ATSA required that TSA screen 100 percent of  checked baggage using explosive detection systems by December 31, 2002. EDS machines use computer-aided tomography X-rays adapted  from the medical field to automatically recognize the characteristic  signatures of threat explosives. Specifically, TSA’s use of stand-alone EDS and ETD  machines required a greater number of screener staff and resulted in  screening fewer bags for explosives per hour, as compared with using EDS  machines in-line with baggage conveyor systems. TSA’s Initial Deployment of EDS and ETD Machines Resulted in Interim Solutions for Screening with Stand-alone Equipment Located Mainly in Airport Lobbies

Although TSA made significant progress in fielding EDS and ETD  equipment to the nation’s airports to screen checked baggage for  explosives, as mandated by Congress, TSA primarily used this equipment  as part of interim lobby solutions to screen checked baggage for  explosives, rather than the permanent integration of EDS machines in-line  with airport baggage conveyor systems. Airports and the Federal Government Are Taking Actions to Install In-line Baggage Screening Systems, but Resources Have Not Been Made Available to Fund These Systems on a Large-Scale Basis

Airport operators and TSA are taking actions to install in-line EDS baggage  screening systems because of the expected benefits of these systems. In addition, perspectives differ  regarding the appropriate role of the federal government, airport  operators, and air carriers in funding these capital-intensive systems. Although TSA  established criteria to prioritize airport eligibility for receiving LOI funds  for in-line EDS baggage screening systems, it has not conducted a  systematic, prospective analysis to determine at which airports it could  achieve long-term savings and enhanced security by installing in-line  systems rather than continue to rely on labor-intensive stand-alone EDS  and ETD machines to screen checked baggage for explosives. Further, for airports where in-line systems may not be  economically justified because of the high cost of installing the systems,  TSA has not conducted an analysis to determine whether it could achieve  savings by making greater use of stand-alone EDS systems rather than  relying on the use of more labor-intensive ETD machines. TSA officials stated that an in-line screening system at each of these  airports would provide enhanced security and efficiencies. TSA estimated that in- line baggage screening systems at these airports would save the federal  government $1.3 billion compared with stand-alone EDS systems and that  TSA would recover its initial investment in a little over 1 year. Conclusions

TSA has made substantial progress in installing EDS and ETD systems at  the nation’s airports—mainly as part of interim lobby screening  solutions—to provide the capability to screen all checked baggage for  explosives, as mandated by Congress. As part of this assessment, the Administrator should take the following  four actions:  identify and prioritize the airports where the benefits—in terms of cost  savings of baggage screening operations and improved security—of  replacing stand-alone baggage screening systems with in-line systems are  likely to exceed the costs of the systems, or the systems are needed to  address security risks or related factors;    consider the projected availability and costs of baggage screening  equipment being developed through research and development efforts;    estimate total funds needed to install in-line systems where appropriate,  including the federal funds needed given different assumptions regarding  the federal government and airport cost-shares for funding the in-line  systems; and   work collaboratively with airport operators, who are expected to share the  costs and benefits of in-line systems, to collect data and prepare the  analyses needed to develop plans for installing in-line systems. Explosives trace detection works by detecting vapors and residues of  explosives.
Why GAO Did This Study

Mandated to screen all checked baggage using explosive detection systems at airports by December 31, 2003, the Transportation Security Administration (TSA) deployed two types of screening equipment: explosives detection systems (EDS), which use computer-aided tomography X-rays to recognize the characteristics of explosives, and explosives trace detection (ETD) systems, which use chemical analysis to detect traces of explosive material vapors or residues. This report assesses (1) TSA's use of budgeted funds to install EDS and ETD systems and the impact of initially deploying these systems, (2) TSA and airport actions to install EDS machines in-line with baggage conveyor systems, and the federal resources made available for this purpose, and (3) actions taken by TSA to optimally deploy checked baggage screening systems.

What GAO Found

TSA has made substantial progress in installing EDS and ETD systems at the nation's more than 400 airports to provide the capability to screen all checked baggage using explosive detection systems, as mandated by Congress. However, in initially deploying EDS and ETD equipment, TSA placed stand-alone ETD and the minivan-sized EDS machines--mainly in airport lobbies--that were not integrated in-line with airport baggage conveyor systems. TSA officials stated that the agency's ability to initially install in-line systems was limited because of the high costs and the time required for airport modifications. These interim lobby solutions resulted in operational inefficiencies, including requiring a greater number of screeners, as compared with using EDS machines in-line with baggage conveyor systems. TSA and airport operators are taking actions to install in-line baggage screening systems to streamline airport and TSA operations, reduce screening costs, and enhance security. Eighty-six of the 130 airports we surveyed either have, are planning to have, or are considering installing full or partial in-line systems. However, resources have not been made available to fund these capital-intensive systems on a large-scale basis. Also, the overall costs of installing in-line baggage screening systems at each airport are unknown, the availability of future federal funding is uncertain, and perspectives differ regarding the appropriate role of the federal government, airport operators, and air carriers in funding these systems. Moreover, TSA has not conducted a systematic, prospective analysis to determine at which airports it could achieve long-term savings and enhance efficiencies and security by installing in-line systems or, where in-line systems may not be economically justified, by making greater use of stand-alone EDS systems rather than relying on the labor-intensive and less efficient ETD screening process. However, at nine airports where TSA has agreed to help fund the installation of in-line baggage screening systems, TSA conducted a retrospective cost-benefit analysis which showed that these in-line systems could yield significant savings for the federal government. TSA further estimated that it could recover its initial investment in the in-line systems at these airports in a little over 1 year.