For each exercise the Coast Guard conducts, an after- action report detailing the objectives, participants, and lessons learned  must be produced within 60 days. Results

		Coordination Framework Is Still Evolving

The framework under which federal agencies would coordinate with state  and local entities to manage a port-terrorism incident is still evolving. However, the finalized  plan is designed to be the primary operational guidance for incident  management and, when fully implemented, will incorporate or supersede  existing federal interagency response plans. However, it is still too early to  determine how well the complete framework will function in coordinating  an effective response to a port-related threat or incident. Our  review of fiscal year 2004 after-action reports and observation of specific  exercises showed that exercise participants encountered seven legal  issues, but exercise participants and agency officials we interviewed did  not recommend statutory changes to address these issues. Ability of participants to coordinate effectively in a command and  control environment—41 percent of the exercises raised concerns  related to command and control, most notably a lack of knowledge or  training in the incident command structure. Lack of knowledge about who has jurisdictional or decision-making  authority—28 percent of the exercises raised concerns with participants’  knowledge about who has jurisdiction or decision-making authority. After-Action Reports Show Problems Related to Timeliness and Completeness

Our review of the Coast Guard’s fiscal year 2004 after-action reports from  port terrorism exercises identified problems with timeliness in completing  the reports and limitations in the information they contained. Not meeting the  60-day requirement can lessen the usefulness of these reports. The Coast Guard has cited several planned actions that may allow for  improved content and quality in after-action reports. The Coast Guard has  several other steps under development to address issues of report content  and completeness, and it is too early to assess the effect these actions will  have. Recommendation for Executive Action

To help ensure that reports on terrorism-related exercises are submitted in  a timely manner that complies with all Coast Guard requirements, we are  making one recommendation, that the Commandant of the Coast Guard  review the Coast Guard’s actions for ensuring timeliness and determine if  further actions are needed. However, CPS has been in place since August 2003,  and timeliness remains a concern. Release of National Incident Management System and draft National Response Plan. Appendix II: Objectives, Scope, and Methodology

The objectives of this report were to (1) describe the emerging framework  under which the federal government coordinates with state and local  entities to address a terrorist incident in a U.S. port; (2) identify the issues,  if any, regarding federal agencies’ legal authority that have emerged from  port security exercises and what statutory actions might address them;   (3) describe the types of operational issues being identified through these  exercises; and (4) identify any management issues related to Coast Guard- developed after-action reports.
Why GAO Did This Study

Seaports are a critical vulnerability in the nation's defense against terrorism. They are potential entry points for bombs or other devices smuggled into cargo ships and ports' often-sprawling nature presents many potential targets for attack. To assess the response procedures that would be implemented in an attack or security incident, officials conduct port-specific exercises. Many federal, state, and local agencies may potentially be involved. The Coast Guard has primary responsibility for coordinating these exercises and analyzing the results. GAO examined (1) the emerging framework for coordinating entities involved in security responses, (2) legal and operational issues emerging from exercises conducted to date, and (3) Coast Guard management of reports analyzing exercises. GAO reviewed reports on 82 exercises from fiscal year 2004 and observed 4 exercises as they were being conducted.

What GAO Found

The framework under which federal agencies would manage a port-terrorism incident is still evolving. The primary guidance for response, the National Response Plan, is in the final stages of approval, and the National Incident Management System, the structure for multiagency coordination, is still being put in place. As a result, it is too early to determine how well the complete framework will function in an actual incident. GAO's review of fiscal year 2004 terrorism-related reports and exercises identified relatively few legal issues, and none of these issues produced recommendations for statutory changes. Most issues have instead been operational in nature and have surfaced in nearly every exercise. They are of four main types: difficulties in sharing or accessing information, inadequate coordination of resources, difficulties in coordinating effectively in a command and control environment, and lack of knowledge about who has jurisdictional or decision-making authority. Reports on the exercises often do not meet the Coast Guard's standards for timeliness or completeness. Sixty-one percent of the reports were not submitted within 60 days of completing the exercise--the Coast Guard standard. The Coast Guard has implemented a new system for tracking the reports, but after a year of use, timeliness remains a concern. The Coast Guard has requirements for what the reports should contain, but 18 percent of the reports did not meet the requirement to assess each objective of the exercise. The Coast Guard has cited several planned actions that may allow for improving completeness. These actions are still in development, and it is too early to determine how much they will help.