	Background

The Aviation and Transportation Security Act, enacted in November 2001,  assigned TSA responsibility for security in all modes of transportation,  which include aviation, maritime, mass transit, highway and motor carrier,  freight rail, and pipeline. Our 2011 survey results indicate general satisfaction  among transportation stakeholders who received these products across  each mode of transportation, but satisfaction varied by transportation  sector. For the purposes of  the survey, actionability was defined as the degree to which TSA’s  security-related information products enabled stakeholders to make  adjustments to their security measures, if such a change was warranted. However, they recognized the need to provide this  information to stakeholders when available and to improve the analysis  provided in their products. As shown  in figure 4, approximately 18 percent (48 of 266 stakeholders who  provided responses to this question) of the transportation stakeholders  we surveyed reported that they did not receive TSA’s transportation  security-related information reports, 34 percent (91 of 271) reported that  they did not receive a TSA briefing, and approximately 48 percent (128 of  264) reported that they did not receive TSA’s assessments in 2010. However, stakeholders who are not affiliated with industry  associations may not receive these communications. Most Stakeholders Who Used Information-sharing Mechanisms Were Generally Satisfied; Others Were Unfamiliar with DHS’s Primary Mechanism

		Aviation Stakeholders Were Generally Satisfied with TSA’s Aviation Web Boards

The mechanisms used by TSA to share information with transportation  stakeholders include the Aviation Web Boards, the Homeland Security  Information Network (HSIN), and e-mail alerts. However, as shown in figure 6,  almost 60 percent (158 of 266) of transportation stakeholders we  surveyed had never heard of HSIN-CS. Among  the highway respondents, 28 percent (11 of 39) had not heard of HSIN- CS and 8 percent (3 of 39) were unsure. DHS  officials concurred with this recommendation and in January 2011  provided an implementation plan with target dates for addressing it. Of those  that logged on to HSIN-CS, 40 percent (6 of 15) of highway stakeholders  and 53 percent (9 of 17) of rail stakeholders were satisfied with their  ability to locate information on HSIN-CS, as shown in figure 9. Defining and Documenting Roles and Responsibilities within TSA Could Help Strengthen Information Sharing

The approach that TSA uses to communicate security-related information  to stakeholders relies on partnerships established among offices within  the agency. However, officials from two other TSNM offices  stated that the role of the TSNM offices is limited to communicating policy  and regulatory information rather than threat-related information. While it is  recognized that information products and mechanisms are selected and  utilized as appropriate to the circumstances, clearly documenting the  basic roles and responsibilities of its partners—especially TSNM offices— in sharing security-related information with transportation stakeholders  and increasing awareness of information-sharing mechanisms could  improve the effectiveness of TSA-OI’s information-sharing efforts and  help ensure accountability. Additionally, key elements of TSA’s information approach are not  described in its December 2010 information-sharing plan. Other responsibilities include developing and maintaining a  working relationship with local, federal, state, and private entities  responsible for transportation security, regardless of mode. Because TSA has not clearly defined and documented  roles and responsibilities for disseminating security-related information  and the full range of its information-sharing efforts, TSA may not be  consistently providing security-related information products to external  stakeholders and divisions within TSA may not be held fully accountable  for performing their information-sharing activities. Clarifying the roles and  responsibilities of TSA’s various offices in sharing security-related  information with transportation stakeholders could improve the  effectiveness of TSA’s information-sharing efforts and help ensure greater  accountability. Recommendations for Executive Action

To help strengthen information sharing with transportation stakeholders  and ensure that stakeholders receive security-related information in a  timely manner, we recommend that the Secretary of Homeland Security  direct the Assistant Secretary for the Transportation Security  Administration to take the following five actions:
To the extent possible, address the need expressed by stakeholders  by providing more actionable analysis in TSA’s transportation  security-related information products. (3) To what extent has  TSA defined its roles and responsibilities for sharing security-related  information with stakeholders? To assess the extent to which stakeholders are satisfied with the security- related information products that they receive from TSA and the  mechanisms used to obtain them, we conducted a web-based survey of  transportation stakeholders from the aviation, freight and passenger rail,  and highway modes. To develop the survey and to identify the primary security-related  information-sharing products, mechanisms, and the stakeholders for  whom TSA maintains contact information, we interviewed officials from  TSA’s Office of Intelligence (TSA-OI) and officials from the Commercial  Airline, Commercial Airport, Air Cargo, Freight Rail, and Highway and  Motor Carrier Transportation Sector Network Management (TSNM)  offices. Critical Infrastructure Protection: Improving Information Sharing with  Infrastructure Sectors.
Why GAO Did This Study

The U.S. transportation system, comprised of aviation, freight rail, highway, maritime, mass transit and passenger rail, and pipelines, moves billions of passengers and millions of tons of goods each year. Disrupted terrorist attacks involving rail and air cargo in 2010 demonstrate the importance of effective information sharing with transportation security stakeholders. The Transportation Security Administration (TSA) is the lead agency responsible for communicating security-related information with all modes. In response to the Implementing Recommendations of the 9/11 Commission Act of 2007, GAO assessed 1) the satisfaction of transportation stakeholders with the quality of TSA's transportation security information products, 2) satisfaction with mechanisms used to disseminate them, and 3) the extent to which TSA's roles and responsibilities are clearly defined. GAO surveyed 335 aviation, rail, and highway stakeholders (with an 82 percent response rate); reviewed agency planning documents; and interviewed industry associations, transportation stakeholders, and Department of Homeland Security officials. An electronic supplement to this report--GAO-12-67SP--provides survey results.

What GAO Found

Transportation stakeholders who GAO surveyed were generally satisfied with TSA's security-related information products, but identified opportunities to improve the quality and availability of the disseminated information. TSA developed a series of products to share security-related information with transportation stakeholders such as annual modal threat assessments that provide an overview of threats to each transportation mode--including aviation, rail, and highway--and related infrastructure. Fifty-seven percent of the stakeholders (155 of 275 who answered this question) indicated that they were satisfied with the products they receive. However, stakeholders who receive these products were least satisfied with the actionability of the information--the degree to which the products enabled stakeholders to adjust their security measures. They noted that they prefer products with more analysis, such as trend analysis of incidents or suggestions for improving security arrangements. Further, not all stakeholders received the products. For example, 48 percent (128 of 264) of the stakeholders reported that they did not receive a security assessment in 2010, such as TSA's annual modal threat assessment. Improving the analysis and availability of security-related information products would help enhance stakeholders' ability to position themselves to protect against threats. Stakeholders who obtained security-related information through TSA's Web-based mechanisms were generally satisfied, but almost 60 percent (158 of 266) of stakeholders GAO surveyed had never heard of the Homeland Security Information Sharing Network Critical Sectors portal (HSIN-CS). DHS views HSIN as the primary mechanism for sharing security-related information with critical sectors, including transportation stakeholders. Forty-three percent of rail stakeholders, 28 percent of highway stakeholders, and 72 percent of aviation stakeholders--who consider TSA's aviation Web Boards as their primary information-sharing mechanism--had not heard of HSIN-CS. Among the 55 stakeholders that had logged on to HSIN-CS, concerns were raised with the ability to locate information using the mechanism. Increasing awareness and functionality of HSIN-CS could help ensure that stakeholders receive security information, including TSA products. Defining and documenting the roles and responsibilities for information sharing among TSA offices could help strengthen information-sharing efforts. Officials from TSA's Office of Intelligence consider TSA's Transportation Sector Network Management offices to be key conduits for providing security-related information directly to stakeholders. However, officials from these offices differed in their understanding of their roles. For instance, officials told GAO that their role was to communicate policy and regulatory information, rather than threat-related information. While TSA officials look to the current Transportation Security Information Sharing Plan for guidance, it does not include key elements of the approach that TSA uses to communicate security-related information to stakeholders. For example, it does not describe the roles of TSA's Field Intelligence Officers, who facilitate the exchange of relevant threat information with local and private entities responsible for transportation security. Clearly documenting roles and responsibilities for sharing security-related information with transportation stakeholders could improve the effectiveness of TSA's efforts and help ensure accountability.

What GAO Recommends

GAO recommends that TSA, among other actions, (1) address stakeholder needs regarding the quality of analysis in and availability of its products, (2) increase awareness and functionality of its information sharing mechanisms, and (3) define and document TSA's information sharing roles and responsibilities. DHS concurred with GAO's recommendations.