Additionally, international air cargo shipments entering the United States are regulated by U.S. Customs and Border Protection (CBP). In response to these concerns, U.S. policy has shifted from risk-based approaches for vetting cargo placed on passenger aircraft to mandatory 100% physical screening requirements for all air cargo that travels within the United States or to the United States aboard passenger aircraft. Hijackings

Historically, security measures surrounding all-cargo operations have focused on the threat of hijackings, particularly hijackings that could result in a suicide attack using the aircraft as a weapon of mass destruction. Several incidents have shown that terrorists may seek to target U.S.-bound air cargo shipments, including shipments placed on all-cargo aircraft, by exploiting weaknesses in air cargo security overseas. The act also directed TSA to evaluate air cargo security programs in foreign countries to ensure that they are on par with those in the United States, and authorized TSA to train foreign governments in aviation security including methods to mitigate insider threats, as well as the use of canines in explosives detection, operation and maintenance of screening technology, perimeter security measures, and various other topics. 2825 ) as well as the Air Cargo Security Improvement Act of 2017 ( H.R. H.R. Vulnerability Assessments and Risk-Based Targeting

In 2007, reflecting concerns over the logistics and costs associated with mandatory cargo screening, air cargo industry stakeholders voiced considerable opposition to requiring 100% screening of air cargo, urging Congress instead to "focus on realistic solutions based on a framework that identifies and prioritizes risks, works methodically to apply effective and practical security programs, and makes optimal use of federal and industry resources." Under the framework of a risk-based strategy for cargo security, industry has specifically recommended the increased use of canine explosives detection teams; enhanced supply chain security; enhanced targeting of shipments based on CBP experience with the Automated Targeting System (ATS); expanded use of explosive trace detection technology for targeted screening; and accelerated research and development of technologies that can more efficiently inspect elevated-risk cargo. Following the October 2010 incidents, TSA applied additional screening measures to inbound international air cargo assessed to be high risk. Cargo Screening Technologies

TSA has approved a number of detection systems for screening air cargo to meet the requirements of the 100% screening mandate. There is considerable policy interest in the certification and deployment of TSA-approved third-party explosives detection canine teams to screen air cargo. Other components of the air cargo network, such as shippers, third-party logistics companies, and independent air cargo consolidation and screening facilities, may voluntarily participate in the Certified Cargo Screening Program (CCSP). In-Flight Security Measures

In-flight air cargo security options address the primary perceived vulnerabilities of a potential hijacking of an all-cargo flight or the bombing of a passenger aircraft using an explosive device carried in a cargo shipment. Blast-resistant cargo containers are being considered as an option to protect passenger airliners from explosives. Also in the 115 th Congress, the Department of Homeland Security Authorization Act ( H.R. 2825 ), as passed by the House, includes language that would require CBP to establish a formal Air Cargo Advance Screening (ACAS) program based on the ongoing pilot program and would require TSA to develop standards for third-party canine cargo screening.
U.S. policies and strategies for protecting air cargo have focused on two main perceived threats: the in-flight detonation of explosives concealed in an air cargo shipment and the hijacking of a large all-cargo aircraft for use as a weapon to attack a ground target such as a major population center, critical infrastructure, or a critical national security asset. Additionally, there is concern that chemical, biological, or radiological agents or devices that could be used in a mass-casualty attack in the United States might be smuggled as international air cargo.
The October 2010 discovery of two explosive devices being prepared for loading on U.S.-bound all-cargo aircraft overseas prompted policy debate over air cargo security measures and spurred debate regarding targeted risk-based screening versus comprehensive 100% screening of all air cargo, including shipments that travel on all-cargo aircraft. In coordination with industry, Customs and Border Protection (CBP) and the Transportation Security Administration (TSA) have been pilot testing a risk-based approach to vet air cargo shipments known as the Air Cargo Advance Screening (ACAS) system, with a particular emphasis on improving scrutiny of overseas shipments. In the 115th Congress, the Department of Homeland Security Authorization Act (H.R. 2825), as well as the Air Cargo Security Improvement Act of 2017 (H.R. 4176), would require the full deployment of ACAS for inbound international air cargo.
With respect to protecting passenger airliners from explosives placed in cargo, policy debate focused on whether risk-based targeting strategies and methods such as ACAS should be used to identify shipments requiring additional scrutiny or whether all or most shipments should be subject to more intensive physical screening. While the air cargo industry and TSA argued for risk-based approaches, Congress mandated 100% screening of all cargo placed on passenger aircraft using approved methods in 2007. To meet this requirement, TSA established a voluntary Certified Cargo Screening Program (CCSP) that allows TSA-approved cargo screening, carried out by industry personnel, to take place at off-airport manufacturing sites, warehouses, distribution centers, and freight transfer facilities. This off-airport screening is coupled with strict chain-of-custody measures designed to maintain the integrity of screened cargo.
To increase flexibility under CCSP, there has been recent interest in expanding the role of canine explosives detection teams to screen air cargo, and industry has advocated for the use of third-party canine teams, particularly at off-airport air cargo screening facilities. H.R. 2825 would direct TSA to develop standards for third-party canine explosives screening for air cargo.
A number of other policies under consideration in Congress include
cooperative efforts with international partners and industry stakeholders; the implementation challenges and effectiveness of risk-based targeting approaches like ACAS; TSA oversight of the Certified Cargo Screening Program (CCSP); the feasibility and challenges of using third-party canine teams for explosives screening; and the costs and benefits of requiring blast-resistant cargo containers to protect aircraft from in-flight explosions in cargo holds.