In  accordance with the act, we reviewed (1) TSA’s efforts to develop reliable  cost and schedule estimates for Secure Flight; (2) progress made by TSA  in developing and implementing the Secure Flight system, including the  implementation of security controls; (3) TSA’s efforts to coordinate with  CBP to integrate Secure Flight with CBP’s watch-list matching function for  international flights; (4) TSA’s plans to protect private passenger  information under Secure Flight; and (5) DHS’s efforts to assess the  effectiveness of the current redress process for passengers misidentified  as being on or wrongly assigned to the No Fly or Selectee list. Figure 1 identifies reported aviation  security funding for fiscal years 2004 through 2008. For example, TSA developed a Staffing Allocation  Model to determine TSO staffing levels at airports that reflect current  operating conditions, and implemented several initiatives intended to  enhance the detection of threat objects, particularly improvised  explosives. We reported that TSA also proposed modifications to  passenger checkpoint screening procedures based on risk (threat and  vulnerability information), among other factors, but, as we previsouly  reported, could do more evaluation of proposed procedures before they  are implemented to help ensure that they achieve their intended results. Finally, TSA is exploring new technologies to enhance the detection of  explosives and other threats, but continues to face management and  funding challenges in developing and fielding technologies at airport  checkpoints. Since  that time, TSA has developed a Staffing Allocation Model to determine  TSO staffing levels at airports. However, FSDs identified  that some assumptions used in the fiscal year 2006 staffing model did not  reflect actual operating conditions. TSA Has Taken Steps to Strengthen Passenger Screening Procedures, but Could Improve Its Evaluation and Documentation of Proposed Procedures

In addition to TSA’s efforts to deploy a federal TSO workforce, TSA has  taken steps to strengthen passenger checkpoint screening procedures to  enhance the detection of prohibited items. For  example, TSA has issued an Air Cargo Strategic Plan that focused on  securing the domestic air cargo supply chain. TSA Is Working to Revise Inspection Exemptions, Enhance Its Compliance Inspection Acitivites, and Develop Technologies for Air Cargo

In October 2005 and April 2007, we also reported that TSA had established  requirements for air carriers to randomly screen air cargo, but had  exempted some domestic and inbound cargo from screening. TSA Has Made Progress in Developing and Implementing the Secure Flight Program, but Can Further Strengthen Its Efforts

TSA has made substantial progress in instilling more discipline and rigor  into Secure Flight’s development and implementation since we last  reported on the program in February 2007, but challenges remain that may  hinder the program’s progress moving forward. However, despite these successes, TSA  continues to face some program management challenges in developing the  program. We also found that TSA can strengthen its systems development  efforts by demonstrating that it has fully implemented its risk management  plan, incorporated end-to-end testing as part of the program’s testing  strategy, and more fully addressed system security requirements and  vulnerabilities. key privacy protection principles. Information security. DHS and TSA Lack Performance Measures to Fully Evaluate the Effectiveness of the Redress Process, But Plan Additional Measures under Secure Flight

DHS and TSA have not developed a complete set of performance measures  to assess the effectiveness of the redress process for passengers  inconvenienced as a result of watch-list matching. Conclusions

DHS and TSA have undertaken numerous initiatives to strengthen the  security of the nation’s aviation system, and should be commended for  these efforts. More specifically, TSA developed processes to more  efficiently allocate and deploy the TSO workforce, strengthened screening  procedures, is working to develop and deploy more effective screening  technologies, strengthened the security of air cargo, and improved the  development of a program to prescreen passengers against the terrorist  watch-list. Recommendations for Executive Action

To assist TSA in further strengthening the development and  implementation of the Secure Flight program, we recommend that the  Secretary of Homeland Security direct the Assistant Secretary of the  Transportation Security Administration to take the following three actions:
Fully incorporate best practices into the development of Secure Flight  life-cycle cost and schedule estimates, to include: updating life-cycle cost and schedule estimates; demonstrating that the Secure Flight schedule has the logic in  place to identify the critical path, integrates lower level  activities in a logical manner, and identifies the level of  confidence in meeting the desired end date; and developing and implementing a plan for managing and  mitigating cost and schedule risks, including performing a  schedule risk analysis and a cost and schedule risk assessment. We incorporated technical changes to this statement based  on TSA’s comments.
Why GAO Did This Study

Transportation Security Administration (TSA) funding for aviation security has totaled about $26 billion since fiscal year 2004. This testimony focuses on TSA's efforts to secure the commercial aviation system through passenger screening, air cargo, and watch-list matching programs, and challenges remaining in these areas. GAO's comments are based on GAO products issued between February 2004 and April 2007, including selected updates in February 2008. This testimony also addresses TSA's progress in developing the Secure Flight program, based on work conducted from August 2007 to January 2008. To conduct this work, GAO reviewed systems development, privacy, and other documentation, and interviewed Department of Homeland Security (DHS), TSA, and contractor officials.

What GAO Found

DHS and TSA have undertaken numerous initiatives to strengthen the security of the nation's commercial aviation system, including actions to address many recommendations made by GAO. TSA has focused its efforts on, among other things, more efficiently allocating, deploying, and managing the Transportation Security Officer (TSO) workforce--formerly known as screeners; strengthening screening procedures; developing and deploying more effective and efficient screening technologies; strengthening domestic air cargo security; and developing a government operated watch-list matching program, known as Secure Flight. Specifically, TSA developed and implemented a Staffing Allocation Model to determine TSO staffing levels at airports that reflect current operating conditions, and proposed and implemented modifications to passenger checkpoint screening procedures based on risk information. However, GAO reported that some assumptions in TSA's Staffing Allocation Model did not accurately reflect airport operating conditions, and that TSA could improve its process for evaluating the effectiveness of proposed procedural changes. In response, TSA developed a plan to review Staffing Allocation Model assumptions and took steps to strengthen its evaluation of proposed procedural changes. TSA has also explored new passenger checkpoint screening technologies to better detect explosives and other threats and has taken steps to strengthen air cargo security, including conducting vulnerability assessments at airports and compliance inspections of air carriers. However, TSA has not developed an inspection plan that included performance goals and measures to determine whether air carriers transporting cargo into the United States were complying with security requirements. In response to GAO's recommendations, TSA has since established a working group to strengthen its compliance activities. Finally, TSA has instilled more discipline and rigor into Secure Flight's systems development, including preparing key documentation and strengthening privacy protections. While these efforts should be commended, GAO has identified several areas that should be addressed to further strengthen aviation security. For example, TSA has made limited progress in developing and deploying checkpoint technologies due to planning and management challenges. Further, TSA continues to face some program management challenges in developing Secure Flight. Specifically, TSA has not (1) developed program cost and schedule estimates consistent with best practices; (2) fully implemented its risk management plan; (3) planned for system end-to-end testing in test plans; and (4) ensured that information security requirements are fully implemented. If these challenges are not addressed effectively, the risk of the program not being completed on schedule and within estimated costs is increased, and the chances of it performing as intended are diminished. DHS and TSA lack performance measures to fully evaluate the effectiveness of current processes for passengers who apply for redress due to inconveniences experienced during the check-in and screening process. Without such measures, DHS and TSA lack a sound basis to monitor the effectiveness of the redress process.