Explosive detection systems used to screen checked baggage include EDS  and ETD machines. The Deployment of Stand-alone Explosive Detection Systems Led to Operational Inefficiencies and Security Risks that In- Line Systems Could Address at Some Airports

		Stand-alone Checked Baggage Screening Systems Created Operational Inefficiencies and Security Risks

Since its inception in November 2001 through June 22, 2006, TSA has  procured and installed about 1,600 EDS machines and about 7,200 ETD  machines to screen checked baggage for explosives at over 400  commercial airports. Table 3 identifies  TSA’s estimates for bags screened per hour by EDS machines in stand- alone and in-line configurations and ETD machines. In February 2006, TSA reported that recent improvements  in the design of the in-line EDS checked baggage screening systems and  the EDS screening technology now offer the opportunity for higher- performance and lower-cost screening systems. TSA’s use of alternative  screening procedures has involved trade-offs in security effectiveness. As part of our ongoing work on TSA’s use of alternative screening  procedures to screen checked baggage, we found that the superior  efficiency of screening with in-line EDS compared to screening with stand- alone EDS may have been a factor in reducing the need to use alternative  screening procedures at airports where in-line systems were installed. TSA Has Begun Systematically Planning for the Optimal Deployment of Checked Baggage Screening Systems, but It Continues to Face Funding Uncertainties

		TSA Has Made Progress in Planning for the Optimal Deployment of Checked Baggage Screening Systems

TSA has made progress in its efforts to systematically plan for the optimal  deployment of checked baggage screening systems, but resources have not  been made available to fund these systems on a large-scale basis. In March  2005, we reported that while TSA has made progress in deploying EDS and  ETD machines, it had not conducted a systematic, prospective analysis of  the optimal deployment of these machines to achieve long-term savings  and enhanced efficiencies and security. This framework introduces a strategy intended to increase security  through deploying in-line and stand-alone EDS to as many airports as  practicable, lower life-cycle costs for the program, minimize impacts to  TSA and airport/airline operations, and provide a flexible security  infrastructure for accommodating growing airline traffic and potential new  threats. The framework is an initial step in addressing the following  areas:    Optimized checked baggage screening solutions—finding the ideal  mix of higher-performance and lower-cost alternative screening  solutions for the 250 airports with the highest checked baggage  volumes;    Funding prioritization schedule by airport—identifying the top   25 airports that should first receive federal funding for projects  related to the installation of explosive detection systems based on  quantitative modeling of security, economic, and other factors;    Deployment strategy—developing a plan for the acquisition of next- generation EDS systems, the redeployment of existing EDS assets,  and investment in life-cycle extension programs;    EDS Life-Cycle Management Plan—structuring guidelines for EDS  research and development investment, procurement specifications  for next-generation EDS systems, and the redeployment of existing  EDS assets and investment in life-cycle extension programs that  minimize the cost of ownership of the EDS systems; and   Stakeholder collaboration plan—working with airport operators  and other key stakeholders to develop airport-specific screening  solutions, refine the nationwide EDS deployment strategy, and  investigate alternative funding programs that may allow for  innovative as well as non-federal sources of funding or financing,  including formulas for sharing costs among different government  entities and the private sector. In February 2006, TSA estimated that the total cost of installing and  operating the optimal checked baggage screening systems, including in- line EDS machines, at the 250 airports is approximately $22.4 billion over  20 years, of which about $6 billion is for installation, life-cycle  replacement, existing committed funding, and equipment maintenance  costs. In a May 2006 meeting of the Aviation Security Advisory Committee, TSA  reported that under current investment levels, installation of optimal  checked baggage screening systems would not be completed until  approximately 2024. The maximum number of bags an EDS  machine can screen per hour is 500, which can be achieved only when the  machines are integrated in-line with the baggage conveyor system. Specifically, the analysis identified that using in-line systems  instead of stand-alone systems at these nine airports could save the federal  government about $1.3 billion over 7 years and that TSA’s initial  investment would be recovered in a little over 1 year.
Why GAO Did This Study

The Transportation Security Administration (TSA) has deployed two types of baggage screening equipment: explosive detection systems (EDS), which use X-rays to scan bags for explosives, and explosive trace detection systems (ETD), in which bags are swabbed to test for chemical traces of explosives. TSA considers screening with EDS to be superior to screening with ETD because EDS machines process more bags per hour and automatically detect explosives without direct human involvement. In March 2005, GAO reported that while TSA had made progress in deploying EDS and ETD machines, it had not conducted a systematic, prospective analysis of the optimal deployment of these machines to achieve long-term savings and enhanced efficiencies and security. GAO's testimony today updates our previous report and discusses TSA's (1) deployment of EDS and ETD systems and the identified benefits of in-line systems, and (2) planning for the optimal deployment of checked baggage screening systems and efforts to identify funding and financing options.

What GAO Found

Since its inception in November 2001 through June 2006, TSA has procured and installed about 1,600 EDS machines and 7,200 ETD machines to screen checked baggage for explosives at over 400 airports. However, initial deployment of EDS machines in a stand-alone mode--usually in airport lobbies--and ETD machines resulted in operational inefficiencies and security risks as compared with using EDS machines integrated in-line with airport baggage conveyor systems. For example, TSA's use of stand-alone EDS and ETD machines required a greater number of screeners and resulted in screening fewer bags for explosives each hour. In March 2005, we reported that at nine airports where TSA has agreed to help fund the installation of in-line EDS systems, TSA estimated that screening with in-line EDS machines could save the federal government about $1.3 billion over 7 years. In February 2006, TSA reported that many of the initial in-line EDS systems did not achieve the anticipated savings. However, recent improvements in the design of the in-line EDS systems and EDS screening technology now offer the opportunity for higher-performance and lower-cost screening systems. Finally, screening with in-line EDS systems may result in security benefits by reducing the need for TSA to use alternative screening procedures, such as screening with explosives detection canines and physical bag searches, which involve trade-offs in security effectiveness. TSA has begun to systematically plan for the optimal deployment of checked baggage screening systems, but resources have not been made available to fund the installation of in-line EDS systems on a large-scale basis. In February 2006, TSA released its strategic planning framework for checked baggage screening aimed at increasing security through deploying more EDS machines, lowering program life-cycle costs, minimizing impacts to TSA and airport and airline operations, and providing a flexible security infrastructure. As part of this effort, TSA identified the 25 airports that should first receive federal funding for the installation of in-line EDS systems, and the optimal checked baggage screening solutions for the 250 airports with the highest checked baggage volumes. In February 2006, TSA estimated that installing and operating the optimal checked baggage screening systems will cost about $22.4 billion over 20 years and reported that under current investment levels, installation of optimal baggage screening systems would not be completed until approximately 2024. TSA is collaborating with airport operators, airlines, and other key stakeholders to identify funding and cost sharing strategies and is focusing its research and development efforts on the next generation of EDS technology.