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In the last century, three influenza pandemics have swept the globe. In 1918, the first pandemic (sometimes referred to as the "Spanish Flu") killed over 500,000 Americans and more than 20 million people worldwide. One-third of the U.S. population was infected, and average life expectancy was reduced by 13 years. Pandemics in 1957 and 1968 killed tens of thousands of Americans and millions across the world. Scientists believe that viruses from birds played a role in each of those outbreaks.

America is at war with terrorist enemies who are intent on attacking our Homeland and destroying our way of life. The lives and livelihoods of the American people also remain at risk from natural catastrophes, including naturally occurring infectious diseases and hazards such as hurricanes and earthquakes, and man-made accidents. Our National Strategy for Homeland Security recognizes that while we must continue to focus on the persistent and evolving terrorist threat, we also must address the full range of potential catastrophic events, including man-made and natural disasters, due to their...