TSA Has Taken Steps Since 2013 to Enhance Its Canine Program, but Further Opportunities May Exist to Assess the Program and Reduce Costs

TSA has taken steps to enhance NEDCTP since we issued our 2013  report. TSA Uses Data to Assess Canine Team Proficiency and Utilization

In January 2013, we reported that TSA collected and used key canine  program data in its Canine Website System (CWS), a central  management database, but it could better analyze these data to identify  program trends. In January 2013, we recommended that TSA regularly analyze available  data to identify program trends and areas that are working well and those  in need of corrective action to guide program resources and activities. TSA concurred with our recommendation, and in June 2014 we reported  on some of the steps it had taken to implement the recommendation. Therefore, we  closed the recommendation as implemented in August 2014. Since we closed the recommendation, according to TSA officials, the  agency has continued to take steps to enhance its canine program. For  example, TSA eliminated the monthly 240-minute training requirement  and instead requires canine teams to train on all explosives training aids  they must be able to detect, in all search areas (e.g., aircraft), every 45  days. TSA has Deployed PSC Teams to the Highest-Risk Airports

We also reported in January 2013 that TSA’s 2012 Strategic Framework  called for the deployment of PSC teams based on risk; however, airport  stakeholder concerns about the appropriateness of TSA’s protocols for  resolving PSC team responses resulted in these teams not being  deployed to the highest-risk airports or utilized for passenger screening. We recommended that TSA coordinate with airport stakeholders to  deploy future PSC teams to the highest-risk airports, and ensure that  deployed PSC teams are utilized as intended, consistent with the  agency’s statutory authority to provide for the screening of passengers  and their property. TSA concurred with our recommendation, and in June  2014, we reported that the PSC teams for which TSA had funding and not  already deployed to a specific airport at the time our 2013 report had  been deployed to or allocated to the highest-risk airports. In January 2015, we closed the recommendation as  implemented after TSA deployed all remaining PSC teams (those which  had previously been allocated) to the highest-risk airports and all PSC  teams were being utilized for passenger screening. Further Opportunities May Exist for TSA to Assess Its Canine Program and Reduce Costs

In our January 2013 report, we found that TSA began deploying PSC  teams in April 2011 prior to determining the teams’ operational  effectiveness, and had not completed an assessment to determine where  within the airport PSC teams would be most effectively utilized. Although TSA has taken steps to determine whether PSC teams are  effective and where in the airport environment to optimally deploy such  teams, TSA has not compared the effectiveness of PSCs and  conventional canines in order to determine if the greater cost of training  canines in the passenger screening method is warranted. In December 2014, TSA reported that it did not intend to include  conventional canine teams in PSC assessments and cited concerns  about the liability of operating conventional canines in an unfamiliar  passenger screening environment. In January 2015, we closed the  recommendation as not implemented, reiterating that conventional  canines paired with LEO handlers work in close proximity with people  since, like PSCs, they also patrol airport terminals. Consistent with our  recommendation, we continue to believe that opportunities exist for TSA  to conduct an assessment to determine whether conventional canines are  as effective at detecting explosives odor on passengers when compared  to PSC teams working in specific areas, such as the passenger  checkpoint queue. If such an assessment were to indicate that  conventional canines are equally as effective at detecting explosives odor  on passengers as PSCs, then limiting proficiency training requirements of  PSCs to those that currently apply to conventional canine teams could  save TSA costs associated with maintaining PSC teams.
Why GAO Did This Study

TSA has implemented a multilayered system composed of people, processes, and technology to protect the nation's transportation systems. One of TSA's security layers is comprised of nearly 800 deployed explosives detection canine teams—a canine paired with a handler. These teams include PSC teams trained to detect explosives on passengers and conventional canines trained to detect explosives in objects, such as cargo.
In January 2013, GAO issued a report on TSA's explosives detection canine program. This testimony addresses the steps TSA has taken since 2013 to enhance its canine program and further opportunities to assess the program.
This statement is based on GAO's January 2013 report, a June 2014 testimony, and selected updates conducted in February 2016 on canine training and operations. The products cited in this statement provide detailed information on GAO's scope and methodology. For the selected updates, GAO reviewed the president's fiscal year 2017 budget request for TSA and interviewed TSA officials on changes made to NEDCTP since June 2014, the last time GAO reported on the program.

What GAO Found

The Transportation Security Administration (TSA) has taken steps to enhance its National Explosives Detection Canine Team Program (NEDCTP) since GAO's 2013 report, but further opportunities exist for TSA to assess its canine program and potentially reduce costs.
TSA Uses Data to Assess Canine Team Proficiency and Utilization: In January 2013, GAO reported that TSA needed to take actions to analyze NEDCTP data and ensure canine teams are effectively utilized. GAO recommended that TSA regularly analyze available data to identify program trends and areas that are working well and those in need of corrective action to guide program resources and activities. TSA concurred, and in June 2014, GAO reported that the agency had taken actions that address the recommendation. GAO subsequently closed the recommendation as implemented in August 2014. Since then, according to TSA officials, the agency has continued to enhance its canine program. For example, TSA reported that it requires canine teams to train on all explosives training aids they must be able to detect—any explosive used to test and train a canine—in all search areas (e.g., aircraft), every 45 days.
TSA has Deployed PSC Teams to the Highest-Risk Airports: GAO found in January 2013 that passenger screening canine (PSC) teams were not being deployed to the highest-risk airports as called for in TSA's 2012 Strategic Framework or utilized for passenger screening. GAO recommended that TSA coordinate with airport stakeholders to deploy future PSC teams to the highest-risk airports and ensure that deployed teams were utilized as intended. TSA concurred, and in June 2014, GAO reported that PSC teams had been deployed or allocated to the highest-risk airports. In January 2015, GAO closed the recommendation as implemented after TSA deployed all remaining PSC teams to the highest-risk airports and all teams were being utilized for passenger screening.
Opportunities May Exist for TSA to Reduce Canine Program Costs : GAO reported in 2013 that TSA began deploying PSC teams prior to determining their operational effectiveness and identifying where within the airport these teams would be most effectively utilized. GAO recommended that TSA take actions to comprehensively assess the effectiveness of PSCs. TSA concurred and has taken steps to determine the effectiveness of PSC teams and where in the airport to optimally deploy such teams. However, TSA did not compare the effectiveness of PSCs and conventional canines in detecting explosives odor on passengers to determine if the greater cost of training PSCs is warranted. In December 2014, TSA reported that it did not intend to do this assessment because of the liability of using conventional canines to screen persons when they had not been trained to do so. GAO closed the recommendation as not implemented, stating that conventional canines currently work in close proximity with people as they patrol airport terminals, including ticket counters and curbside areas. GAO continues to believe that opportunities may exist for TSA to reduce costs if conventional canines are found to be as effective at detecting explosives odor on passengers as PSCs.

What GAO Recommends

GAO is making no new recommendations in this statement.