	Background

Ensuring the security of our nation’s commercial aviation system has been  a long-standing concern. Limited Information Exists on the Effectiveness of Aviation Security Initiatives

TSA has implemented numerous initiatives designed to enhance aviation  security but has collected little information on the effectiveness of these  initiatives. However,  TSA is taking steps to collect objective data to assess its performance. Another key source of data on screener performance in detecting threat  objects is the Threat Image Projection (TIP) system, which places images  of threat objects on the X-ray screen during actual operations and records  whether screeners identify the threat object. TSA Is Developing Performance Evaluation Tools

TSA has recognized the need to strengthen the assessment of its  performance, and has initiated efforts to develop and implement strategic  and performance plans to clarify goals, establish performance measures,  and measure the performance of its security initiatives. TSA also plans to increase its focus on measuring the  effectiveness of various aspects of the aviation security system in its 5- year performance plan. According to TSA’s current draft strategic plan,  which outlines its overall goals and strategies for fiscal years 2003 through  2008, its efforts to measure the effectiveness of the aviation security  system will include random and scheduled reviews of the efficiency and effectiveness of oversight of compliance with security standards and approved  programs through a combination of inspections, testing, interviews,  and record reviews—to include TIP; measurement of performance against standards to ensure expected  standards are met and to drive process improvements; and collection and communication of performance data using a state-of-the- art data collection and reporting system. In recent years, we have consistently advocated the use  of a risk management approach to respond to various national security  and terrorism challenges, and have recommended that TSA apply this  approach to strengthen security in aviation as well as in other modes of  transportation. Accordingly, a risk management approach is a  systematic process to analyze threats, vulnerabilities, and the criticality  (or relative importance) of assets to better support key decisions. Figure 1 describes the risk management approach. A vulnerability assessment identifies weaknesses that may be exploited  by identified threats and suggests options to address those weaknesses. The assessment provides a basis for identifying which structures  or processes are relatively more important to protect from attack. TSA has not yet fully implemented its risk management approach,  but it has taken steps in this direction. TSA Faces Additional Programmatic And Management Challenges

In addition to collecting performance data and implementing a risk  management approach, TSA faces a number of other programmatic and  management challenges in strengthening aviation security. These  challenges include implementing the new Computer-Assisted Passenger  Prescreening System; strengthening baggage screening, airport perimeter  and access controls, air cargo, and general aviation security; managing the  costs of aviation security initiatives; and managing human capital. In addition to fielding the EDS systems at airports, difficulties exist in  integrating these systems into airport baggage handling systems. Aviation Security: Progress since September 11, 2001, and the  Challenges Ahead.
Why GAO Did This Study

It has been 2 years since the attacks of September 11,2001, exposed vulnerabilities in the nation's aviation system. Since then, billions of dollars have been spent on a wide range of initiatives designed to enhance the security of commercial aviation. However, vulnerabilities in aviation security continue to exist. As a result, questions have been raised regarding the effectiveness of established initiatives in protecting commercial aircraft from threat objects, and whether additional measures are needed to further enhance security. Accordingly, GAO was asked to describe the Transportation Security Administration's (TSA) efforts to (1) measure the effectiveness of its aviation security initiatives, particularly its passenger screening program; (2) implement a risk management approach to prioritize efforts and focus resources; and (3) address key challenges to further enhance aviation security.

What GAO Found

TSA has implemented numerous initiatives designed to enhance aviation security, but has collected limited information on the effectiveness of these initiatives in protecting commercial aircraft. Our recent work on passenger screening found that little testing or other data exist that measures the performance of screeners in detecting threat objects. However, TSA is taking steps to collect data on the effectiveness of its security initiatives, including developing a 5-year performance plan detailing numerous performance measures, as well as implementing several efforts to collect performance data on the effectiveness of passenger screening--such as fielding the Threat Image Projection System and increasing screener testing. TSA has developed a risk management approach to prioritize efforts, assess threats, and focus resources related to its aviation security initiatives as we previously recommended, but has not yet fully implemented this approach. A risk management approach is a systematic process to analyze threats, vulnerabilities, and the criticality (or relative importance) of assets to better support key decisions. TSA is developing and implementing both a criticality and a vulnerability assessment tool to provide a basis for risk-based decision-making. TSA is currently using some components of these tools and plans to fully implement its risk management approach by the summer 2004. TSA faces a number of programmatic and management challenges as it continues to enhance aviation security. These include the implementation of the new computer-assisted passenger prescreening system, as well as strengthening baggage screening, airport perimeter and access controls, air cargo, and general aviation security. TSA also must manage the costs associated with aviation security and address human capital challenges, such as sizing its workforce as efficiency is improved with security-enhancing technologies--including the integration of explosive detection systems into in-line baggage-handling systems. Further challenges in sizing its workforce may be encountered if airports are granted permission to opt out of using federal screeners.