TSA Has Made Progress toward Screening 100 Percent of Domestic Cargo Transported on Passenger Aircraft, but Remaining Challenges Highlight the Need for a Contingency Plan

TSA has made progress in meeting the 9/11 Commission Act air cargo  screening mandate as it applies to domestic cargo, and has taken several  key steps in this effort, such as increasing the amount of domestic cargo  subject to screening, creating a voluntary program—the CCSP—to allow  screening to take place at various points along the air cargo supply chain,  and taking steps to test air cargo screening technologies, among other  actions. However, TSA faces several challenges in fully developing and  implementing a system to screen 100 percent of domestic air cargo. For  example, shipper participation in the CCSP has been lower than targeted  by TSA. In addition, there is currently no technology approved or qualified  by TSA to screen ULD pallets or containers, and TSA is working to  complete qualification testing of several air cargo screening technologies  to provide reasonable assurance of their effectiveness. TSA is conducting outreach efforts to air cargo industry  stakeholders. Lower-Than-Targeted Levels of Shipper Participation in the CCSP Could Affect TSA Progress in Meeting the Screening Mandate

Although TSA is relying on the voluntary participation of industry  stakeholders to meet the screening mandate, some stakeholders have not  participated in the program at targeted levels. At these rates, it is questionable whether TSA’s screening system  will achieve 100 percent screening of domestic cargo by August 2010  without impeding the flow of commerce. However, TSA  does not have a mechanism to verify the accuracy of the data reported by  the industry. In contrast, TSA’s policies and procedures require all cargo  flown on domestic flights to be screened at 75 percent, effective May 1,  2010. Developing a contingency plan  that addresses the participation and technology challenges that could  impede the screening program’s success, and identifies alternate or  additional security measures to implement in case the program is unable  to effectively facilitate the screening of sufficient amounts of cargo prior  to reaching air carriers at the airport, could better position TSA to meet  the requirements in the air cargo screening mandate. TSA Has Made Progress but Faces Several Challenges and Lacks a Plan for Achieving 100 Percent Screening of Inbound Cargo

TSA has made progress toward meeting the screening mandate as it  applies to inbound cargo by taking steps to increase the percentage of  inbound air cargo that has undergone screening. This approach focuses on harmonizing its security standards with  those of other nations. TSA Faces Several Challenges in Meeting the Screening Mandate as It Applies to Inbound Cargo

While TSA has taken steps to increase the percentage of inbound cargo  that has undergone screening, the agency faces several challenges in  meeting the mandate. However, these estimates are based on the current  screening requirements of certain countries and are not based on actual  data collected from air carriers or other entities, such as foreign  governments, on what percentage of cargo is actually being screened. While TSA officials  have stated that the agency does not expect to meet the mandate as it  applies to inbound cargo by the August 2010 deadline, TSA has not  provided estimates of when the mandate will be met or when steps toward  its achievement will be completed. For example, TSA  might benefit from developing a contingency plan should it become clear  that participation levels are not sufficient to achieve the screening  mandate without disruptions to the flow of commerce. Establishing  milestones for completion of a staffing study to determine the number of  inspectors needed to oversee CCSP participants could provide results that  should better position TSA to obtain these inspection resources and help  ensure that air carriers and CCSFs comply with TSA requirements. Recommendations for Executive Action

To enhance efforts to secure the air cargo transportation system and  establish a system to screen 100 percent of air cargo transported on  passenger aircraft, we are recommending that the Administrator of TSA  take the following five actions:    Establish milestones for the completion of TSA’s staffing study to  assist in determining the resources necessary to provide CCSP  oversight.
Why GAO Did This Study

Billions of pounds of cargo are transported on U.S. passenger flights annually. The Department of Homeland Security's (DHS) Transportation Security Administration (TSA) is the primary federal agency responsible for securing the air cargo system. The 9/11 Commission Act of 2007 mandated DHS to establish a system to screen 100 percent of cargo flown on passenger aircraft by August 2010. As requested, GAO reviewed TSA's progress in meeting the act's screening mandate, and any related challenges it faces for both domestic (cargo transported within and from the United States) and inbound cargo (cargo bound for the United States). GAO reviewed TSA's policies and procedures, interviewed TSA officials and air cargo industry stakeholders, and conducted site visits at five U.S. airports, selected based on size, among other factors.

What GAO Found

TSA has made progress in meeting the air cargo screening mandate as it applies to domestic cargo, but faces challenges in doing so that highlight the need for a contingency plan. TSA has, for example, increased required domestic cargo screening levels from 50 percent in February 2009 to 75 percent in May 2010, increased the amount of cargo subject to screening by eliminating many domestic screening exemptions, created a voluntary program to allow screening to take place at various points in the air cargo supply chain, conducted outreach to familiarize industry stakeholders with screening requirements, and tested air cargo screening technologies. However, TSA faces several challenges in developing and implementing a system to screen 100 percent of domestic air cargo, and it is questionable, based on reported screening rates, whether 100 percent of such cargo will be screened by August 2010 without impeding the flow of commerce. For example, shipper participation in the voluntary screening program has been lower than targeted by TSA. In addition, TSA has not completed a staffing study to determine the number of inspectors needed to oversee the screening program. Because it is unclear how many industry stakeholders will join the program, TSA could benefit from establishing milestones to complete a staffing study to help ensure that it has the resources it needs under different scenarios. Moreover, TSA faces technology challenges that could affect its ability to meet the screening mandate. Among these, there is no technology approved by TSA to screen large pallets or containers of cargo, which suggests the need for alternative approaches to screening such cargo. TSA also does not verify the self-reported data submitted by screening participants. Several of these challenges suggest the need for a contingency plan, in case the agency's current initiatives are not successful in meeting the mandate without impeding the flow of commerce. However, TSA has not developed such a plan. Addressing these issues could better position TSA to meet the mandate. TSA has made some progress in meeting the screening mandate as it applies to inbound cargo by taking steps to increase the percentage of screened inbound cargo--including working to understand the screening standards of other nations and coordinating with them to mutually strengthen their respective security efforts. Nevertheless, challenges remain and TSA does not expect to achieve 100 percent screening of inbound air cargo by the mandated August 2010 deadline. TSA officials estimate that air carriers are meeting the current mandated screening level of 50 percent of inbound cargo based on estimates rather than on actual data as required by law. Thus, TSA cannot verify if mandated screening levels are being met. In addition, the agency has not determined how it will eventually meet the screening mandate as it applies to inbound cargo; developing such a plan could better position TSA to assess its progress toward meeting the mandate.