	Background

		Ferries Transport Passengers and Vehicles

According to the 190 ferry operators responding to the 2008 National  Census of Ferry Operators, more than 82 million passengers and over 25  million vehicles were carried on their vessels in the United States. The Coast Guard Assessed Risk to Ferries and Their Facilities in Accordance with DHS’s Risk Assessment Guidance and Security Concerns Exist

		The Coast Guard Adheres to Risk Assessment Guidance from DHS’s National Infrastructure Protection Plan

The Coast Guard uses a tool known as the Maritime Security Risk Analysis  Model to assess risk to vessels and port infrastructure, including ferries  and ferry facilities, in accordance with the guidance from DHS’s National  Infrastructure Protection Plan. In April 2010, Coast Guard intelligence officials stated that  there have been no credible terrorist threats against ferries and their  facilities identified in at least the last 12 months, but noted the presence of  terrorist groups that have the capability to attack a ferry. In April 2010, Coast Guard intelligence officials also  stated that they have seen a gradual shift in terrorist tactics and  procedures overseas that had been seen in attacks against mass transit  and other soft targets—characteristics typically shared with ferry systems  as well. However, not all ferry  systems allow vehicles on board. Stakeholders Have Implemented Ferry Security Measures, but the Coast Guard Has Not Acted on Other Identified Opportunities That May Enhance Security

To secure ferries and their facilities, responsible maritime security  stakeholders—including the Coast Guard, CBP, and TSA, as well as  owners and operators of ferries and their facilities—reported having taken  various actions to implement applicable federal maritime laws,  regulations, and guidance designed to help ensure the security of ferries  and their facilities. Ferry Operators Have Taken Action to Enhance Security and Their Ability to Meet Security Standards Has Been Measured through Inspections

Ferry and ferry facility operators develop and implement security  plans. Security methods varied across ferry operations. Based on our site visits,  screening was performed by a variety of personnel in these locations,  including ferry crew members, contracted security screeners, and state or  local law enforcement. The Coast Guard May Be Missing Opportunities to Enhance Ferry Security

The Coast Guard has reported taking various actions to help secure  ferries, but may be missing opportunities to further enhance ferry security,  particularly with respect to enhancing screening measures because it has  not evaluated and, if determined warranted, acted on all of the findings  and recommendations from several ferry security reports completed in  2005 and 2006. The third report, issued by ABSG Consulting in  April 2005, reported on the completed consequence studies that were  conducted and included classified findings on the potential consequences  of a vehicle-borne improvised explosive device, but no recommendations  resulted from this report. Standards for Internal Control in the  Federal Government state that agencies should have policies and  procedures for ensuring that findings of audits and other reviews are  promptly resolved. As a result of  our work on ferry security, in August 2010, Coast Guard officials stated  that they believe the ferry security reports can still provide valuable  information and they plan to begin evaluating the reports in fall 2010. Despite Coast Guard documents from 2004 stating that a reassessment of  the screening requirements should be conducted when the ferry security  studies were completed or if the threat were to change—both of which  have occurred—as of May 2010, Coast Guard officials stated that they had  not taken action to reassess and update the requirements since the 2004  security directive. Taking action to reassess screening  requirements could provide the Coast Guard with key information to help  improve its vehicle screening requirements. Recommendations for Executive Action

To ensure that the Coast Guard considers all known options for securing  the ferry transportation system and is not missing opportunities to  enhance ferry security, we recommend that the Commandant of the Coast  Guard take the following two actions:  (1) after fully evaluating the findings and recommendations from the Coast  Guard’s 2005 and 2006 ferry security reports, take appropriate actions to  address the findings and recommendations identified in these reports; and  (2) upon review of the reports, ensure that vehicle screening requirements  are set at an appropriate level that considers both the risks to and  operating requirements of ferry systems, and when warranted, reassess  screening requirements for ferries and make changes as appropriate. Agency Comments

We provided a draft of the sensitive version of this report to the  Departments of Homeland Security, State, and Interior for their review and  comment. Combating Terrorism: Interagency Framework and Agency Programs to  Address the Overseas Threat.
Why GAO Did This Study

Ferries are a vital component of the U.S. transportation system and 2008 data show that U.S. ferries carried more than 82 million passengers and over 25 million vehicles. Ferries are also potential targets for terrorism in the United States and have been terrorist targets overseas. GAO was asked to review ferry security, and this report addresses the extent to which (1) the Coast Guard, the lead federal agency for maritime security, assessed risk in accordance with the Department of Homeland Security's (DHS) guidance and what risks it identified; and (2) federal agencies, ferry and facility operators, and law enforcement entities have taken actions to protect ferries and their facilities. GAO reviewed relevant requirements, analyzed 2006 through 2009 security operations data, interviewed federal and industry officials, and made observations at five domestic and one international locations with varying passenger volumes and relative risk profiles. Site visits provided information on security, but were not projectable to all ports. This is the public version of a sensitive report that GAO issued in October 2010. Information that DHS deemed sensitive has been redacted.

What GAO Found

The Coast Guard assessed the risk--including threats, vulnerabilities, and consequences--to ferries in accordance with DHS guidance on risk assessment and, along with other maritime stakeholders, identified risks associated with explosive devices, among other things. Although in April 2010, Coast Guard intelligence officials stated that there have been no credible terrorist threats identified against ferries and their facilities in at least the last 12 months, maritime intelligence officials have identified the presence of terrorist groups with the capability of attacking a ferry. Many of the Coast Guard, ferry system and law enforcement officials GAO spoke with generally believe ferries are vulnerable to passenger- or vehicle-borne improvised explosive devices, although not all ferry systems transport vehicles. The Coast Guard has also identified the potential consequences of an attack, which could include possible loss of life and negative economic effects. In April 2010, Coast Guard officials stated that the relative risk to ferries is increasing, as evidenced by attacks against land-based mass transit and other targets overseas. Federal agencies--including the Coast Guard, the Transportation Security Administration (TSA), and Customs and Border Protection (CBP)--ferry operators, and law enforcement entities report that they have taken various actions to enhance the security of ferries and facilities and have implemented related laws, regulations, and guidance, but the Coast Guard may be missing opportunities to enhance ferry security. Security measures taken by the Coast Guard have included providing a security presence on ferries during transit. Coast Guard officials also reported that they are revising regulations to improve ferry operator training and developing guidance on screening. Ferry operators' security actions have included developing and implementing security plans and screening vehicles and passengers, among other things. However, the Coast Guard had not evaluated and, if determined warranted, acted on all findings and recommendations resulting from five agency-contracted studies on ferry security completed in 2005 and 2006. Reports from these studies included several recommendations for standardizing and enhancing screening across ferry operators. Standards for internal control in the federal government state that agencies should ensure that findings of audits and other reviews are promptly resolved, and that managers take action to evaluate and resolve matters identified in these audits and reviews. As a result of our work on ferry security, in August 2010, Coast Guard officials stated they planned to review the reports. Taking action to address the recommendations in these reports, if determined warranted by the Coast Guard's evaluation, could enhance ferry security. Furthermore, Coast Guard documents from 2004 state that the agency should reassess vehicle screening requirements pending the completion of the ferry security reports or if the threat changes. However, no specific plans were in place to reassess these requirements. By taking action to reassess its screening requirements, the agency would be better positioned to determine if changes are warranted.

What GAO Recommends

GAO recommends that the Commandant of the Coast Guard, after evaluating the completed studies on ferry security, reassess vehicle screening requirements and take further actions to enhance security, if determined warranted. DHS concurred with our recommendations.