	Background

The Aviation and Transportation Security Act (ATSA), enacted in  November 2001, created TSA and gave it responsibility for securing all  modes of transportation.5  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. DHS Has Made Progress in Securing the Nation’s Commercial Aviation System, but More Work Remains

DHS, primarily through the efforts of TSA, has undertaken numerous  initiatives since its inception to strengthen the security of the nation’s  commercial aviation system. 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. As shown in table 1, we identified 24  performance expectations for DHS in the area of aviation security, and  found that overall, DHS has made moderate progress in meeting these  expectations. Specifically, we found that DHS has generally achieved 17  performance expectations and has generally not achieved 7 performance  expectations. In our past work, we  reported that TSA identified and implemented a wide range of initiatives to  strengthen the security of key components of the commercial aviation  system. Regarding procedures for implementing biometric identification systems,  we reported that TSA had not developed a plan for implementing new  technologies to meet the security needs of individual airports and the  commercial airport system as a whole. We are currently reviewing DHS and TSA’s efforts to develop,  test and deploy airport checkpoint technologies. Checked Baggage Screening. Although TSA has taken action to develop plans for  securing air cargo and establishing and implementing procedures to  screen air cargo, DHS has not yet developed and implemented screening  technologies. Cross-cutting Issues Have Hindered DHS’s Efforts in Implementing Its Mission and Management Functions

Our work has identified homeland security challenges that cut across  DHS’s mission and core management functions. These issues have  impeded the department’s progress since its inception and will continue as  DHS moves forward. While it is important that DHS continue to work to  strengthen each of its mission and core management functions, to include  aviation security, it is equally important that these key issues be addressed  from a comprehensive, department-wide perspective to help ensure that  the department has the structure and processes in place to effectively  address the threats and vulnerabilities that face the nation. In addition, DHS has not always implemented effective strategic planning  efforts and has not yet fully developed performance measures or put into  place structures to help ensure that the agency is managing for results. 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.
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. GAO examined (1) the progress DHS and TSA have made in securing the nation's commercial aviation system, 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 commercial aviation system, 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 commercial aviation system, but that more work remains. Specifically, DHS generally achieved 17 of the 24 performance expectations that GAO identified in the area of aviation security but had generally not achieved 7 of them. DHS and TSA have made progress in many areas related to securing commercial aviation. For example, to meet congressional mandates to screen airline passengers and 100 percent of checked baggage, TSA initially hired and deployed a federal workforce of over 50,000 passenger and checked baggage screeners and installed equipment at the nation's more than 400 commercial airports to provide the capability to screen all checked baggage using explosive detection systems. TSA has since turned its attention to, among other things, strengthening passenger prescreening; more efficiently allocating, deploying, and managing the transportation security officer (TSO)------formerly known as screener------workforce; strengthening screening procedures; developing and deploying more effective and efficient screening technologies; and improving domestic air cargo security. While these efforts have helped strengthen the security of the commercial aviation system, DHS and TSA still face a number of key challenges in further securing this system. For example, 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, DHS'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. 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 commercial aviation security.