	Introduction

This report (1) provides background information and discusses potential issues for Congress on the topic of portsecurity, which has emerged as a significant part of the overall debate on U.S. homelandsecurity. (2) The terroristattacks of September 11, 2001 heightened awareness about the vulnerability to terrorist attack ofU.S. 107-295 on November 25, 2002. There is continuing debate about whether current efforts to improve port security areadequate in addressing the threat. While many agree that Coast Guard and CBP initiatives to addressthe threat are strengthening the security of the maritime transportation system, they contend thatthese initiatives represent only a framework for building a maritime security regime, and thatsignificant gaps in security still remain. The U.S. maritime system includesmore than 300 sea and river ports with more than 3,700 cargo and passenger terminals and more than1,000 harbor channels spread along thousands of miles of coastline. (8) Most ships calling at U.S.ports are foreign owned and foreign crewed; less than 3% of U.S. overseas trade is carried onU.S.-flag vessels. Container ships are a growingsegment of maritime commerce -- and the focus of much of the attention on seaport security. (10) 
More than 9 million cargo containers enter U.S. sea ports each year. Only a small portion have theircontents physically inspected by CBP. Among other things, they are concerned that terrorists could:
use commercial cargo containers to smuggle terrorists, nuclear, chemical, orbiological weapons, components thereof, or other dangerous materials into the UnitedStates;
seize control of a large commercial cargo ship and use it as a collision weaponfor destroying a bridge or refinery located on the waterfront;
sink a large commercial cargo ship in a major shipping channel, therebyblocking all traffic to and from the port;
attack a large ship carrying a volatile fuel (such as liquefied natural gas) anddetonate the fuel so as to cause a massive in-port explosion;
attack an oil tanker in a port or at an offshore discharge facility (19) so as to disrupt the worldoil trade and cause large-scale environmental damage;
seize control of a ferry (which can carry hundreds of passengers) or a cruiseship (which can carry more than 3,000 passengers, of whom about 90% are usually U.S. citizens)and threaten the deaths of the passengers if a demand is not met;
attack U.S. Navy ships in an attempt to kill U.S. military personnel, damageor destroy a valuable U.S. military asset, and (in the case of nuclear-powered ships) cause aradiological release. TheCoast Guard and CBP are the two federal agencies with the strongest presence at seaports. TheBureau of Customs and Border Protection (CBP) is the federal agency with principal responsibilityfor inspecting cargoes, including cargo containers, that commercial ships bring into U.S. ports andfor the examination and inspection of ship crews and cruise ship passengers for ships arriving in U.S.ports from any foreign port. Port Security Initiatives by Federal Agencies

Coast Guard. In response to the terrorist attacksof September 11, 2001, the Coast Guard created the largest port-security operation since World WarII. The former 24-hour advance Notice of Arrival (NOA) has been extendedto a 96-hour NOA. The Coast Guard has also developed the concept of maritime domain awareness (MDA). Among the programs CBP has initiated to counter the terrorist threat are the Container SecurityInitiative (CSI) and the Customs-Trade Partnership Against Terrorism (C-TPAT). (38) 
C-TPAT, initiated in April 2002, offers importers expedited processing of cargo if theycomply with CBP guidelines for securing their entire supply chain. Transportation Security Administration. The Trade Act of 2002 ( P.L. The GAO investigated how the CSI and C-TPAT programs were being implemented andfound several shortcomings that need correction. (55) The GAO found that C-TPAT participants were benefitting fromreduced scrutiny of their imported cargo after they had been certified into the program but beforeCBP had validated that the participants were indeed carrying out the promised security measures. The GAO also found that not all containers that CBP had targeted for inspection at the overseasloading port were being inspected by the host customs administration.
The terrorist attacks of September 11, 2001 heightened awareness about the vulnerability toterrorist attack of all modes of transportation. Port security has emerged as a significant part of theoverall debate on U.S. homeland security. The overarching issues for Congress are providingoversight on current port security programs and making or responding to proposals to improve portsecurity.
The U.S. maritime system consists of more than 300 sea and river ports with more than 3,700cargo and passenger terminals. However, a large fraction of maritime cargo is concentrated at a fewmajor ports. Most ships calling at U.S. ports are foreign owned with foreign crews. Container shipshave been the focus of much of the attention on seaport security because they are seen as vulnerableto terrorist infiltration. More than 9 million marine containers enter U.S. ports each year. While theBureau of Customs and Border Protection (CBP) analyzes cargo and other information to targetspecific shipments for closer inspection, it physically inspects only a small fraction of the containers.
The Coast Guard and CBP are the federal agencies with the strongest presence in seaports. In response to September 11, 2001, the Coast Guard created the largest port-security operation sinceWorld War II. The Coast Guard has advanced its 24-hour Notice of Arrival (NOA) for ships to a96-hour NOA. The NOA allows Coast Guard officials to select high risk ships for boarding upontheir arrival at the entrance to a harbor. CBP has also advanced the timing of cargo information itreceives from ocean carriers. Through the Container Security Initiative (CSI) program, CBPinspectors pre-screen U.S.-bound marine containers at foreign ports of loading. The Customs TradePartnership Against Terrorism (C-TPAT) offers importers expedited processing of their cargo if theycomply with CBP measures for securing their entire supply chain.
To raise port security standards, Congress passed the Maritime Transportation Security Actof 2002 ( P.L. 107-295 ) in November 2002. The focus of debate in Congress has been about whethercurrent efforts to improve port security are adequate in addressing the threat. While many agree thatCoast Guard and CBP programs to address the threat are sound, they contend that these programsrepresent only a framework for building a maritime security regime, and that significant gaps insecurity still remain. The GAO has investigated how the CSI and C-TPAT programs are beingimplemented and found several shortcomings that need correction. The GAO found that C-TPATparticipants were benefitting from reduced scrutiny of their imported cargo after they had beencertified into the program but before CBP had validated that the participants were indeed carryingout the promised security measures. The GAO also found that not all containers that CBP hadtargeted for inspection at the overseas loading port were being inspected by the host customsadministration. This report will be updated periodically.
Key Policy Staff: Port and Maritime Security