TSA Has Developed Program Application Guidance to Help Improve Transparency of Its Process and Assist Airports in Completing Their Applications

TSA has developed guidance to assist airport operators in completing  their SPP applications, as we recommended in December 2012. Specifically, in December 2012, we reported that TSA had developed  some resources to assist SPP applicants, but it had not provided  guidance on its application and approval process to assist airports. Further, in December 2012, we found that airport operators who  completed the applications generally stated that they faced difficulties in  doing so and that additional guidance would have been helpful. Thus, we recommended that TSA develop guidance that clearly (1) states  the criteria and process that TSA is using to assess whether participation  in the SPP would compromise security or detrimentally affect the cost- efficiency or the effectiveness of the screening of passengers or property  at the airport, (2) states how TSA will obtain and analyze cost information  regarding screening cost-efficiency and effectiveness and the implications  of not responding to the related application questions, and (3) provides  specific examples of additional information airports should consider  providing to TSA to help assess an airport’s suitability for the SPP. TSA concurred with our recommendation and, in January 2014, we  reported that TSA had taken actions to address it. As we reported in January 2014, these actions  address the intent of our recommendation. Performance between SPP and Non-SPP Airports Varied; TSA Recently Developed a Mechanism to Monitor Private versus Federal Screener Performance

In our December 2012 report, we analyzed screener performance data for  four measures and found that there were differences in performance  between SPP and non-SPP airports, and those differences could not be  exclusively attributed to the use of either federal or private screeners. However,  TSA officials stated at the time that they did not plan to conduct similar  analyses in the future, and instead, they were using across-the-board  mechanisms of both private and federal screeners, such as the  Scorecard, to assess screener performance across all commercial  airports. However, in December 2012, we found that the Scorecard and PMR did  not provide a complete picture of screener performance at SPP airports  because, while both mechanisms provided a snapshot of private screener  performance at each SPP airport, this information was not summarized  for the SPP as a whole or across years, which made it difficult to identify  changes in performance. We concluded that  monitoring private screener performance in comparison with federal  screener performance was consistent with the statutory requirement that  TSA enter into a contract with a private screening company only if the  Administrator determines and certifies to Congress that the level of  screening services and protection provided at an airport under a contract  will be equal to or greater than the level that would be provided at the  airport by federal government personnel. TSA concurred with the recommendation, and has taken actions to  address it. Specifically, in January 2013, TSA issued its first SPP Annual  Report. Further, in  September 2013, the TSA Assistant Administrator for Security Operations  signed an operations directive that provides internal guidance for  preparing the SPP Annual Report, including the requirement that the SPP  PMO must annually verify that the level of screening services and  protection provided at SPP airports is equal to or greater than the level  that would be provided by federal screeners. TSA Continues to Address Limitations in the Methodology for Comparing the Costs of SPP and Non-SPP Screening Services

TSA has faced challenges in accurately comparing the costs of screening  services at SPP and non-SPP airports. In 2007, TSA estimated that SPP  airports would cost about 17 percent more to operate than airports using  federal screeners. In our January 2009 report we noted strengths in the  methodology’s design, but also identified seven limitations in TSA’s  methodology that could affect the accuracy and reliability of cost  comparisons, and its usefulness in informing future management  decisions. TSA generally concurred with our findings  and recommendation. In  the update, TSA estimated that SPP airports would cost 3 percent more  to operate in 2011 than airports using federal screeners. In March 2011,  we found that TSA had also taken actions that partially addressed the  four remaining limitations related to cost, but needed to take additional  actions or provide additional documentation. In July 2014, TSA officials  stated they are continuing to make additional changes to the cost  estimation methodology and we are continuing to monitor TSA’s progress  in this area through ongoing work.
Why GAO Did This Study

TSA maintains a federal workforce to screen passengers and baggage at the majority of the nation's commercial airports, but it also oversees a workforce of private screeners at airports who participate in the SPP. The SPP allows commercial airports to apply to have screening performed by private screeners, who are to provide a level of screening services and protection that equals or exceeds that of federal screeners.
This testimony addresses the extent to which TSA (1) provides guidance to airport operators for the SPP application process, (2) assesses and monitors the performance of private versus federal screeners, and (3) compares the costs of federal and private screeners. This statement is based on reports and a testimony GAO issued from January 2009 through January 2014.

What GAO Found

Since GAO's December 2012 report on the Screening Partnership Program (SPP), the Transportation Security Administration (TSA) has developed guidance for airport operators applying to the SPP. In December 2012, GAO found that TSA had not provided guidance to airport operators on its SPP application and approval process, which had been revised to reflect statutory requirements. Further, airport operators GAO interviewed at the time identified difficulties in completing the revised application, such as obtaining cost information requested in the application. GAO recommended that TSA develop application guidance and TSA concurred. In December 2012, TSA updated its SPP website with general application guidance and a description of TSA's assessment criteria and process. The new guidance addresses the intent of GAO's recommendation.
TSA has also developed a mechanism to regularly monitor private versus federal screener performance. In December 2012, TSA officials stated that they planned to assess overall screener performance across all commercial airports instead of comparing the performance of SPP and non-SPP airports as they had done previously. Also in December 2012, GAO reported differences between the performance at SPP and non-SPP airports based on screener performance data. In addition, GAO reported that TSA's across-the-board mechanisms did not summarize information for the SPP as a whole or across years, making it difficult to identify changes in private screener performance. GAO concluded that monitoring and comparing private and federal screener performance were consistent with the statutory provision authorizing TSA to contract with private screening companies. As a result, GAO recommended that TSA develop a mechanism to regularly do so. TSA concurred with the recommendation and in January 2013, issued its SPP Annual Report , which provided an analysis of private versus federal screener performance. In September 2013, TSA provided internal guidance requiring that the report annually verify that the level of screening services and protection provided at SPP airports is equal to or greater than the level that would be provided by federal screeners. These actions address the intent of GAO's recommendation.
TSA has faced challenges in accurately comparing the costs of screening services at SPP and non-SPP airports. In 2007, TSA estimated that SPP airports cost about 17 percent more to operate than airports using federal screeners. In January 2009, GAO noted strengths in TSA's methodology, but also identified seven limitations that could affect the accuracy and reliability of cost comparisons. GAO recommended that TSA update its analysis to address the limitations. TSA generally concurred with the recommendation. In March 2011, TSA described efforts to address the limitations and a revised cost comparison estimating that SPP airports would cost 3 percent more to operate in 2011 than airports using federal screeners. In March 2011, GAO found that TSA had taken steps to address some of the limitations, but needed to take additional actions. In July 2014, TSA officials stated that they are continuing to make additional changes to the cost estimation methodology and GAO is continuing to monitor TSA's progress in this area through ongoing work.

What GAO Recommends

GAO has made several recommendations since 2009 to improve SPP operations and oversight, which GAO has since closed as implemented based on TSA actions to address them.