Although small vessels are generally unregulated, the federal government  has put in place some requirements for these vessels. CBP has taken actions to help address this issue as part of  its Small Vessel Reporting System initiative, which is discussed later in  this report. In March 2009, we reported on the challenges of tracking small vessels  using available technologies. DHS and Its Components Are Taking Actions, but DHS Is Not Tracking Progress in Addressing the SVSS Implementation Plan

		DHS Components Have Various Initiatives to Address Small Vessel Security Concerns

DHS components have completed some initiatives and have other  initiatives under way to address small vessel security concerns. DHS component officials we met with identified the following key  initiatives that they have completed or have under way to enhance small  vessel security. According to Coast Guard  officials, the Coast Guard performed 11,399 small vessel security  boardings in 2012, and with the assistance of other port security  stakeholders, an additional 789 small vessels security boardings were  conducted that year. The SVSS Implementation Plan states that  DHS is to assess and update the plan annually and focus on realigning  the plan with the activities under way by its components and other federal  agencies. Officials we spoke with from four of the key DHS components that have  responsibility for leading the majority of the action items in the SVSS  Implementation Plan (the Coast Guard, CBP, DNDO, and DHS S&T)  stated that while they are tracking efforts and initiatives of their  component-specific missions that may address risks posed by small  vessels, they are not systematically tracking these efforts as they relate to  the specific action items listed in the plan. Although it may be too early to measure the effectiveness of some action  items in the SVSS Implementation Plan, updating the progress made in  addressing the action items could help DHS and its components prioritize  their efforts given constrained budgets; better identify successes and  lessons learned; and enhance collaboration with federal, state, and local  stakeholders regarding small vessel security issues. Conclusions

Recognizing the risks posed by terrorists using small vessels to attack  targets or as a conveyance for terrorists and their contraband to enter the  United States, DHS issued its SVSS Implementation Plan in January  2011 to help guide efforts to mitigate the security risks arising from small  vessels. DHS component agencies have completed some initiatives and  have other initiatives under way to address the risk of a small vessel  attack, but DHS is not gathering information on the progress its  components or relevant stakeholders are making to address action items  in the SVSS Implementation Plan and has no plans to do so. Given that internal controls call for  federal agencies to design and implement control activities to enforce  management’s directives, DHS could better prioritize initiatives and  identify successes if it was to regularly update the progress its  components and other relevant stakeholders are making to address the  action items in the SVSS Implementation Plan. Recommendation for Executive Action

To improve DHS’s ability to monitor progress, prioritize action items, and  identify successes, we recommend that the Secretary of Homeland  Security systematically gather information from the department’s  components and other relevant stakeholders to regularly update the  progress they are making in addressing action items in the SVSS  Implementation Plan. Miami was  selected as the pilot location because of the large population of small  vessels operating in that area.
Why GAO Did This Study

The Coast Guard estimates that there were more than 22 million small vessels operating in the United States in 2012. Terrorists, smugglers, and other criminals can use small vessels as platforms for their activities because small vessels are generally unregulated and largely anonymous. Law enforcement agencies face the challenge of distinguishing between legitimate small vessel operators and the relatively few individuals estimated to be engaged in illicit activities. DHS issued its SVSS in April 2008 and its follow-on SVSS Implementation Plan in January 2011 to help guide actions to mitigate the security risks arising from small vessels. Given the importance of small vessel security, GAO was asked to review DHS's efforts in developing and implementing the SVSS Implementation Plan .
This report examines what actions, if any, DHS and its components have taken to address small vessel security concerns, and the extent to which they have implemented action items in the SVSS Implementation Plan . GAO analyzed DHS documents; interviewed DHS officials; and visited two ports selected on the basis of the volume of small vessel traffic and security initiatives in place, among other things. While the results of the port visits cannot be generalized across all ports, they provided insights on small vessel security issues and operations.

What GAO Found

The Department of Homeland Security (DHS) and its components--such as the U.S. Coast Guard and Customs and Border Protection (CBP)--have started or completed initiatives to address small vessel security risks, but DHS is not tracking the progress being made to address action items in the Small Vessel Security Strategy (SVSS ) Implementation Plan . "Small vessels" are characterized as any watercraft--regardless of method of propulsion--less than 300 gross tons, and used for recreational or commercial purposes. DHS component officials GAO met with identified examples of key initiatives that they have completed or have under way to enhance small vessel security, including an initiative to help CBP better track small vessels arriving from foreign locations and another to assist the Coast Guard in assessing and monitoring small vessel launch sites. Although the SVSS Implementation Plan states that DHS is to assess and update the plan, DHS has not determined the progress its components and other relevant stakeholders--such as the Department of Defense--are making in completing the action items and has no current plans to do so. DHS officials stated that this is due, in part, to budget constraints that make this a low priority. DHS officials stated that updating the SVSS Implementation Plan would be valuable, and doing so is particularly important since more than one component could be responsible for action items in the plan. Accordingly, by systematically gathering information from its components and other relevant stakeholders to regularly update the progress they are making in addressing the action items in the plan, DHS could help prioritize initiatives given constrained budgets and better identify successes and lessons learned, among other things.

What GAO Recommends

GAO recommends that DHS regularly update the progress its components and other relevant stakeholders are making in addressing action items in the SVSS Implementation Plan . DHS concurred with the recommendation.