Intelligence Information and Industry Characteristics Challenge TSA’s Ability to Identify and Assess Threats and Vulnerabilities and Communicate with General Aviation Stakeholders

TSA and other federal agencies have not conducted an overall, systematic  assessment of threats to, or vulnerabilities of, general aviation to  determine how to better prepare against terrorist threats. In addition, the FBI stated that intelligence indicates  that terrorists have considered using general aviation aircraft in the past to  conduct attacks. To better focus its efforts and resources, TSA intends to  implement a risk management approach to assess the threats and  vulnerabilities of general aviation aircraft and airports, and conduct on- site vulnerability assessments only at those airports the agency determines  to be nationally critical. However, TSA has not yet developed a plan with  specific milestones for implementing these tools and assessments. Despite these plans, however, TSA has not developed an implementation  plan with specific milestones for conducting its risk management efforts. For example,  TSA has developed a regulation governing background checks of foreign  candidates for flight training at U.S. flight schools and issued security  guidelines for general aviation airports. FAA, in coordination with TSA  and other federal agencies, has implemented airspace restrictions over  certain landmarks and events, among other things, to guard against  potential terrorist threats. We found limitations in the monitoring of  these flight-training programs. Nonfederal Stakeholders Have Taken Steps to Strengthen General Aviation Security

Nonfederal stakeholders with an interest in general aviation security— including industry associations, state governments, general aviation  airport operators (owners and managers), and users of general aviation  airports and aircraft—have taken steps to strengthen the security of  general aviation airports and operations. Industry associations have  developed and provided recommendations on best practices for enhancing  security around general aviation airports, have partnered with the federal  government to develop federally endorsed security guidelines, and have  sponsored and provided training for their own voluntary security  programs. Some states also have suggested best practices, established  regulations, and provided funding to general aviation airports to reduce  security vulnerabilities. For example:    The Aircraft Owners and Pilots Association, working with TSA,  established and operates the Airport Watch program. While the federal government can  provide guidance and some amount of funding for security enhancements,  long-term success in securing general aviation depends on a partnership  among the federal government, state governments, and the general  aviation industry. In  addition, FAA has not documented its process for reviewing and  revalidating the need for continuing security-related flight restrictions on  airspace that are established for indefinite periods. Appendix I: Objectives, Scope, and Methodology

To determine what steps the federal government has taken to identify and  assess threats to and vulnerabilities of general aviation, and communicate  that information to stakeholders, we interviewed individuals in the  Transportation Security Administration’s (TSA) Office of Transportation  Security Policy, Office of Operations Policy, and General Aviation  Operations and Inspections Office on TSA’s role in enhancing general  aviation security. To determine what steps the federal government has taken to strengthen  general aviation security, and what, if any, challenges the government  faces in further enhancing security, we obtained and analyzed information  from Federal Aviation Administration (FAA), including data on the  number of flight restrictions that affect general aviation and the amount of  federal funding that has been spent on enhancing general aviation security. 2. 3.
Why GAO Did This Study

Federal intelligence agencies have reported that in the past, terrorists have considered using general aviation aircraft (all aviation other than commercial and military) for terrorist acts, and that the September 11th terrorists learned to fly at general aviation flight schools. The questions GAO answered regarding the status of general aviation security included (1) What actions has the federal government taken to identify and assess threats to, and vulnerabilities of, general aviation; and communicate that information to stakeholders? (2) What steps has the federal government taken to strengthen general aviation security, and what, if any, challenges does the government face; and (3) What steps have non-federal stakeholders taken to enhance the security of general aviation?

What GAO Found

The federal and state governments and general aviation industry all play a role in securing general aviation operations. While the federal government provides guidance, enforces regulatory requirements, and provides some funding, the bulk of the responsibility for assessing and enhancing security falls on airport operators. Although TSA has issued a limited threat assessment of general aviation, and the FBI identified that terrorists have considered using general aviation to conduct attacks, a systematic assessment of threats has not been conducted. In addition, to assess airport vulnerabilities, TSA plans to issue a self-assessment tool for airport operators' use, but it does not plan to conduct on-site vulnerability assessments at all general aviation airports due to the cost and vastness of the general aviation network. Instead, TSA intends to use a systematic and analytical risk management process, which is considered a best practice, to assess the threats and vulnerabilities of general aviation. However, TSA has not yet developed an implementation plan for its risk management efforts. TSA and the Federal Aviation Administration (FAA) have taken steps to address security risks to general aviation through regulation and guidance, but still face challenges in their efforts to further enhance security. For example, TSA has promulgated regulations requiring background checks of foreign candidates for U.S. flight training schools and has issued security guidelines for general aviation airports. However, we found limitations in the process used to conduct compliance inspections of flight training programs. In addition, FAA, in coordination with TSA and other federal agencies, has implemented airspace restrictions over certain landmarks and special events. However, FAA has not established written policies or procedures for reviewing and revalidating the need for flight restrictions that limit access to airspace for indefinite periods of time and could negatively affect the general aviation industry. Non-federal general aviation stakeholders have partnered with the federal government and have individually taken steps to enhance general aviation security. For example, industry associations developed best practices and recommendations for securing general aviation, and have partnered with TSA to develop security initiatives such as the Airport Watch Program, similar to a neighborhood watch program. Some state governments have also provided funding for enhancing security at general aviation airports, and many airport operators GAO surveyed took steps to enhance security such as installing fencing and increasing police patrols.