TSA’s aviation security mission includes  strengthening the security of airport perimeters and restricted airport  areas; hiring and training a screening workforce; prescreening passengers  against terrorist watch lists; and screening passengers, baggage, and cargo  at the over 400 commercial airports nation-wide, among other  responsibilities. TSA’s  security mission includes establishing security standards and conducting  assessments and inspections of surface transportation modes, including  passenger and freight rail; mass transit; highways and commercial  vehicles; and pipelines. DHS Has Made Progress in Securing the Nation’s Aviation and Surface Transportation Systems, but More Work Remains

DHS, primarily through the efforts of TSA, has undertaken numerous  initiatives to strengthen the security of the nation’s aviation and surface  transportation systems. Specifically,  regarding commercial aviation, we reported that DHS has generally  achieved 17 performance expectations in this area, and has generally not  achieved 7 expectations. Regarding the security of surface transportation  modes, we reported that DHS has generally achieved three performance  expectations and has generally not achieved two others. Aviation Security

Since its inception, TSA has focused much of its efforts on aviation  security and has developed and implemented a variety of programs and  procedures to secure commercial aviation. Although TSA has taken important  actions to strengthen aviation security, the agency has faced difficulties in  implementing an advanced, government-run passenger prescreening  program for domestic flights, and in developing and implementing  technology to screen passengers at security checkpoints and cargo placed  on aircraft, among other areas. However, we found that while TSA has developed and tested checkpoint  technologies to address vulnerabilities that may be exploited by identified  threats such as improvised explosive devices, it has not yet effectively  deployed such technologies. We are currently reviewing DHS and TSA’s efforts to develop,  test and deploy airport checkpoint technologies. Strategic Approach for Implementing Security Functions. We will continue to assess DHS's efforts to implement its  strategy for securing surface transportation modes as part of our ongoing  reviews of mass transit, passenger and freight rail, commercial vehicle,  and highway infrastructure security. TSA has taken  actions to conduct threat, criticality, and vulnerability assessments of  surface transportation assets, particularly for mass transit, passenger rail,  and freight rail, but we have not yet reviewed the quality of many of these  assessments. For example, TSA has conducted  threat assessments of mass transit, passenger rail, and freight rail  transportation modes. However, TSA did not provide us with evidence of its efforts to  develop and issue security standards for all surface transportation modes,  or provided a rationale or explanation why standards may not be needed  for other modes. We have made numerous  recommendations to DHS and its components to strengthen these efforts,  and the department has made progress in implementing some of these  recommendations. For example, with  regards to TSA’s efforts to secure air cargo, we reported that TSA  completed an Air Cargo Strategic Plan in November 2003 that outlined a  threat-based risk management approach to securing the nation’s domestic  air cargo system, and that this plan identified strategic objectives and  priority actions for enhancing air cargo security based on risk, cost, and  deadlines. DHS has also not fully adopted and applied a risk management approach  in implementing its mission and core management functions. With respect to transportation security, the importance of  information sharing was recently highlighted in the 9/11 Commission Act  which requires DHS to establish a plan to promote the sharing of  transportation security information among DHS and federal, state and  local agencies, tribal governments, and appropriate private entities.The  Act also requires that DHS provide timely threat information to carriers  and operators that are preparing and submitting a vulnerability assessment  and security plan, including an assessment of the most likely methods that  could be used by terrorists to exploit weaknesses in their security. In addition to providing federal leadership with respect to homeland  security, DHS also plays a large role in coordinating the activities of key  stakeholders, but has faced challenges in this regard. A  well-managed, high-performing department is essential to meeting the  significant challenge of securing the transportation network.
Why GAO Did This Study

Within the Department of Homeland Security (DHS), the Transportation Security Administration's (TSA) mission is to protect the nation's transportation network. Since its inception in 2001, TSA has developed and implemented a variety of programs and procedures to secure commercial aviation and surface modes of transportation, including passenger and freight rail, mass transit, highways, commercial vehicles, and pipelines. Other DHS components, federal agencies, state and local governments, and the private sector also play a role in transportation security. GAO examined (1) the progress DHS and TSA have made in securing the nation's aviation and surface transportation systems, and (2) challenges that have impeded the department's efforts to implement its mission and management functions. This testimony is based on issued GAO reports and testimonies addressing the security of the nation's aviation and surface transportation systems, including a recently issued report (GAO-07-454) that highlights the progress DHS has made in implementing its mission and management functions.

What GAO Found

In August 2007, GAO reported that DHS had made moderate progress in securing the aviation and surface transportation networks, but that more work remains. Specifically, of the 24 performance expectations GAO identified in the area of aviation security, GAO reported that DHS had generally achieved 17 of these expectations and had generally not achieved 7 expectations. With regard to the security of surface modes of transportation, GAO reported that DHS generally achieved three performance expectations and had generally not achieved two others. DHS and TSA have made progress in many areas related to securing commercial aviation. For example, TSA has undertaken efforts to strengthen airport security; provide and train a screening workforce; prescreen passengers against terrorist watch lists; and screen passengers, baggage, and cargo. With regard to surface transportation modes, TSA has taken steps to develop a strategic approach for securing mass transit, passenger and freight rail, commercial vehicles, highways, and pipelines; establish security standards for certain transportation modes; and conduct threat, criticality, and vulnerability assessments of surface transportation assets, particularly passenger and freight rail. TSA also hired and deployed compliance inspectors and conducted inspections of passenger and freight rail systems. While these efforts have helped to strengthen the security of the transportation network, DHS and TSA still face a number of key challenges in further securing these systems. For example, regarding commercial aviation, TSA has faced difficulties in developing and implementing its advanced passenger prescreening system, known as Secure Flight, and has not yet completed development efforts. In addition, TSA's efforts to enhance perimeter security at airports may not be sufficient to provide for effective security. TSA has also initiated efforts to evaluate the effectiveness of security-related technologies, such as biometric identification systems, but has not developed a plan for implementing new technologies to meet the security needs of individual airports. TSA has also not yet effectively deployed checkpoint technologies to address key existing vulnerabilities, and has not yet developed and implemented technologies needed to screen air cargo. Further, while TSA has initiated efforts to develop security standards for surface transportation modes, these efforts have been limited to passenger and freight rail, and have not addressed commercial vehicles or highway infrastructure, including bridges and tunnels. GAO also reported that a number of issues have impeded DHS's efforts in implementing its mission and management functions, including not always implementing effective strategic planning, or fully adopting and applying a risk management approach with respect to transportation security.