Ports

According to the Department of Transportation’s Maritime Administration,  over 9.3 million passengers departed from a U.S. port on North American  cruises in 2008, on a total of almost 3,900 cruises from 30 ports. National laws, regulations, and guidance direct federal agencies and vessel  and facility operators on a nationwide basis. The Coast Guard Assesses Risk to Cruise Ships and Facilities in Accordance with DHS’s Risk Assessment Guidance; Concerns Associated with Waterside Attacks Remain

		Risk Assessment

The Coast Guard uses a tool, known as the Maritime Security Risk  Analysis Model, to assess risk for various types of vessels and port  infrastructure, including cruise ships and cruise ship facilities, which is in  accordance with the guidance on assessing risk from DHS’s National  Infrastructure Protection Plan. Risk to Cruise Ships and Their Facilities

Although in January 2010 intelligence officials working at the National  Maritime Intelligence Center stated there has been no credible terrorist  threat against cruise ships identified in at least the preceding 12 months,  stakeholders generally agreed that waterside attacks are a concern for  cruise ships, and if attacks were successfully carried out, they could have  extensive consequences. Despite the lack of evidence identifying recent  threats, maritime intelligence officials identified the presence of terrorist  groups that have the capability to attack a cruise ship, even though they  have not identified any intent. As a result of an attack, damage to the cruise ship  could occur and the extent of the loss of life would depend on the severity  of the attack, according to various studies. Stakeholders Have Taken Various Actions Pursuant to Laws, Regulations, and Guidance Designed to Enhance the Security of Cruise Ship Operations and Additional Actions Are Being Considered

		Stakeholders’ Actions

In their efforts to secure cruise ships and their attendant port facilities, the  responsible stakeholders—including the Coast Guard, CBP,  Transportation Security Administration (TSA), DHS, as well as cruise ship  owners and cruise ship facility operators—have taken various actions to  implement applicable key maritime federal laws, regulations, and guidance  designed to help ensure the security of cruise ships and cruise ship  facilities. The Coast Guard has also taken various operational actions designed to  secure cruise ships. CBP reviews passenger and crew lists for terrorist and criminal  connections. Although the Coast Guard has identified security-related deficiencies for  cruise ship facilities and cruise ships, agency officials stated that cruise  ship and cruise ship facility operators generally maintain good security  measures. In 2006, the  Coast Guard asked advisory committee members to specifically review  and make recommendations regarding cruise ship security measures. CBP’s Collection of Additional Passenger Data Could Enhance Cruise Ship Security

Detailed information regarding these cases is security sensitive information. Our previous work identified evaluations as a way for agencies to explore  the benefits of a program. In addition, CBP’s 2005-2010 Strategic Plan  states that the agency should seek to improve the identification and  targeting of potential terrorists and terrorist weapons, through risk  management and automated advanced and enhanced information. By conducting a study to determine whether requiring  cruise lines to provide automated Passenger Name Record data on a  systematic basis is cost effective and addresses privacy implications, CBP  would be in a better position to determine whether additional actions  should be taken to augment security through enhanced screening of cruise  ship passengers. Combating Terrorism: Interagency Framework and Agency Programs to  Address the Overseas Threat.
Why GAO Did This Study

Over 9 million passengers departed from U.S. ports on cruise ships in 2008, and according to agency officials, cruise ships are attractive terrorist targets. GAO was asked to review cruise ship security, and this report addresses the extent to which (1) the Coast Guard, the lead federal agency on maritime security, assessed risk in accordance with the Department of Homeland Security's (DHS) guidance and identified risks; and (2) federal agencies, cruise ship and facility operators, and law enforcement entities have taken actions to protect cruise ships and their facilities. GAO reviewed relevant requirements and agency documents on maritime security, analyzed 2006 through 2008 security operations data, interviewed federal and industry officials, and made observations at seven ports. GAO selected these locations based on factors such as the number of sailings from each port. Results of the visits provided additional information on security, but were not projectable to all ports.

What GAO Found

The Coast Guard has assessed the risks to cruise ships in accordance with DHS guidance--which requires that the agency analyze threats, vulnerabilities, and consequences--and, with other maritime stakeholders, identified some concerns. Specifically, agency officials reported in January 2010 that there had been no credible threats against cruise ships in the prior 12 months, but also noted the presence of terrorist groups that have the capability to attack a cruise ship. The Coast Guard, cruise ship and facility operators, and law enforcement officials generally believe waterside attacks are a concern for cruise ships. Agency officials and terrorism researchers also identified terrorists boarding a cruise ship as a concern. The Coast Guard has also identified the potential consequences of an attack, which would include potential loss of life and economic effects. Federal agencies, cruise ship and facility operators, and law enforcement entities have taken various actions to enhance the security of cruise ships and their facilities and implement related laws, regulations, and guidance, and additional actions are under way. DHS and component agencies have taken security measures such as the Coast Guard providing escorts of cruise ships during transit, and CBP's review of passenger and crew data to help target passenger inspections. Cruise ship and cruise ship facility operators' security actions have included developing and implementing security plans, among other things. The Coast Guard is also in the process of expanding a program to deter and prevent small vessel attacks, and is developing additional security measures for cruise ships. In addition, CBP's 2005-2010 Strategic Plan states that CBP should seek to improve identification and targeting of potential terrorists through automated advanced information. CBP, however, has not assessed the cost and benefit of requiring cruise lines to provide passenger reservation data, which in the aviation mode, CBP reports to be useful for the targeting of passengers for inspection. GAO's previous work identified evaluations as a way for agencies to explore the benefits of a program. If CBP conducted a study to determine whether collecting additional passenger data is cost effective and addressed privacy implications, CBP would be in a better position to determine whether additional actions should be taken to augment security.