitle C—Assistance to Accelerate Programs to Prevent Weapons of Mass 
Destruction Proliferation and Terrorism 
Sec. 1231. Findings; statement of policy. 
Sec. 1232. Authorization of appropriations for the Department of Defense Co-
operative Threat Reduction Program. 
Sec. 1233. Authorization of appropriations for the Department of Energy pro-
grams to prevent weapons of mass destruction proliferation 
and terrorism. 
Subtitle D—Office of the United States Coordinator for the Prevention of 
Weapons of Mass Destruction Proliferation and Terrorism 
Sec. 1241. Office of the United States Coordinator for the Prevention of Weap-
ons of Mass Destruction Proliferation and Terrorism. 
Sec. 1242. Request for corresponding Russian coordinator. 
Subtitle E—Commission on the Prevention of Weapons of Mass Destruction 
Proliferation and Terrorism 
Sec. 1251. Commission on the Prevention of Weapons of Mass Destruction Pro-
liferation and Terrorism.
Sec. 1252. Purposes. 
Sec. 1253. Composition. 
Sec. 1254. Responsibilities. 
Sec. 1255. Powers. 
Sec. 1256. Nonapplicability of Federal Advisory Committee Act. 
Sec. 1257. Report. 
Sec. 1258. Termination. 
TITLE XIII—NUCLEAR BLACK MARKET COUNTER-TERRORISM 
ACT 
Sec. 1301. Short title. 
Sec. 1302. Definitions. 
Subtitle A—Sanctions for Transfers of Nuclear Enrichment, Reprocessing, 
and Weapons Technology, Equipment, and Materials Involving Foreign Per-
sons and Terrorists 
Sec. 1311. Authority to impose sanctions on foreign persons. 
Sec. 1312. Presidential notification on activities of foreign persons. 
Subtitle B—Further Actions Against Corporations Associated With 
Sanctioned Foreign Persons 
Sec. 1321. Findings. 
Sec. 1322. Campaign by United States Government officials. 
Sec. 1323. Coordination. 
Sec. 1324. Report. 
Subtitle C—Rollback of Nuclear Proliferation Networks 
Sec. 1331. Nonproliferation as a condition of United States assistance. 
Sec. 1332. Report on identification of nuclear proliferation network host coun-
tries. 
Sec. 1333. Suspension of arms sales licenses and deliveries to nuclear prolifera-
tion host countries. 
TITLE XIV—9/11 COMMISSION INTERNATIONAL IMPLEMENTATION 
Sec. 1401. Short title; table of contents. 
Subtitle A—Quality Educational Opportunities in Arab and Predominantly 
Muslim Countries. 
Sec. 1411. Findings; Policy. 
Sec. 1412. International Arab and Muslim Youth Opportunity Fund. 
Sec. 1413. Annual report to Congress. 
Sec. 1414. Extension of program to provide grants to American-sponsored 
schools in Arab and predominantly Muslim Countries to pro-
vide scholarships. 
Subtitle B—Democracy and Development in Arab and Predominantly Muslim 
Countries 
Sec. 1421. Promoting democracy and development in the Middle East, Central 
Asia, South Asia, and Southeast Asia. 
Sec. 1422. Middle East Foundation. 
Subtitle C—Restoring United States Moral Leadership
Sec. 1431. Advancing United States interests through public diplomacy. 
Sec. 1432. Expansion of United States scholarship, exchange, and library pro-
grams in Arab and predominantly Muslim countries. 
Sec. 1433. United States policy toward detainees. 
Subtitle D—Strategy for the United States Relationship With Afghanistan, 
Pakistan, and Saudi Arabia 
Sec. 1441. Afghanistan. 
Sec. 1442. Pakistan. 
Sec. 1443. Saudi Arabia.
TITLE I—RISK-BASED ALLOCA-
TION OF HOMELAND SECU-
RITY GRANTS 
SEC. 101. FIRST RESPONDERS HOMELAND SECURITY FUND-
ING. 
(a) IN GENERAL.—The Homeland Security Act of 
2002 (Public Law 107–296; 6 U.S.C. 361 et seq.) is 
amended—
(1) in section 1(b) in the table of contents by 
striking the items relating to the second title XVIII, 
as added by section 501(b)(3) of Public Law 109–
347, and inserting the following:
‘‘TITLE XIX—DOMESTIC NUCLEAR DETECTION OFFICE 
‘‘Sec. 1901. Domestic Nuclear Detection Office. 
‘‘Sec. 1902. Mission of Office. 
‘‘Sec. 1904. Testing authority. 
‘‘Sec. 1905. Relationship to other Department entities and Federal agencies. 
‘‘Sec. 1906. Contracting and grant making authorities.’’;
(2) by redesignating the second title XVIII, as 
added by section 501(a) of Public Law 109–347, as 
title XIX; 
(3) in title XIX (as so redesignated)—
(A) 
by 
redesignating 
sections 
1801 
through 1806 as sections 1901 through 1906, 
respectively; 
(B) in section 1904(a) (6 U.S.C. 594(a)), 
as so redesignated, by striking ‘‘section 1802’’ 
and inserting ‘‘section 1902’’; and 
(C) in section 1906 (6 U.S.C. 596), as so 
redesignated, by striking ‘‘section 1802(a)’’ 
each place it appears and inserting ‘‘section 
1902(a)’’; 
(4) in section 1(b) in the table of contents by 
adding at the end the following:
‘‘TITLE XX—FUNDING FOR FIRST RESPONDERS 
‘‘Sec. 2001. Definitions. 
‘‘Sec. 2002. Faster and Smarter Funding for First Responders. 
‘‘Sec. 2003. Covered grant eligibility and criteria. 
‘‘Sec. 2004. Risk-based evaluation and prioritization. 
‘‘Sec. 2005. Use of funds and accountability requirements.’’;
and 
(5) by adding at the end the following: 
‘‘TITLE XX—FUNDING FOR FIRST 
RESPONDERS 
‘‘SEC. 2001. DEFINITIONS. 
‘‘In this title: 
‘‘(1) COVERED
GRANT.—The term ‘covered 
grant’ means any grant to which this title applies 
under section 2002.
‘‘(2) DIRECTLY
ELIGIBLE
TRIBE.—The term 
‘directly eligible tribe’ means any Indian tribe or 
consortium of Indian tribes that—
‘‘(A) meets the criteria for inclusion in the 
qualified applicant pool for Self-Governance 
that are set forth in section 402(c) of the In-
dian Self-Determination and Education Assist-
ance Act (25 U.S.C. 458bb(c)); 
‘‘(B) employs at least 10 full-time per-
sonnel in a law enforcement or emergency re-
sponse agency with the capacity to respond to 
calls for law enforcement or emergency services; 
and 
‘‘(C)(i) is located on, or within 5 miles of, 
an international border or waterway; 
‘‘(ii) is located within 5 miles of a facility 
designated as high-risk critical infrastructure 
by the Secretary; 
‘‘(iii) is located within or contiguous to one 
of the 50 largest metropolitan statistical areas 
in the United States; or 
‘‘(iv) has more than 1,000 square miles of 
Indian country, as that term is defined in sec-
tion 1151 of title 18, United States Code.
‘‘(3) ELEVATIONS
IN
THE
THREAT
ALERT 
LEVEL.—The term ‘elevations in the threat alert 
level’ means any designation (including those that 
are less than national in scope) that raises the 
homeland security threat level to either the highest 
or second highest threat level under the Homeland 
Security Advisory System referred to in section 
201(d)(7). 
‘‘(4) FIRST RESPONDER.—The term ‘first re-
sponder’ shall have the same meaning as the term 
‘emergency response provider’. 
‘‘(5) INDIAN TRIBE.—The term ‘Indian tribe’ 
means any Indian tribe, band, nation, or other orga-
nized group or community, including any Alaskan 
Native village or regional or village corporation as 
defined in or established pursuant to the Alaskan 
Native Claims Settlement Act (43 U.S.C. 1601 et 
seq.), that is recognized as eligible for the special 
programs and services provided by the United States 
to Indians because of their status as Indians. 
‘‘(6) REGION.—The term ‘region’ means—
‘‘(A) any geographic area consisting of all 
or parts of 2 or more contiguous States that 
have a combined population of at least 
1,650,000 or have an area of not less than
20,000 square miles, and that, for purposes of 
an application for a covered grant, is rep-
resented by 1 or more governments or govern-
mental agencies within such geographic area, 
and that is established by law or by agreement 
of 2 or more such governments or governmental 
agencies in a mutual aid agreement; or 
‘‘(B) any other combination of contiguous 
local government units (including such a com-
bination established by law or agreement of two 
or more governments or governmental agencies 
in a mutual aid agreement) that is formally cer-
tified by the Secretary as a region for purposes 
of this Act with the consent of—
‘‘(i) the State or States in which they 
are located, including a multi-State entity 
established by a compact between two or 
more States; and 
‘‘(ii) the incorporated municipalities, 
counties, and parishes that they encom-
pass. 
‘‘(7) TERRORISM
PREPAREDNESS.—The term 
‘terrorism preparedness’ means any activity designed 
to improve the ability to prevent, prepare for, re-
spond to, mitigate against, or recover from threat-
ened or actual terrorist attacks. 
‘‘(8) CAPABILITIES.—The term ‘capabilities’ 
shall have the same meaning that term has under 
title VIII. 
‘‘SEC. 2002. FASTER AND SMARTER FUNDING FOR FIRST RE-
SPONDERS. 
‘‘(a) COVERED GRANTS.—This title applies to grants 
provided by the Department to States, urban areas, re-
gions, or directly eligible tribes for the primary purpose 
of improving the ability of first responders to prevent, pre-
pare for, respond to, mitigate against, or recover from 
threatened or actual terrorist attacks, especially those in-
volving weapons of mass destruction, administered under 
the following: 
‘‘(1) STATE HOMELAND SECURITY GRANT PRO-
GRAM.—The State Homeland Security Grant Pro-
gram of the Department, or any successor to such 
grant program. 
‘‘(2) URBAN AREA SECURITY INITIATIVE.—The 
Urban Area Security Initiative of the Department, 
or any successor to such grant program. 
‘‘(3) LAW ENFORCEMENT TERRORISM PREVEN-
TION PROGRAM.—The Law Enforcement Terrorism
Prevention Program of the Department, or any suc-
cessor to such grant program. 
‘‘(b) EXCLUDED PROGRAMS.—This title does not 
apply to or otherwise affect the following Federal grant 
programs or any grant under such a program: 
‘‘(1) NONDEPARTMENT PROGRAMS.—Any Fed-
eral grant program that is not administered by the 
Department. 
‘‘(2) FIRE GRANT PROGRAMS.—The fire grant 
programs authorized by sections 33 and 34 of the 
Federal Fire Prevention and Control Act of 1974 
(15 U.S.C. 2229, 2229a). 
‘‘(3) EMERGENCY
MANAGEMENT
PLANNING 
AND
ASSISTANCE
ACCOUNT
GRANTS.—The Emer-
gency Management Performance Grant program and 
the Urban Search and Rescue Grants program au-
thorized by title VI of the Robert T. Stafford Dis-
aster Relief and Emergency Assistance Act (42 
U.S.C. 5195 et seq.); the Departments of Veterans 
Affairs and Housing and Urban Development, and 
Independent Agencies Appropriations Act, 2000 
(113 Stat. 1047 et seq.); and the Earthquake Haz-
ards Reduction Act of 1977 (42 U.S.C. 7701 et 
seq.).
‘‘SEC. 2003. COVERED GRANT ELIGIBILITY AND CRITERIA. 
‘‘(a) GRANT ELIGIBILITY.—
‘‘(1) STATE, REGION, OR DIRECTLY ELIGIBLE 
TRIBE.—Any State, region, or directly eligible tribe 
shall be eligible to apply for a covered grant under 
the programs referred to in paragraphs (1) and (3) 
of section 1802(a). 
‘‘(2) HIGH-THREAT URBAN AREAS.—Any urban 
area that is determined by the Secretary to be a 
high-threat urban areas shall be eligible to apply for 
a covered grant referred to in paragraph (2) of sec-
tion 1802(a). 
‘‘(b) GRANT CRITERIA.—The Secretary shall award 
covered grants to assist States and local governments in 
achieving, maintaining, and enhancing the capabilities for 
terrorism preparedness established by the Secretary. 
‘‘(c) SUBMISSION
OF STATE PREPAREDNESS RE-
PORT.—
‘‘(1) SUBMISSION
REQUIRED.—The Secretary 
shall require that any State applying to the Sec-
retary for a covered grant must submit State Pre-
paredness Report specified in section 652(c) of the 
Department of Homeland Security Appropriations 
Act, 2007 (Public Law 109–295). 
‘‘(2) CONSULTATION.—The State report sub-
mitted under paragraph (1) shall be developed in
consultation with and subject to appropriate com-
ment by local governments and first responders 
within the State. 
‘‘(d) CONSISTENCY WITH STATE PLANS.—
‘‘(1) IN GENERAL.—The Secretary shall ensure 
that each covered grant is used to supplement and 
support, in a consistent and coordinated manner, the 
applicable State homeland security report or plan. 
‘‘(2) APPROVAL OF PLAN BY SECRETARY.—The 
Secretary may not award any covered grant to a 
State unless the Secretary has approved the applica-
ble State homeland security plan. 
‘‘(3) REVISIONS.—A State may revise the appli-
cable State homeland security plan approved by the 
Secretary under this subsection, subject to approval 
of the revision by the Secretary. 
‘‘(e) APPLICATION FOR GRANT.—
‘‘(1) IN GENERAL.—Except as otherwise pro-
vided in this subsection, any State, urban area, re-
gion, or directly eligible tribe may apply for a cov-
ered grant by submitting to the Secretary an appli-
cation at such time, in such manner, and containing 
such information as is required under this sub-
section, or as the Secretary may reasonably require.
‘‘(2) DEADLINES
FOR
APPLICATIONS
AND 
AWARDS.—All applications for covered grants must 
be submitted at such time as the Secretary may rea-
sonably require for the fiscal year for which they are 
submitted. The Secretary shall award covered grants 
pursuant to all approved applications for such fiscal 
year as soon as practicable, but not later than 
March 1 of such year. 
‘‘(3) AVAILABILITY
OF
FUNDS.—All funds 
awarded by the Secretary under covered grants in a 
fiscal year shall be available for obligation through 
the end of the subsequent fiscal year. 
‘‘(4) MINIMUM CONTENTS OF APPLICATION.—
The Secretary shall require that each applicant in-
clude in its application, at a minimum—
‘‘(A) the purpose for which the applicant 
seeks covered grant funds and the reasons why 
the applicant needs the covered grant to meet 
the capabilities for terrorism preparedness with-
in the State, urban area, region, or directly eli-
gible tribe to which the application pertains; 
‘‘(B) a description of how, by reference to 
the applicable State homeland security plan or 
plans under subsection (c), the allocation of 
grant funding proposed in the application, in-
cluding, where applicable, the amount not 
passed through under section 2005(g)(1), would 
assist in fulfilling the capabilities for terrorism 
preparedness specified in such plan or plans; 
‘‘(C) a statement of whether a mutual aid 
agreement applies to the use of all or any por-
tion of the covered grant funds; 
‘‘(D) if the applicant is a State, a descrip-
tion of how the State plans to allocate the cov-
ered grant funds to local governments and In-
dian tribes; 
‘‘(E) if the applicant is a region—
‘‘(i) a precise geographical description 
of the region and a specification of all par-
ticipating and nonparticipating local gov-
ernments within the geographical area 
comprising that region; 
‘‘(ii) a specification of what govern-
mental entity within the region will admin-
ister the expenditure of funds under the 
covered grant; and 
‘‘(iii) a designation of a specific indi-
vidual to serve as regional liaison;
‘‘(F) a capital budget showing how the ap-
plicant intends to allocate and expend the cov-
ered grant funds; 
‘‘(G) if the applicant is a directly eligible 
tribe, a designation of a specific individual to 
serve as the tribal liaison; and 
‘‘(H) a statement of how the applicant in-
tends to meet the matching requirement, if any, 
that applies under section 2005(g)(2). 
‘‘(5) REGIONAL APPLICATIONS.—
‘‘(A) RELATIONSHIP TO STATE APPLICA-
TIONS.—A regional application—
‘‘(i) shall be coordinated with an ap-
plication submitted by the State or States 
of which such region is a part; 
‘‘(ii) shall supplement and avoid dupli-
cation with such State application; and 
‘‘(iii) shall address the unique regional 
aspects of such region’s terrorism pre-
paredness needs beyond those provided for 
in the application of such State or States. 
‘‘(B) STATE REVIEW AND SUBMISSION.—
To ensure the consistency required under sub-
section (d) and the coordination required under 
subparagraph (A) of this paragraph, an appli-
cant that is a region must submit its applica-
tion to each State of which any part is included 
in the region for review and concurrence prior 
to the submission of such application to the 
Secretary. The regional application shall be 
transmitted to the Secretary through each such 
State within 30 days of its receipt, unless the 
Governor of such a State notifies the Secretary, 
in writing, that such regional application is in-
consistent with the State’s homeland security 
plan and provides an explanation of the reasons 
therefor. 
‘‘(C) 
DISTRIBUTION
OF
REGIONAL 
AWARDS.—If the Secretary approves a regional 
application, then the Secretary shall distribute 
a regional award to the State or States submit-
ting the applicable regional application under 
subparagraph (B), and each such State shall, 
not later than the end of the 45-day period be-
ginning on the date after receiving a regional 
award, pass through to the region all covered 
grant funds or resources purchased with such 
funds, except those funds necessary for the 
State to carry out its responsibilities with re-
spect to such regional application: Provided,