To address these and other  weaknesses, ATSA created the Transportation Security Administration  and established security requirements for the new agency with mandated  deadlines. As of  September 2001, FAA had implemented some of these recommendations  and was addressing others, but its progress was often slow. Legislation Transferred Most Aviation Security Responsibilities to TSA

ATSA defined TSA’s primary responsibility as ensuring security in all  modes of transportation. Since September 2001, Multiple Initiatives Have Increased Aviation Security

Over the past 2 years, TSA and FAA have taken major steps to increase  aviation security. FAA has focused its efforts on enhancing the security of the  nation’s air traffic control systems and facilities. 2);   hired and deployed more than 20,000 individuals to screen all checked    has been using explosives detection systems or explosives trace detection  equipment to screen about 90 percent of all checked baggage as of  December 31, 2002;   has been using alternative means such as canine teams, hand searches,  and passenger-bag matching to screen the remaining checked baggage; confiscated more than 4.8 million prohibited items (including firearms,  knives, and incendiary or flammable objects) from passengers; and   has made substantial progress in expanding the Federal Air Marshal  Service. These concerns about the system will  need to be addressed as it moves toward implementation. Potential Vulnerabilities Remain in Several Aviation Sectors

Although TSA has focused much effort and funding on ensuring that  bombs and other threat items are not carried onto commercial aircraft by  passengers or in their luggage, vulnerabilities remain, according to  aviation experts, TSA officials, and others. In particular, these  vulnerabilities affect air cargo, general aviation, and airport perimeter  security. TSA has reported that an estimated 12.5 million tons of cargo are  transported each year—9.7 million tons on all-cargo planes and 2.8 million  tons on passenger planes. Aviation Security Poses Longer-Term Management and Organizational Challenges

TSA’s efforts to strengthen and sustain aviation security face several  longer-term challenges in the areas of risk management, funding,  coordination, strategic human capital management, and building a results- oriented organization. We have advocated the use of a risk  management approach to guide federal programs and responses to better  prepare for and withstand terrorist threats, and we have recommended  that TSA use this approach to strengthen security in aviation as well as in  other transportation modes. Building a Results- Oriented Organization

For TSA to sustain enhanced aviation security over the long term, it will be  important for the agency to continue to build a results-oriented culture  within the new Department of Homeland Security. Prohibits the use of funds authorized in this act for the Computer Assisted  Passenger Prescreening System (CAPPS II) until GAO has reported to the  Committees on Appropriations that certain requirements have been met,  including (1) the existence of a system of due process by which  passengers considered to pose a threat may appeal their delay or  prohibition from boarding a flight; (2) that the underlying error rate of  databases will not produce a large number of false positives that will result  in a significant number of passengers being treated mistakenly or security  resources being diverted; (3) that TSA has stressed-tested and  demonstrated the efficacy and predictive accuracy of all search tools in  CAPPS II; and (4) that the Secretary has established an internal oversight  board to monitor the manner in which CAPPS II is being developed and  prepared. Aviation Security: Terrorist Acts Illustrate Severe Weaknesses in  Aviation Security. Aviation Security: Progress Being Made, but Long-Term Attention Is  Needed. Major Management Challenges and Program Risks: Department of  Homeland Security.
Why GAO Did This Study

In the 2 years since the terrorist attacks of September 11, 2001, the security of our nation's civil aviation system has assumed renewed urgency, and efforts to strengthen aviation security have received a great deal of congressional attention. On November 19, 2001, the Congress enacted the Aviation and Transportation Security Act (ATSA), which created the Transportation Security Administration (TSA) within the Department of Transportation (DOT) and defined its primary responsibility as ensuring security in aviation as well as in other modes of transportation. The Homeland Security Act, passed on November 25, 2002, transferred TSA to the new Department of Homeland Security, which assumed overall responsibility for aviation security. GAO was asked to describe the progress that has been made since September 11 to strengthen aviation security, the potential vulnerabilities that remain, and the longer-term management and organizational challenges to sustaining enhanced aviation security.

What GAO Found

Since September 11, 2001, TSA has made considerable progress in meeting congressional mandates designed to increase aviation security. By the end of 2002, the agency had hired and deployed about 65,000 passenger and baggage screeners, federal air marshals, and others, and it was using explosives detection equipment to screen about 90 percent of all checked baggage. TSA is also initiating or developing efforts that focus on the use of technology and information to advance security. One effort under development, the next-generation Computer-Assisted Passenger Prescreening System (CAPPS II), would use national security and commercial databases to identify passengers who could pose risks for additional screening. Concerns about privacy rights will need to be addressed as this system moves toward implementation. Although TSA has focused on ensuring that bombs and other threat items are not carried onto planes by passengers or in their luggage, vulnerabilities remain in air cargo, general aviation, and airport perimeter security. Each year, an estimated 12.5 million tons of cargo are transported on all-cargo and passenger planes, yet very little air cargo is screened for explosives. We have previously recommended, and the industry has suggested, that TSA use a risk-management approach to set priorities as it works with the industry to determine the next steps in strengthening aviation security. TSA faces longer-term management and organizational challenges to sustaining enhanced aviation security that include (1) developing and implementing a comprehensive risk management approach, (2) paying for increased aviation security needs and controlling costs, (3) establishing effective coordination among the many entities involved in aviation security, (4) strategically managing its workforce, and (5) building a results-oriented culture within the new Department of Homeland Security. TSA has begun to respond to recommendations we have made addressing many of these challenges, and we have other studies in progress.