	Background

The Aviation and Transportation Security Act (ATSA), enacted in  November 2001, created TSA and gave it responsibility for securing all  modes of transportation. For example, TSA has implemented several efforts intended to strengthen  the allocation of its TSO workforce. Since that time, TSA has developed a Staffing  Allocation Model to determine TSO staffing levels at airports. However, we have identified areas where TSA could improve its  evaluation and documentation of proposed procedures. Despite TSA’s efforts to develop passenger checkpoint screening  technologies, we reported that limited progress has been made in fielding  explosives detection technology at airport checkpoints in part due to  challenges S&T and TSA faced in coordinating research and development  efforts. TSA Has Taken Action to Strengthen Air Cargo Security, but May Face Challenges in Developing a System to Screen All Cargo Transported on Passenger Aircraft

TSA has taken steps to enhance domestic and inbound air cargo security,  but more work remains to strengthen this area of aviation security. TSA officials believe this  program will assist the agency in meeting the requirement to screen 100  percent of cargo transported on passenger aircraft by August 2010, as  mandated by the Implementing Recommendations of the 9/11 Commission  Act of 2007. DHS Has Made Progress in Developing and Implementing the Secure Flight Program, but Challenges Remain That May Hinder the Program Moving Forward

Over the past several years, TSA has faced a number of challenges in  developing and implementing an advanced prescreening system, known as  Secure Flight, which will allow TSA to assume responsibility from air  carriers for comparing domestic passenger information against the No Fly  and Selectee lists. For example, TSA had  taken numerous steps to address previous GAO recommendations related  to strengthening Secure Flight’s development and implementation, as well  as additional steps designed to strengthen the program. Among other  things, TSA developed a detailed, conceptual description of how the  system is to operate, commonly referred to as a concept of operations;  established a cost and schedule baseline; developed security requirements;  developed test plans; conducted outreach with key stakeholders;  published a notice of proposed rulemaking on how Secure Flight is to  operate; worked with CBP to integrate the domestic watch list matching  function with the international watch list matching function currently  operated by CBP; and issued a guide to key stakeholders (e.g., air carriers  and CBP) that defines, among other things, system data requirements. Collectively, these efforts have enabled TSA to more effectively manage  the program’s development and implementation. In February 2008, we reported that TSA had not (1)  developed program cost and schedule estimates consistent with best  practices; (2) fully implemented its risk management plan; (3) planned for  system end-to-end testing in test plans; and (4) ensured that information- security requirements are fully implemented. Crosscutting Issues Have Hindered DHS’s and TSA’s Efforts in Implementing Its Mission and Management Functions

Our work has identified homeland security challenges that cut across  DHS’s and TSA’s mission and core management functions. For example, TSA incorporated risk-based decision  making when making modifications to airport checkpoint screening  procedures, to include modifying procedures based on intelligence  information and vulnerabilities identified through covert testing at airport  checkpoints. However, in April 2007, we reported that TSA’s analyses that  supported screening procedural changes could be strengthened. It may be reproduced and distributed in its entirety without further  permission from GAO.
Why GAO Did This Study

Since its inception in November 2001, the Transportation Security Administration (TSA) has focused much of its efforts on aviation security, and has developed and implemented a variety of programs and procedures to secure the commercial aviation system. TSA funding for aviation security has totaled about $26 billion since fiscal year 2004. This testimony focuses on TSA's efforts to secure the commercial aviation system through passenger screening, strengthening air cargo security, and watch-list matching programs, as well as challenges that remain. It also addresses crosscutting issues that have impeded TSA's efforts in strengthening security. This testimony is based on GAO reports and testimonies issued from February 2004 through July 2008 including selected updates obtained from TSA officials in June and July 2008.

What GAO Found

DHS and TSA have undertaken numerous initiatives to strengthen the security of the nation's commercial aviation system, including actions to address many recommendations made by GAO. TSA has focused its efforts on, among other things, more efficiently allocating, deploying, and managing the Transportation Security Officer (TSO) workforce--formerly known as screeners; strengthening screening procedures; developing and deploying more effective and efficient screening technologies; strengthening domestic air cargo security; and developing a government operated watch-list matching program, known as Secure Flight. For example, in response to GAO's recommendation, TSA developed a plan to periodically review assumptions in its Staffing Allocation Model used to determine TSO staffing levels at airports, and took steps to strengthen its evaluation of proposed procedural changes. TSA also explored new passenger checkpoint screening technologies to better detect explosives and other threats, and has taken steps to strengthen air cargo security, including increasing compliance inspections of air carriers. Finally, TSA has instilled more discipline and rigor into Secure Flight's systems development, including preparing key documentation and strengthening privacy protections. While these efforts should be commended, GAO has identified several areas that should be addressed to further strengthen security. For example, TSA made limited progress in developing and deploying checkpoint technologies due to planning and management challenges. In addition, TSA faces resource and other challenges in developing a system to screen 100 percent of cargo transported on passenger aircraft in accordance with the Implementing Recommendations of the 9/11 Commission Act of 2007. GAO further identified that TSA faced program management challenges in the development and implementation of Secure Flight, including developing cost and schedule estimates consistent with best practices; fully implementing the program's risk management plan; developing a comprehensive testing strategy; and ensuring that information security requirements are fully implemented. A variety of crosscutting issues have affected DHS's and TSA's efforts in implementing its mission and management functions. For example, TSA can more fully adopt and apply a risk-management approach in implementing its security mission and core management functions, and strengthen coordination activities with key stakeholders. For example, while TSA incorporated risk-based decision making when modifying checkpoint screening procedures, GAO reported that TSA's analyses that supported screening procedural changes could be further strengthened. DHS and TSA have strengthened their efforts in these areas, but more work remains.