	Background

Passenger and freight rail services help move people and goods through  the transportation system, which helps the economic well-being of the  United States. Some security challenges are common to passenger  and freight rail systems; others are unique to the type of rail system. Common challenges include the funding of security improvements, the  interconnectivity of the rail system, and the number of stakeholders  involved in rail security. The unique challenges include the openness of  mass transit systems and the transport of hazardous materials by freight  railroads. Passenger and Freight Rail Systems Also Face Unique Challenges

In addition to the common security challenges that face both passenger  and rail systems, there are some challenges that are unique to the type of  rail system. The size and diversity of the freight rail system make it difficult to  adequately secure. 2.). Rail Stakeholders Have Taken Steps to Improve Security

Since September 11, passenger and freight rail providers have been  working to strengthen security. Although security was a priority before  September 11, the terrorist attacks elevated the importance and urgency of  transportation security for passenger and rail providers. According to  representatives from the Association of American Railroads, Amtrak, and  transit agencies, passenger and freight rail providers have implemented  new security measures or increased the frequency or intensity of existing  activities, including:    Conducted vulnerability or risk assessments: Many passenger and  freight rail providers conducted assessments of their systems to identify  potential vulnerabilities, critical infrastructure or assets, and corrective  actions or needed security improvements. The federal government has also acted to enhance rail security. In the wake of September 11,  Congress created TSA and gave it responsibility for the security of all  modes of transportation. 1.). Risk Management and Coordination Key to Enhancing Security

Although steps have been taken to enhance passenger and freight security  since September 11, the recent terrorist attack on a rail system in Spain  naturally focuses our attention on what more could be done to secure the  nation’s rail systems. We have advocated using a risk management approach to guide federal  programs and responses to better prepare against terrorism and other  threats and to better direct finite national resources to areas of highest  priority. In particular,  the National Strategy for the Physical Protection of Critical Infrastructures  and Key Assets notes that protecting critical infrastructure, such as the  transportation system, “requires a unifying organization, a clear purpose, a  common understanding of roles and responsibilities, accountability, and a  set of well-understood coordinating processes.”
We reported in June 2003 that the roles and responsibilities of TSA and  DOT in transportation security, including rail security, have yet to be  clearly delineated, which creates the potential for duplicating or  conflicting efforts as both entities work to enhance security. Passenger and freight rail  stakeholders have acted to enhance security, but more work is needed.
Why GAO Did This Study

Passenger and freight rail services are important links in the nation's transportation system. Terrorist attacks on passenger and/or freight rail services have the potential to cause widespread injury, loss of life, and economic disruption. The recent terrorist attack in Spain illustrates that rail systems, like all modes of transportation, are targets for attacks. GAO was asked to summarize the results of its recent reports on transportation security that examined (1) challenges in securing passenger and freight rail systems, (2) actions rail stakeholders have taken to enhance passenger and freight rail systems, and (3) future actions that could further enhance rail security.

What GAO Found

Securing the passenger and freight rail systems are fraught with challenges. Some of these challenges are common to passenger and freight rail systems, such as the funding of security improvements, the interconnectivity of the rail system, and the number of stakeholders involved in rail security. Other challenges are unique to the type of rail system. For example, the open access and high ridership of mass transit systems make them both vulnerable to attack and difficult to secure. Similarly, freight railroads transport millions of tons of hazardous materials each year across the United States, raising concerns about the vulnerability of these shipments to terrorist attack. Passenger and freight rail stakeholders have taken a number of steps to improve the security of the nation's rail system since September 11, 2001. Although security received attention before September 11, the terrorist attacks elevated the importance and urgency of transportation security for passenger and rail providers. Consequently, passenger and freight rail providers have implemented new security measures or increased the frequency or intensity of existing activities, including performing risk assessments, conducting emergency drills, and developing security plans. The federal government has also acted to enhance rail security. For example, the Federal Transit Administration has provided grants for emergency drills and conducted security assessments at the largest transit agencies, among other things. Implementation of risk management principles and improved coordination could help enhance rail security. Using risk management principles can help guide federal programs and responses to better prepare against terrorism and other threats and to better direct finite national resources to areas of highest priority. In addition, improved coordination among federal entities could help enhance security efforts across all modes, including passenger and freight rail systems. We reported in June 2003 that the roles and responsibilities of the Transportation Security Administration (TSA) and the Department of Transportation (DOT) in transportation security, including rail security, have yet to be clearly delineated, which creates the potential for duplicating or conflicting efforts as both entities work to enhance security.