In the post-9/11 context, this pastoral image of GA has been tarnished to a degree by knowledge that the 9/11 hijackers trained in small general aviation aircraft in the United States, and amid lingering concerns that GA aircraft could be used to carry out a future terrorist attack. While some recent high-profile breaches of GA security have pointed to persisting vulnerabilities, and limited intelligence information may suggest a possible terrorist "fixation" on using aircraft to attack U.S. interests, GA aircraft vary considerably with regard to the risks they pose. Policymakers have received mixed signals about the relative risk posed by general aviation. Based on this analysis, possible approaches and ongoing initiatives to enhance GA security are discussed. In a sense, general aviation (GA) is a catch-all phrase that encompasses about 54% of all civil aviation activity within the United States, measured in terms of overall airport flight operations. 107-71 ) originally called on the Department of Justice to implement a program to conduct background checks of all alien applicants seeking flight training in the United States in aircraft weighing more than 12,500 pounds and mandated security training for flight school employees. While the threat posed by light GA aircraft carrying conventional explosives is limited by the size and speed of these aircraft, some experts argue that small aircraft may pose a significant threat if used as a platform to launch a chemical, biological, radiological, or nuclear (CBRN) attack over a densely populated area. Because the various sectors of GA appear to pose distinct threats, risk mitigation strategies arguably should be tailored to some degree to address the specific security threats posed by different sectors of the GA industry as well as the specific nature of potential security vulnerabilities that also vary across different types of aircraft and flight operations. Possible Options to Mitigate the Security Risks of General Aviation

A variety of options exist for mitigating security risks posed by GA aircraft and flight operations, many of which have been implemented or are currently under development or consideration. The FY2006 Department of Homeland Security Appropriations Act ( P.L. 109-90 ) required the DHS to examine the vulnerability of high-risk areas and facilities to possible attack from GA aircraft. 110-53 ) has included a requirement for the TSA to develop and implement a standardized threat and vulnerability assessment program for general aviation airports, and implement that assessment program "on a risk-managed basis" at GA airports. If deemed feasible, the bill authorizes the implementation of such a grant program. Due to the diversity of GA airports and the kinds of operations that they accommodate, the risk picture is likely to vary widely. Surveillance and Monitoring

Surveillance and monitoring of GA operations are a challenge. However, biometrics may play a more significant role at the GA operator level of security where they could be implemented to control access to operator facilities such as aircraft storage and maintenance hangars. Background Checks and Vetting

Because GA airports must maintain a level of reasonable accessibility to facilitate the freedom of movement by air and air commerce, surveillance, access controls, and physical security measures to protect aircraft and facilities, if needed, must be designed to accommodate a diverse set of legitimate airfield uses. Specifically, the TSA has proposed requiring that both GA reliever airports, which relieve congestion from major commercial airports, and GA airports that regularly serve scheduled commuter flights and public charter operations implement a security program. Vetting and Tracking GA Flights at the U.S. A provision of the Implementing the 9/11 Commission Recommendations Act of 2007 ( P.L. These security-related airspace restrictions have been highly contentious because: they have a direct impact on air commerce and the freedom of movement by air; the potential for airspace violations has significant repercussions for both professional and private pilots; surveillance, airspace protection, and enforcement of airspace restrictions can be costly and resource intensive, and the effectiveness of some of these airspace restrictions has been questioned by the GA community and aviation security experts.
General aviation (GA)—a catch-all category that includes about 54% of all civilian aviation activity within the United States—encompasses a wide range of airports, aircraft, and flight operations. Because GA plays a small but important role in the U.S. economy, improving upon GA security without unduly impeding air commerce or limiting the freedom of movement by air remains a significant challenge. However, policymakers have received mixed signals about the relative security risk posed by GA, due to its diversity and a general lack of detailed information regarding the threat and vulnerability of various GA operations. While some recent high-profile breaches of GA security point to persisting vulnerabilities and limited intelligence information suggest a continued terrorist interest in using GA aircraft, it is evident that GA airports, aircraft, and operations vary considerably with regard to security risk. While the small size and slow speed of most GA aircraft significantly limit the risk they pose, some experts still fear that they could be used as a platform for a chemical, biological, radiological, or nuclear attack. Certain sectors of GA, such as crop dusters and larger business aircraft, present more specific risks because of their unique capabilities and aircraft characteristics.
Because various segments of GA differ significantly in terms of their perceived risk, mitigation, strategies should arguably be tailored to some degree based on risk. Based on an analysis of risk, a variety of options exist for mitigating security risks specific to GA airports and flight operations. These include surveillance and monitoring; airport access controls; background checks and vetting of pilots, airport workers, and others having access to GA facilities and aircraft; and physical protections for airports and aircraft. Steps may also be taken to address unique security risks in agricultural aviation, at flight schools, and among business and charter operators. The TSA has proposed rulemaking designed to strengthen security of operations involving GA aircraft weighing more than 12,500 pounds. The rules also seek to establish security programs for GA airports in major metropolitan areas as well as those that have regular scheduled commuter flights and public charter flights. Besides these steps to enhance GA security at airport and operator sites, homeland security efforts since 9/11 have focused extensively on restricting access to airspace around sensitive locations and, more recently, stepping up monitoring and inspections of international GA flights entering the United States. Airspace restrictions imposed on GA aircraft have been highly contentious because they have a direct impact on the freedom of movement by air, they are costly and resource intensive to implement effectively, and their effectiveness in preventing terrorist attacks has been questioned by some.
GA security has been a topic of continued interest to Congress. The FY2006 Department of Homeland Security Appropriations Act (P.L. 109-90) required the DHS to examine the vulnerability of high-risk sites to possible terrorist attacks using GA aircraft. The Implementing the 9/11 Commission Recommendations Act of 2007 (P.L. 110-53), enacted in August 2007, requires the development and implementation of a standardized risk assessment program at GA airports; establishes a grant program for enhancing security at GA airports, if such a program is deemed feasible; and requires operators of GA aircraft to provide notification and passenger information to the United States Customs and Border Protection (CBP) prior to entering U.S. airspace. Also, in the 110th Congress, various Members have urged the TSA to step up its surveillance of GA operations, particularly operations of corporate and private jets. This report will be updated as needed.