	Introduction

Border and Transportation Security (BTS) is a pivotal function in protecting the Americanpeople from terrorists and their instruments of destruction. The threereports in this series attempt to provide an understanding of the complex problems faced in seekingenhanced border and transportation security, suggest a framework to better understand existingprograms and policies, and explore some possible new directions and policy options. Thisreport addresses the myriad programs and policies that make up the nation's current approach toattaining higher levels of BTS. Congressional Concerns

Congressional concern with terrorism and border security was manifested early, followinga series of terrorist attacks beginning in the 1990s. The congressional response began with inquiries related tothe nature of the terrorist threat, and was followed by specific, targeted measures to protect the nationfollowing the events of 9/11. There are indications that congressional interest continues in broader,more comprehensive approaches including recent efforts to respond to the report of the 9/11Commission contained in the National Intelligence Reform Act of 2004 ( P.L. The following actions are set in a framework that suggests types of possiblepolicy actions:
Pushing the border outwards to intercept unwanted people or goods before theyreach the United States;
Hardening the border through the use of technology and the presence of moreagents at the border;
Making the border more accessible for legitimate trade andtravel;
Strengthening the border through more effective use of intelligence;and
Multiplying effectiveness through the engagement of other actors in theenforcement effort (including engaging Canada, Mexico, state and local law enforcement resources,and the private sector). Computer Aided Passenger Pre-Screening System. (48) Traditional foreignintelligence as well as criminal intelligence contribute to enhancing border security. Conclusion

Balancing security with trade and travel may require a "layered approach" to attain bothgoals. (55) The current programs and policies were either put into place asa result of the 9/11 terrorist attacks or predated the attacks. Those programs and policies that wereput into place as a result of the attacks were done so with a sense of urgency -- to prevent anotherattack . Programs and policies already in existence prior to the attacks, however, were created witha different focus and not necessarily with the goal of keeping terrorists out of the country. As noted earlier, this report is one of a series of three CRS reports that address the issue ofBTS. The first report in the series, CRS Report RL32839 , Border and Transportation Security: TheComplexity of the Challenge , analyzes the reasons why BTS is so difficult to attain. This report isthe second in the series. The final report is CRS Report RL32841 , Border and TransportationSecurity: Possible New Directions and Policy Options . (58) It is a form ofpre-inspections for low-risk, frequent travelers.
Border and Transportation Security (BTS) is a pivotal function in protecting the Americanpeople from terrorists and their instruments of destruction. This report addresses selected programsand policies now in place that seek to attain higher levels of BTS. It is the second in a three-partseries of CRS reports that make use of analytical frameworks to better understand complexphenomena and cast them in terms that facilitate consideration of alternative policies and practices. (The first report in the series, CRS Report RL32839 , Border and Transportation Security: TheComplexity of the Challenge , analyzes the reasons why BTS is so difficult to attain. This report isthe second in the series. The final report is CRS Report RL32841 , Border and TransportationSecurity: Possible New Directions and Policy Options .)
Congressional concern with terrorism and border security was manifested as early as 1993,with the first World Trade Center attack and subsequent terrorist attacks against U.S. targets abroad. The congressional response to these events began with attempts to understand the nature of theterrorist threat through the creation of several commissions. The response to the 9/11 attacks wasfollowed by specific, targeted measures to protect the nation such as the creation of theTransportation Security Administration and the passage of laws that were aimed at strengtheningsecurity at the border, including immigration policies with respect to the admission of foreignnationals; and strengthening security in the maritime domain. Congressional interest continues inmore comprehensive approaches including recent efforts to respond to the report of the 9/11Commission.
There are several broad strategies that could be pursued to enhance border security. Currentprograms and policies can be grouped under the following generic categories, which include pushingthe border outwards to intercept unwanted people or goods before they reach the United States (asin the passenger pre-screening program); hardening the border through the use of technology (asshown by biometric identifiers); making the border more accessible for legitimate trade and travel(as in "trusted traveler" programs); strengthening the border inspection process through moreeffective use of intelligence (with the integration of terrorist watch lists); and multiplying theeffectiveness of interdiction programs through the engagement of other actors in the enforcementeffort (as displayed by bi-national accords with Canada and Mexico). It is also possible to use thestrategies as a checklist for what new efforts might be explored.
Many current programs and policies to enhance border and transportation security were putinto place as a result of the 9/11 terrorist attacks with a sense of urgency -- to prevent another attack . Programs and policies in existence prior to the attacks, however, were often created with a differentfocus and not necessarily with the terrorist threat in mind. The challenge for Congress is to reviewthese programs and policies comprehensively to help them form a more coherent and effectiveoverall strategy. This report will be updated periodically as events warrant.