Bush set out to spend $7 billion building out his plan. His cabinet secretaries urged their staffs to take preparations seriously. The government launched a website,
www.pandemicflu.gov, that is still in use today. But as time passed, it became increasingly difficult to justify the continued funding, staffing and attention, Bossert said.
"You need to have annual budget commitment. You need to have institutions that can survive any one administration. And you need to have leadership experience," Bossert said. "All three of those can be effected by our wonderful and unique form of government in which you transfer power every four years."