However, FSD management responsibilities  differ at airports using federal versus private screeners. TSA Has Approved 25 SPP Applications; Enhanced Customer Service Was the Most Commonly Cited Advantage of the SPP

		SPP Applicants and Participating Airports

Since the inception of the SPP in 2004, 29 airports have applied for  participation in the program; 25 airports have been approved, and as we  noted earlier in this report, 16 airports are participating in the SPP as of  October 2012. TSA denied applications from 6 airports—submitted from March 2009  through December 2011. Two of the 6 airports that had been denied never reapplied for  participation in the SPP (see fig. Reported Advantages and Disadvantages of Joining the SPP

Airport operators we surveyed and interviewed, as well as aviation  industry stakeholders (i.e., aviation associations) and TSA officials we  interviewed, most commonly cited customer service and staffing flexibility  as advantages of participating in the SPP, but also expressed concerns  about the SPP transition process and satisfaction with existing TSA  screening services as potential disadvantages of participating in the  program. We surveyed 28 airport operators who had applied to the SPP  from its inception in 2004 through April 2012. Four of six FSDs we interviewed cited a  reduced involvement in human resource management as an  advantage to the federal government for participating in the SPP. In addition, 2 airport operators who have not  applied to the SPP expressed concerns about the potential disruption  associated with the transition from TSA screeners to private screeners at  their airports, and the associated risk of doing so if the process does not  proceed as smoothly as intended. TSA Has Developed Application Resources, but Could Provide Guidance for SPP Applicants

TSA has developed some resources to assist applicants; however, it has  not provided guidance on its application and approval process to assist  airports with applying to the program. At the time, TSA did not  provide written guidance to airports to assist them in understanding what  would constitute a “clear and substantial advantage to TSA security  operations” or TSA’s basis for determining whether an airport had  established that opting out would present a clear and substantial  advantage to TSA security operations. In March 2012, TSA again revised the SPP application in accordance with  provisions of the FAA Modernization Act enacted in February 2012. However, TSA has not issued guidance to assist  airports with completing the new application and has not explained to  airports how it will evaluate applications given the changes brought about  by the new law. We interviewed 4 of the 5 airport operators that applied to the SPP since  TSA revised its application in the wake of the FAA Modernization Act. TSA Has Measures to Assess Screener Performance, but Enhanced Processes for Evaluating Screener Performance Could Be Beneficial

TSA improved its set of screener performance measures in 2012 by  adding measures that address passenger satisfaction, thereby ensuring  that the measures address all aspects of the agency’s airport screening  strategic goals and mission. However, a mechanism to monitor private  versus federal screener performance could help TSA to routinely ensure  that the level of screening services and protection provided at SPP  airports continues to be conducted at acceptable levels provided at non- SPP airports, and could help inform TSA managers when making  decisions regarding the future of the SPP, such as whether to expand the  program to more non-SPP airports. Monitoring private screener performance in comparison with federal  screener performance is consistent with the statutory requirement that  TSA enter into a contract with a private screening company only if the  Administrator determines and certifies to Congress that the level of  screening services and protection provided at an airport under a contract  will be equal to or greater than the level that would be provided at the   Further, according to TSA  airport by federal government personnel.guidance on the SPP, one of TSA’s major goals for the SPP is that  private screeners must perform at the same or better level as federal  screeners. Recommendations for Executive Action

To improve TSA’s SPP application process and to inform decisions  regarding the future of the SPP, we recommend that the Secretary of the  Department of Homeland Security direct the Administrator of TSA to take  the following two actions: develop guidance that clearly (1) states the criteria and process  that TSA is using to assess whether participation in the SPP  would compromise security or detrimentally affect the cost- efficiency or the effectiveness of the screening of passengers or  property at the airport; (2) states how TSA will obtain and analyze  cost information regarding screening cost-efficiency and  effectiveness and the implications of not responding to the related  application questions; and (3) provides specific examples of  additional information airports should consider providing to TSA to  help assess an airport’s suitability for SPP, and develop a mechanism to regularly monitor private versus federal  screener performance. Appendix I: Objectives, Scope, and Methodology

	Objectives

This appendix describes how we did our work to address (1) the status of  Screening Partnership Program (SPP) applications, and airport operator,  other stakeholder, and the Transportation Security Administration’s (TSA)  views on the advantages and disadvantages of participating in the SPP;  (2) the extent to which TSA has provided guidance to govern the SPP  application process; and (3) the extent to which TSA assesses and  monitors the performance of private and federal screeners. nationally, from fiscal year 2009 through 2011.
Why GAO Did This Study

TSA maintains a federal workforce to screen passengers and baggage at the majority of the nation's commercial airports, but also oversees a workforce of private screeners at airports who participate in the SPP. The SPP allows commercial airports to use private screeners, provided that the level of screening matches or exceeds that of federal screeners. In recent years, TSA's SPP has evolved to incorporate changes in policy and federal law, prompting enhanced interest in measuring screener performance. GAO was asked to examine the (1) status of SPP applications and airport operators', aviation stakeholders', and TSA's reported advantages and disadvantages of participating in the SPP; (2) extent to which TSA has provided airports guidance to govern the SPP application process; and (3) extent to which TSA assesses and monitors the performance of private and federal screeners. GAO surveyed 28 airport operators that had applied to the SPP as of April 2012, and interviewed 5 airport operators who have not applied and 1 airport operator who applied to the SPP after GAO's survey. Although not generalizable, these interviews provided insights. GAO also analyzed screener performance data from fiscal years 2009-2011. This is a public version of a sensitive report that GAO issued in November 2012. Information that TSA deemed sensitive has been redacted.

What GAO Found

Since implementation of the Screening Partnership Program (SPP) in 2004, 29 airports have applied to the program, citing various advantages and relatively few disadvantages. Of the 25 approved, 16 are participating in the program, 6 are currently in the contractor procurement process, and the remainder withdrew from participation because their commercial airline services were discontinued. In 2011, the Transportation Security Administration (TSA) denied applications for 6 airports because, according to TSA officials, the airports did not demonstrate that participation in the program would "provide a clear and substantial advantage to TSA security operations." After enactment of the Federal Aviation Administration Modernization and Reform Act of 2012 (FAA Modernization Act) in February 2012, TSA revised its SPP application, removing the "clear and substantial advantage" question. Four of the 6 airports that had been denied in 2011 later reapplied and were approved. In GAO's survey and in interviews with airport operators (of SPP and non-SPP airports) and aviation stakeholders, improved customer service and increased staffing flexibilities were most commonly cited as advantages or potential advantages of the SPP. Individual Federal Security Directors we interviewed cited reduced involvement in human resource management as an advantage; however, TSA generally remains neutral regarding the SPP. Few disadvantages were cited; however, some airport operators cited satisfaction with federal screeners and concerns with potential disruption from the transition to private screening services.
TSA has developed some resources to assist SPP applicants; however, it has not provided guidance to assist airports applying to the program. Consistent with the FAA Modernization Act, TSA's revised SPP application requested that applicants provide information to assist TSA in determining if their participation in the SPP would compromise security or detrimentally affect the cost-efficiency or screening effectiveness of passengers and property at their airport. TSA also developed responses to frequently asked questions and has expressed a willingness to assist airports that need it. However, TSA has not issued guidance to assist airports with completing applications and information on how the agency will assess them. Three of five airport operators who applied using the current application stated that additional guidance is needed to better understand how to respond to the new application questions. Developing guidance could better position airports to evaluate whether they are good candidates for the SPP.
TSA recently improved its screener performance measures, but could benefit from monitoring private versus federal screener performance. In April 2012, TSA added measures to ensure that the set of measures it uses to assess screener performance at private and federal airports better addresses its airport screening strategic goals and mission. However, TSA does not monitor private screener performance separately from federal screener performance. Instead, TSA conducts efforts to monitor screener performance at individual SPP airports, but these efforts do not provide information on SPP performance as a whole or across years, which makes it difficult to identify program trends. A mechanism to consistently monitor SPP versus non-SPP performance would better position TSA to ensure that the level of screening services and protection provided at SPP airports continues to match or exceed the level provided at non-SPP airports, thereby ensuring that SPP airports are operating as intended.

What GAO Recommends

GAO recommends that the TSA Administrator develop guidance for SPP applicants and a mechanism to monitor private versus federal screener performance. TSA concurred with the recommendations.