This is the accessible text file for GAO report number GAO-06-371T 
entitled 'Aviation Security: Enhancements Made in Passenger and Checked 
Baggage Screening, but Challenges Remain' which was released on April 
4, 2006. 

This text file was formatted by the U.S. Government Accountability 
Office (GAO) to be accessible to users with visual impairments, as part 
of a longer term project to improve GAO products' accessibility. Every 
attempt has been made to maintain the structural and data integrity of 
the original printed product. Accessibility features, such as text 
descriptions of tables, consecutively numbered footnotes placed at the 
end of the file, and the text of agency comment letters, are provided 
but may not exactly duplicate the presentation or format of the printed 
version. The portable document format (PDF) file is an exact electronic 
replica of the printed version. We welcome your feedback. Please E-mail 
your comments regarding the contents or accessibility features of this 
document to Webmaster@gao.gov. 

This is a work of the U.S. government and is not subject to copyright 
protection in the United States. It may be reproduced and distributed 
in its entirety without further permission from GAO. Because this work 
may contain copyrighted images or other material, permission from the 
copyright holder may be necessary if you wish to reproduce this 
material separately. 

Testimony before the Committee on Commerce, Science, and 
Transportation, U.S. Senate: 

United States Government Accountability Office: 

GAO: 

For Release on Delivery Expected at 10:00 a.m. EDT: 

Tuesday, April 4, 2006: 

Aviation Security: 

Enhancements Made in Passenger and Checked Baggage Screening, but 
Challenges Remain: 

Statement of Cathleen A. Berrick, Director, 

Homeland Security and Justice Issues: 

GAO-06-371T: 

GAO Highlights: 

Highlights of GAO-06-371T, a testimony before the Committee on 
Commerce, Science, and Transportation, U.S. Senate: 

Why GAO Did This Study: 

Securing commercial aviation is a daunting task—with hundreds of 
airports, thousands of aircraft, and thousands of flights daily 
carrying millions of passengers and pieces of checked baggage. It has 
been over 3 years since the Transportation Security Administration 
(TSA) assumed responsibility for passenger and baggage screening at 
commercial airports. This testimony focuses on the progress TSA is 
making in strengthening airline passenger and checked baggage screening 
and the challenges that remain. Particularly, this testimony highlights 
TSA’s efforts to (1) enhance the performance, management, and 
deployment of the transportation security officer (TSO) workforce; (2) 
strengthen procedures for screening passengers and checked baggage; and 
(3) leverage and deploy screening technologies. 

What GAO Found: 

TSA has taken steps to enhance the TSO workforce’s performance, 
management, and deployment, yet continues to face challenges in 
allocating staff and ensuring that training is available. For example, 
TSA developed a Screening Allocation Model to determine TSO staffing 
levels at commercial airports. However, some assumptions in the 
model—such as that 20 percent of the TSO workforce will be part-
time—may be flawed, given that federal security directors (the lead TSA 
authorities at U.S. airports) have had difficulty filling this quota 
and some said they have not been able to hire up to their authorized 
staffing levels. In addition, while TSA has taken steps to improve the 
training offered to its TSO workforce, insufficient staffing and a lack 
of electronic connectivity to access on-line learning have prevented 
TSOs from taking full advantage of training opportunities. 

TSA is proposing changes to its screening procedures to enhance 
detection capabilities in part based on risk assessments, as GAO has 
previously advocated. Since April 2005, TSA has gathered, vetted, and 
tested a variety of new procedures for passenger and baggage screening. 
Some passenger screening procedure changes are based on risk-related 
factors, including results of covert (undercover, unannounced) tests 
that are designed to reveal system vulnerabilities. Our ongoing work on 
how TSA makes these changes indicates that TSA could do more evaluation 
to ensure the changes achieve the desired results. 

TSA has taken steps to develop and deploy technologies to strengthen 
commercial aviation security; however, challenges in funding and 
planning have created impediments to implementation. For example, TSA 
has deployed explosives detection systems—either stand-alone or 
incorporated in-line with baggage conveyor systems—to detect explosives 
in checked baggage. A TSA cost-benefit analysis of the in-line systems 
being installed at 9 airports showed that they could yield significant 
savings for the federal government. However, their deployment has been 
hampered by a lack of planning and funding strategies. TSA is currently 
assessing financing options to support the deployment of in-line 
systems and has begun prioritizing which airports would benefit from 
their deployment. 

[See PDF for image] 

[End of figure] 

What GAO Recommends: 

In prior reports, GAO has made numerous recommendations designed to 
strengthen aviation security, to include passenger and checked baggage 
screening operations. TSA generally agreed with our recommendations and 
is taking actions to implement them. GAO also has several ongoing 
reviews related to the issues addressed in this testimony, and will 
issue separate reports related to these areas at later dates, with 
additional recommendations as appropriate. 

www.gao.gov/cgi-bin/getrpt?GAO-06-371T. 

To view the full product, including the scope and methodology, click on 
the link above. For more information, contact Cathleen A. Berrick at 
(202) 512-3404 or berrickc@gao.gov. 

[End of section] 

Mr. Chairman and Members of the Committee: 

I appreciate the opportunity to participate in today's hearing to 
discuss the progress made and challenges remaining in the physical 
screening of airline passengers and their checked baggage, and in the 
deployment of explosive detection technologies. Securing commercial 
aviation is a daunting task--with hundreds of airports, thousands of 
aircraft, and thousands of flights daily carrying millions of 
passengers and pieces of checked baggage. The Aviation and 
Transportation Security Act (ATSA), enacted on November 19, 2001, 
created the Transportation Security Administration (TSA) and mandated 
actions designed to strengthen aviation security, including requiring 
that TSA assume responsibility for conducting passenger and checked 
baggage screening at over 400 commercial airports in the United States 
by November 19, 2002. It has been over 3 years since TSA assumed this 
responsibility, and the agency has spent billions of dollars and 
implemented a wide range of initiatives to strengthen the key 
components of its passenger and checked baggage screening systems-- 
people, processes, and technology. These components are interconnected 
and are critical to the overall security of commercial aviation. 

My testimony today focuses on the progress TSA is making in 
strengthening airline passenger and checked baggage screening, and the 
challenges that remain. In particular, my testimony highlights four key 
areas, including TSA's efforts to (1) enhance the performance of the 
transportation security officer (TSO--formerly referred to as 
screeners) workforce and manage and deploy the TSO workforce; (2) 
strengthen procedures for screening passengers and checked baggage on 
passenger aircraft; (3) leverage and deploy screening technologies; and 
(4) measure the effectiveness of its passenger and checked baggage 
screening systems. 

My comments are based on issued GAO reports and testimonies addressing 
the security of the U.S. commercial aviation system and our preliminary 
observations from ongoing work on TSA's passenger checkpoint screening 
procedures and staffing standards for TSOs. We did our work in 
accordance with generally accepted government auditing standards. 
Appendix I contains a list of related GAO products released since 
September 11, 2001. 

Summary: 

TSA has taken steps to enhance the performance, management, and 
deployment of its TSO workforce, but it continues to face staffing and 
training challenges. Acknowledging imbalances in the screener 
workforce, TSA developed standards for determining TSO staffing for all 
airports at which federal screening is required and developed a 
Screening Allocation Model (SAM) to determine airport staffing levels. 
In determining staffing allocations, the SAM takes into account not 
only flight and passenger data, but also data unique to each airport-- 
including flight schedules, load factors, passenger and baggage 
distribution curves, and TSA passenger and baggage screening 
configurations. However, in interviewing several Federal Security 
Directors (FSD)--the ranking authorities responsible for the leadership 
and coordination of TSA security activities at the nation's commercial 
airports--we identified some preliminary concerns about the SAM. For 
example, one assumption of the SAM is that 20 percent of the TSO 
workforce at airports will be part-time. However, FSDs whom we spoke to 
said that it has been a challenge to attract, hire, and retain TSA's 
part-time TSO workforce, which has made this goal difficult to achieve. 
Further, several of the FSDs we interviewed stated that they had not 
been able to hire up to their authorized staffing levels, and that the 
SAM did not take into account that TSOs were also being routinely used 
to carry out non-screening and administrative duties. TSA has 
established the National Screening Force to provide screening support 
to all airports in times of special need, and implemented a number of 
initiatives to reduce attrition among its TSO workforce. In addition to 
having an adequate number of screeners, effective screening involves 
screeners being properly trained to do their job. TSA has taken 
numerous steps to expand training beyond the basic training requirement 
to include self-guided courses on its Online Learning Center; a 
recurrent training requirement of 3-hours per week, averaged over a 
quarter; and training on threat information, explosives detection, and 
new screening approaches. However, insufficient TSO staffing and a lack 
of high-speed Internet/intranet connectivity create impediments to the 
TSO workforce taking full advantage of training opportunities. 

TSA is proposing changes to its screening procedures to enhance 
detection capabilities, but could strengthen its evaluation of these 
procedures. Since April 2005, TSA has gathered proposals for passenger 
screening procedural changes from a variety of sources within the 
agency. Based on preliminary observations from our ongoing review, we 
found that most of these proposed changes for passenger screening were 
intended to improve efficiency or TSA's ability to detect prohibited 
items. Other security-related changes to passenger screening procedures 
are made based on several risk-based factors, including results of 
covert (undercover, unannounced) tests that are designed to reveal 
vulnerabilities in the screening system. TSA also recently piloted 
additional procedures that would incorporate unpredictability into the 
screening system and allow TSOs to determine the level of screening 
passengers should receive based on suspicious behavior. TSA vets 
proposed screening procedural changes through various TSA offices and 
tests significant proposed changes in an operational environment. 
However, our preliminary observations indicate that TSA's evaluation of 
procedural changes could be strengthened to include how the procedure 
would reduce vulnerability to a terrorist attack. 

TSA is supporting the development and deployment of technologies to 
strengthen commercial aviation security but faces management and 
funding challenges. Effective screening depends on having the right 
technology in place to detect threats, and TSA has taken steps to 
deploy and develop technologies to strengthen commercial aviation 
security. However, challenges in funding and planning created 
impediments to the technology's implementation. For example, to improve 
explosives detection at some passenger screening checkpoints, TSA has 
deployed explosives trace portal machines, which use puffs of air to 
help detect the presence of explosives on individuals. The Department 
of Homeland Security's (DHS) fiscal year 2007 budget request states 
that about 434 explosive trace portal machines will be in operation 
throughout the country during fiscal year 2007. 

However, limited progress has been made in fielding other explosives 
detection technology at passenger checkpoints. At baggage screening 
checkpoints, TSA has been effective in deploying explosive trace 
detection systems (in which TSOs collect samples by rubbing bags with 
swabs, which are chemically analyzed to identify any traces of 
explosive materials) and the more efficient explosive detection systems 
(in which probing radiation is used to examine objects inside baggage 
and identify characteristic signatures of threat explosives). Now that 
the initial deployment of this equipment has been completed, however, 
TSA must focus on deploying enhanced explosive detection systems, 
including larger or smaller models depending on the needs of a 
particular airport, and on incorporating explosive detection systems in-
line with baggage conveyor systems, to further enhance efficiency and 
security. In looking to the future, DHS has agreed with our 
recommendations to improve its research and development (R&D) 
management and planning, including completing basic research, strategic 
planning, and risk assessment efforts; coordinating R&D efforts with 
transportation stakeholders; and assessing the costs and benefits of 
deploying explosive detection systems--either in-line or stand-alone at 
the nation's airports. In February 2006, TSA took a positive step 
forward by completing a strategic framework for its checked baggage 
screening operations that will help ensure the efficient allocation of 
limited resources to maximize technology's effectiveness in detecting 
threats. However, additional work will be needed to determine funding 
and deployment strategies to support the implementation of in-line 
baggage screening systems. 

TSA has measures in place to assess the effectiveness of passenger and 
checked baggage screening systems. TSA headquarters has conducted 
covert testing of passenger and checked baggage screening by having 
inspectors attempt to pass threat objects through checkpoints in order 
to measure vulnerabilities and identify systematic problems affecting 
TSO performance in the areas of training, procedures, and technology. 
These tests have identified that, overall, weaknesses and 
vulnerabilities exist in the passenger and checked baggage screening 
systems. Implemented in September 2002, the testing protocols for 
passenger and checked baggage screening changed in September 2005 to 
implement a more risk-based approach and focus on catastrophic threats 
to aircraft. Additionally, in February 2004 and February 2005, for 
passengers and checked baggage, respectively, TSA issued protocols to 
help FSDs conduct covert testing of local airport screening activities. 
Other ways TSA tests the effectiveness of passenger and baggage 
screening include the use of the Threat Image Projection system, which 
projects threat images onto a screen as the bag is screened to test the 
screener's ability to positively identify the threat; annual screener 
recertification testing; and passenger and checked baggage performance 
indexes. These performance indexes reflect indicators of effectiveness, 
efficiency, and customer satisfaction. However, due to a lack of 
targets for each component of the index, TSA may have difficulty 
performing meaningful analyses of the parts of the index. 

Background: 

Following the terrorist attacks of September 11, the President signed 
the Aviation and Transportation Security Act into law on November 19, 
2001, with the primary goal of strengthening the security of the 
nation's aviation system. To this end, ATSA created TSA as an agency 
with responsibility for securing all modes of transportation, including 
aviation.[Footnote 1] As part of this responsibility, TSA oversees 
security operations at the nation's more than 400 commercial airports, 
including passenger and checked baggage screening operations. Prior to 
the passage of ATSA, the screening of passengers and checked baggage 
had been performed by private screening companies under contract to the 
airlines. The Federal Aviation Administration (FAA) was responsible for 
ensuring compliance with screening regulations. Today, TSA security 
activities, including passenger and checked baggage screening at 
airports, are overseen by Federal Security Directors--the ranking 
authorities responsible for the leadership and coordination of TSA 
security activities at the nation's commercial airports. Each FSD is 
responsible for overseeing security activities, including passenger and 
checked baggage screening, at one or more commercial airports. 

TSA reported that between October 2004 and September 2005, about 735 
million passengers were physically screened. In addition, 550 million 
bags were screened using explosive detection systems with standard 
screening procedures. 

Passenger and Checked Baggage Screening: 

In addition to establishing TSA and giving it responsibility for 
passenger and checked baggage screening operations, ATSA set forth 
specific enhancements to screening operations for TSA to implement, 
with deadlines for completing many of them. These requirements 
included: 

* assuming responsibility for screeners and screening operations at 
more than 400 commercial airports by November 19, 2002; 

* establishing a basic screener training program composed of a minimum 
of 40 hours of classroom instruction and 60 hours of on-the-job 
training; 

* conducting an annual proficiency review of all screeners; 

* conducting operational testing of screeners;[Footnote 2] 

* requiring remedial training for any screener who fails an operational 
test; and: 

* screening all checked baggage for explosives using explosives 
detection systems by December 31, 2002.[Footnote 3] 

Passenger screening is a process by which authorized TSA personnel 
inspect individuals and property to deter and prevent the carriage of 
any unauthorized explosive, incendiary, weapon, or other dangerous item 
onboard an aircraft or into a sterile area.[Footnote 4] TSOs (formerly 
referred to as screeners) must inspect individuals for prohibited items 
at designated screening locations.[Footnote 5] The four passenger 
screening functions are (1) X-ray screening of property, (2) walk- 
through metal detector screening of individuals, (3) hand-wand or pat- 
down screening of individuals, and (4) physical search of property and 
trace detection for explosives. 

Checked baggage screening is a process by which authorized security 
screening personnel inspect checked baggage to deter, detect, and 
prevent the carriage of any unauthorized explosive, incendiary, or 
weapon onboard an aircraft. Checked baggage screening is accomplished 
through the use of explosive detection systems[Footnote 6] (EDS) or 
explosive trace detection (ETD) systems,[Footnote 7] and through the 
use of other means, such as manual searches, canine teams, and positive 
passenger bag match,[Footnote 8] when EDS and ETD systems are 
unavailable. 

The conference report accompanying the fiscal year 2006 DHS 
appropriations act allocates about $3.6 billion to TSA for passenger 
and checked baggage screening operations, of which about $2.4 billion 
is for the TSO workforce and the remaining amount is for private sector 
TSOs,[Footnote 9] equipment purchase, installation and maintenance, and 
support functions associated with the TSO workforce, such as training 
and other human resource functions.[Footnote 10] The President's fiscal 
year 2007 budget request includes about $3.5 billion for passenger and 
checked baggage screening, of which about $2.5 billion would support 
the TSO workforce. 

TSA Has Taken Steps to Strengthen the Management and Performance of Its 
TSO Workforce, but Continues to Face Challenges: 

TSA Has Taken Steps to Better Manage Its TSO Workforce, but Faces 
Challenges in Hiring, Deploying, and Retaining TSOs: 

TSA has taken and has planned actions to strengthen its management and 
deployment of the TSO workforce, but it continues to face challenges in 
hiring and deploying passenger and checked baggage TSOs. To accomplish 
its security mission, TSA needs a sufficient number of passenger and 
checked baggage TSOs trained and certified in the latest screening 
procedures and technology. We reported in February 2004 that staffing 
shortages and TSA's hiring process had hindered the ability of some 
FSDs to provide sufficient resources to staff screening checkpoints and 
oversee screening operations at their checkpoints without using 
additional measures such as overtime.[Footnote 11] TSA has acknowledged 
that its initial staffing efforts created imbalances in the screener 
workforce and has since been taking steps to address these imbalances 
over the past 2 years. 

The Intelligence Reform and Terrorism Prevention Act of 2004 required 
TSA to develop and submit to Congress standards for determining the 
aviation security staffing for all airports at which screening is 
required.[Footnote 12] The act also directed GAO to review these 
standards, which we are doing. These staffing standards are to provide 
for necessary levels of airport security, while also ensuring that 
security-related delays experienced by airline passengers are 
minimized. In June 2005, TSA submitted its report on aviation security 
staffing standards to Congress. Known as the Screening Allocation Model 
(SAM), these standards are intended to provide an objective measure for 
determining TSO airport staffing levels, while staying within the 
congressionally mandated limit of 45,000 full-time equivalents (FTE) 
screeners.[Footnote 13] 

Whereas TSA's prior staffing model was demand-driven based on flight 
and passenger data, the SAM model analyzes not only demand data but 
also data on the flow of passenger and baggage through the airport and 
the availability of the workforce. In determining the appropriate TSO 
staffing levels, the SAM first considers the workload demands unique to 
each individual airport--including flight schedules, load factors and 
connecting flights, and number of passenger bags. These demand inputs 
are then processed against certain assumptions about the processing of 
passengers and baggage--including expected passenger and baggage 
processing rates, required staffing for passenger lanes and baggage 
equipment, and equipment alarm rates. Using these and various other 
data, the SAM determines the daily workforce requirements and 
calculates a work schedule for each airport. The schedule identifies a 
recommended mix of full-time and part-time staff and a total number of 
TSO FTE needed to staff the airport, consistent with a goal of 10 
minutes maximum wait time for processing passengers and baggage. 

For fiscal year 2006, the SAM model estimated a requirement of 42,170 
TSO FTEs for all airports nationwide. In order to stay within a 43,000 
TSO FTE budgetary limit for fiscal year 2006, TSA officials reduced the 
number of FTEs allocated to airports to 42,056, which allowed it to 
fund the 615 TSO FTEs in the National Screener Force--a force composed 
of TSOs who provide screening support to all airports--and to maintain 
a contingency of 329 TSO FTEs in reserve to meet unanticipated demands, 
such as a new air carrier coming on line at an airport.[Footnote 14] As 
of January 2006, there were 37,501 full-time TSOs and 5,782 part-time 
TSOs on board nationwide, representing an annualized rate of 41,085 TSO 
FTEs. According to TSA headquarters officials, the SAM can be adjusted 
to account for the uniqueness of particular airport security 
checkpoints and airline traffic patterns. Further, it is up to the FSDs 
to ensure that all of the data elements and assumptions are accurate 
for their airports, and to bring to TSA's attention any factors that 
should be reviewed to determine if changes to the SAM are appropriate. 
The President's fiscal year 2007 budget requests a total of 45,121 FTEs 
for TSO personnel compensation and benefits. 

As part of our ongoing review of the SAM model, we have identified 
several preliminary concerns about TSA's efforts to address its 
staffing imbalances and ensure appropriate coverage at airport 
passenger and checked baggage screening checkpoints, which we are 
continuing to assess. At the five airports we visited, FSD staff raised 
concerns about the SAM assumptions as they related to their particular 
airports.[Footnote 15] Among other things, they noted that the 
recommendation for 20 percent part-time TSO workforce--measured in 
terms of FTEs--often could not be reached, the expected processing 
rates for passenger and baggage screening were not being realized, non- 
passenger screening at large airports was higher than assumed, and the 
number of TSO FTEs needed per checkpoint lane and per baggage screening 
machine was not sufficient for peak periods. Regarding the SAM 
assumption of a 20 percent part-time TSO FTE level across all airports, 
FSD staff we visited stated that the 20 percent goal has been difficult 
to achieve because of, among other things, economic conditions leading 
to competition for part-time workers, remote airport locations coupled 
with a lack of mass transit, TSO base pay that has not changed since 
fiscal year 2002, and part-time workers' desire to convert to full-time 
status. According to TSA headquarters officials, while the nationwide 
annual TSO attrition rate is about 23 percent (compared to a rate of 14 
percent reported in February 2004), it is over 50 percent for part-time 
TSOs. TSA has struggled with hiring part-time TSOs since it began 
actively recruiting them in the summer of 2003. In February 2004, we 
reported that FSDs at several of the airports we visited stated that 
they experienced difficulty in attracting needed part-time screeners, 
which they believed to be due to many of the same factors, such as low 
pay and benefits, undesirable hours, the location of their airport, the 
lack of accessible and affordable parking or public transportation, and 
the high cost of living in the areas surrounding some 
airports.[Footnote 16] These FSDs stated that very few full-time 
screeners were interested in converting to part-time status--a 
condition that still exists--and TSA officials stated that attrition 
rates for part-time screeners were considerably higher than those for 
full-time screeners. 

At two of the five airports we visited as part of our ongoing review of 
the SAM model, FSD staff told us that they had not been able to hire up 
to their authorized staffing levels. In February 2004, we reported that 
many of the FSDs we interviewed expressed concern that TSA's hiring 
process was not responsive to their needs and hindered their ability to 
reach their authorized staffing levels and adequately staff screening 
checkpoints. Specifically, FSDs expressed concern with the lack of a 
continuous hiring process to backfill screeners lost through attrition, 
and their lack of authority to conduct hiring on an as-needed basis. We 
reported that TSA was taking steps to make the hiring process more 
responsive to FSDs' needs. Since then, TSA has provided FSDs with more 
input into the hiring process in an effort to streamline the process 
and enable FSDs to more quickly meet their staffing needs. 

During our five airport visits, some FSD staff also cited another 
limitation of the SAM--specifically, that the model does not account 
for screeners who are performing administrative or other duties. The 
officials also noted that, because they are not authorized to hire a 
sufficient number of mission support staff, TSOs are being routinely 
used--in some cases full time--to carry out non-screening and 
administrative duties, including supporting payroll, scheduling, 
uniform supplies, legal support, logistics, and operations center 
activities. At the five airports we visited in January and February 
2006, out of a total of 2,572 TSO FTEs on-board at those airports, 
roughly 136 FTEs (just over five percent) were being used for 
administrative duties. FSD staff stated that some of these TSOs are 
being used on a part-time basis, while others are used on a full-time 
basis. The use of TSOs in these support functions could adversely 
affect the ability of FSDs to adequately staff their screening 
checkpoints. 

To compensate for screener shortages and to enable operational 
flexibility to respond to changes in risk and threat, in October 2003, 
TSA established a National Transportation Security Officer (TSO) Force 
(formerly known as the Mobile Screening Force established in November 
2002) to provide screening support to all airports in times of 
emergency, seasonal demands, or under other special circumstances that 
require a greater number of screeners than regularly available to FSDs. 
In February 2004, we reported that the National Screening Force 
consisted of over 700 full-time passenger and baggage TSOs. TSA 
officials stated that while these screeners have a home airport to 
which they are assigned, they travel to airports in need of screening 
staff approximately 70 percent of the year. 

TSA budgeted for 615 FTEs for the National Screening Force in fiscal 
year 2006. The President's fiscal year 2007 budget request includes $35 
million for operational expenses of the force (not including salaries 
and benefits of force members). According to the budget request, in 
fiscal year 2007, the National Screening Force will generally be 
deployed only to those airports experiencing significant staffing 
shortfalls associated with increased seasonal traffic or when a special 
event, such as a Super Bowl or a large national conference, occurs 
requiring an immediate influx of additional TSO support. At one 
category X airport we recently visited, the FSD stated that because of 
challenges in hiring and retaining TSOs for this airport, he currently 
had 59 members of the National Screening Force deployed to his airport, 
and had been relying on this force since 2004. The President's fiscal 
year 2007 budget request states that TSA will continue to review 
methods for reducing costs associated with this force, including 
ensuring that each airport has a sufficient staffing program in place 
to address short-term needs. 

In February 2006 in the President's fiscal year 2007 budget request, 
TSA identified a number of initiatives it has under way to address the 
management of the TSO workforce, including: 

* requesting $10 million to support TSO retention programs, including 
utilizing workforce retention flexibilities to potentially include pay 
for performance, performance bonuses, retention allowances, college 
credit reimbursement, and flexible staffing; and: 

* establishing retention incentives for part-time screeners. 

We will continue to examine these efforts as part of our ongoing work 
on TSA's aviation security staffing standards. 

TSA Has Strengthened TSO Training but Faces Challenges in Delivering 
the Training: 

Since we reported on TSO training in September 2003,[Footnote 17] TSA 
has taken a number of actions designed to strengthen training available 
to the TSO workforce as part of its efforts to enhance the performance 
of TSOs. Additionally, TSA's Office of Inspections (OI, formerly the 
Office of Internal Affairs and Program Review) makes recommendations to 
TSA leadership in its reports on covert (undercover, unannounced) 
testing results. These recommendations address deficiencies identified 
during testing and are intended to improve screening effectiveness. As 
of December 2005, OI had issued 29 reports to management on the results 
of its checkpoint and checked baggage covert testing. In total, the 
reports include 19 distinct recommendations related to passenger and 
checked baggage screening.[Footnote 18] Of these 19 recommendations, 11 
relate to screener training. 

In September 2003, we reported that TSA had not fully developed or 
deployed a recurrent training program for passenger TSOs. At that time, 
little training was available to TSOs once they completed their basic 
TSO training. Since then, TSA has expanded training available to the 
TSO workforce, such as introducing an Online Learning Center that makes 
self-guided courses available over TSA's intranet and the Internet and 
expanding training available to supervisory TSOs. TSA also established 
a recurrent training requirement of 3 hours per week, averaged over a 
quarter, and provided FSDs with additional tools to facilitate and 
enhance TSO training, including at least one modular bomb set kit-- 
containing components of an improvised explosive device (IED)--and at 
least one weapons training kit. TSA has also instituted a program 
called "Threat in the Spotlight" that, based on intelligence TSA 
receives, provides screeners with the latest in threat information 
regarding terrorist attempts to get threat objects past screening 
checkpoints. Additionally, in December 2005, TSA reported completing 
enhanced explosives detection training for over 18,000 TSOs. This 
training included both classroom and hands-on experiences, and focused 
particularly on identifying X-ray images of IED component parts, not 
just a completely assembled bomb. TSA plans for the remaining TSO 
workforce to receive this training by June 2006 through the Online 
Learning Center or other delivery methods. TSA also has developed new 
training curricula to support new screening approaches. For example, 
TSA recently developed a training curriculum for TSOs in behavior 
observation and analysis at the checkpoint to identify passengers 
exhibiting behaviors indicative of stress, fear, or deception. 

However, as we reported in May 2005, insufficient TSO staffing and a 
lack of high-speed Internet/intranet connectivity to access the Online 
Learning Center have made it difficult for all TSOs at many airports to 
receive required training and has limited TSO access to TSA training 
tools.[Footnote 19] As previously discussed, TSA is taking steps to 
address the TSO staffing challenges. However, it is too soon to 
determine whether TSA's efforts will address TSA's ability to provide 
required training while maintaining adequate coverage for screening 
operations. In terms of access to the Online Learning Center, TSA plans 
to complete the deployment of high-speed Internet/intranet connectivity 
to airports during fiscal year 2007. TSA established its Online 
Learning Center to provide passenger and baggage screeners with online, 
high-speed access to training courses. However, effective use of the 
Online Learning Center requires high-speed Internet/intranet access, 
which TSA had not been able to provide to all airports. In May 2005, we 
reported that as of October 2004, about 45 percent of the TSO workforce 
did not have high speed Internet/intranet access to the Online Learning 
Center. The President's fiscal year 2007 budget request reports that 
approximately 220 of the more than 400 airport and field locations have 
full Information Technology (IT) infrastructure installation, to 
include high-speed network connectivity, while the rest of the airports 
operate with dial-up access to TSA systems. According to the budget 
request, TSA will use $120 million in fiscal year 2006 to deploy high- 
speed connectivity to all category X and I airports and preliminary 
high-speed connectivity to all category II, III, and IV airports. The 
budget request includes a request for a total of $90 million to support 
this effort in fiscal year 2007, of which $54 million is needed to 
complete the deployment of high-speed connectivity at category II, III, 
and IV airports.[Footnote 20] 

TSA Is Making Changes to Its Passenger Screening Procedures to Enhance 
Detection Capabilities Based on Risk and Other Factors, but Could 
Strengthen Its Evaluation of Proposed Procedures: 

Proposed Passenger Checkpoint Screening Procedural Changes Are 
Generally Based on Operational Experience and Risk-Based Assessments: 

Our preliminary analysis of TSA data indicates that since April 2005, 
TSA has considered 70 proposed changes to passenger checkpoint 
screening procedures.[Footnote 21] Most of these proposed changes were 
generated by TSA airport officials and TSA's Security Operations 
division, which is responsible for developing and overseeing the 
implementation of checkpoint screening procedures. TSA headquarters 
also formally solicited input from TSA airport staff by initiating a 
field review of standard operating procedures (SOP), which involved 
representatives from airports across the nation. This review resulted 
in 120 suggested revisions to the passenger checkpoint screening 
procedures. To a lesser extent, changes to checkpoint screening 
procedures are recommended by TSA senior leadership, such as the 
Assistant Administrator of Security Operations or the Assistant 
Secretary. Congress has also proposed and subsequently mandated changes 
to checkpoint screening procedures, such as adding lighters to the list 
of items prohibited on aircraft. According to a senior TSA official, 
recent suggestions for procedural changes, such as removing small 
scissors from the prohibited items list to allow TSOs to focus on 
higher risk items, were generated by a TSA task force focused on 
improving the agency's ability to detect explosives at the screening 
checkpoint. 

Based on our preliminary analysis, the majority of proposed SOP changes 
considered by TSA in April 2005, August 2005, September 2005, and 
December 2005 were not specifically designed to enhance the security of 
the screening process.[Footnote 22] Of the 70 proposed checkpoint 
screening SOP changes considered by TSA, 23 were intended to improve 
the efficiency of the screening process (e.g. passenger flow) such as 
modifying the HazMat reporting requirements to exclude torch lighters 
and pepper spray in quantities less than 4 ounces. Seven of the 70 
proposed changes considered by TSA during this period were intended to 
specify or clarify procedures for passengers requiring special 
consideration, such as law enforcement officers. Ten of the proposed 
changes were specifically intended to improve TSA's ability to detect 
prohibited items. Sixteen proposed changes were intended to enhance 
customer service or clarify the wording of the SOP. Fourteen of the 70 
proposed changes were not included in these categories.[Footnote 23] 

According to TSA, security-related proposed changes to checkpoint 
screening procedures are based on risk-based factors, including 
previous terrorist incidents, threat information, vulnerabilities of 
the screening system, as well as operational experience and stakeholder 
concerns. For example, according to TSA officials, the initial change 
to the pat-down procedure in September 2004 was based on the attacks 
carried out on two Russian aircraft. According to TSA, the pat-down 
procedure was further revised in response to passenger concerns that 
the procedure was too invasive. TSA officials stated that the pat-down 
procedure was changed a third time based on additional threat 
information. TSA also informed us that reported threat information led 
them to further amend the pat-down procedure in December 2005. 

Recommended changes to passenger checkpoint screening procedures are 
also generated based on the results of covert testing conducting by 
TSA's Office of Inspections and the DHS Office of Inspector General 
(OIG). Covert tests are designed to assess vulnerabilities in the 
checkpoint screening system to specific threats, such as vulnerability 
to the various methods by which terrorists may try to conceal hand 
guns, knives, or IEDs. OI and the DHS OIG identified vulnerabilities in 
the checkpoint screening system, which existed, in part, due to 
deficiencies in screening procedures. To address these vulnerabilities, 
since March 2005, OI and the DHS OIG recommended four changes to the 
passenger checkpoint screening procedures.[Footnote 24] TSA has also 
made procedure changes in response to operational experience and 
stakeholder concerns. For example, TSA changed the SOP to specify the 
"individual tester" instead of "supervisor" to alleviate field 
confusion that supervisors were the only ones allowed to perform a 
particular task. Also, based on field input, TSA is changing the SOP to 
allow TSOs to instruct passengers with long hair to hold their hair 
during the explosives trace portal (ETP) screening process. TSA also 
made changes due to stakeholder concern, such as modifications to the 
pat-down procedure. After passengers expressed discomfort with the 
invasive nature of the procedure, TSA modified it to be less invasive 
while maintaining its security effectiveness. 

TSA Could Strengthen Its Evaluation of Proposed Screening Procedural 
Changes Based on our Preliminary Observations: 

As previously mentioned, TSA airport staff and headquarters officials 
suggest changes to checkpoint screening procedures to generally improve 
the efficiency, effectiveness and clarity of screening procedures. 
These proposed procedural changes are periodically gathered and vetted 
through various TSA offices, and ultimately the Assistant Administrator 
of Security Operations, for approval. The offices involved in the 
review process for SOP changes include Security Operations, Office of 
Chief Counsel, and the Office of Training. As required, proposed 
procedural changes are also evaluated by other offices including the 
Office of Intelligence and Analysis, Office of Civil Rights, and Office 
of Passengers with Disabilities. Representatives of these component 
divisions meet informally or formally to discuss proposed changes and 
determine whether the changes should be incorporated into the 
checkpoint screening SOP. 

In addition, TSA officials informed us that the agency evaluates all 
significant proposed changes in an operational environment prior to 
determining whether such changes should be implemented nationwide. 
Specifically, under the current Assistant Secretary, TSA pilot tests 
changes that require substantial training or that may generate concerns 
from the traveling public. The significant changes implemented in 
December 2005 include revisions to the pat-down procedure, the 
procedure for searching carry-on luggage, the process for screening 
selectee passengers,[Footnote 25] and the list of items prohibited on 
aircraft. The major changes also include a new procedure for screening 
passengers for IEDs. While TSA evaluated these procedures in an 
operational environment, our preliminary analysis suggests that the 
evaluations primarily focused on the operational feasibility of the 
procedures, and less on how these procedures would reduce vulnerability 
to a terrorist attack. TSA assesses the vulnerability of the existing 
checkpoint screening system by conducting covert tests in which persons 
attempt to carry prohibited items through the checkpoint without the 
items being detected. However, TSA officials questioned whether covert 
testing could be used to assess statistically whether new procedures 
would decrease the vulnerability of the screening system. For example, 
TSA officials stated that since some procedures are only piloted in the 
operational environment for a few days, TSA could not run enough covert 
tests for the results to allow for comprehensive analysis of reduced 
vulnerability. TSA officials also stated that because the agency 
implements a layered approach to passenger screening, it would be 
difficult to determine the extent to which any one layer reduces 
vulnerability of the checkpoint screening system. 

During the course of our review, we met with five aviation security 
experts, four of which identified covert testing as the best way to 
assess the security effectiveness of new and existing procedures. 
However, they also acknowledged the difficulty of using covert testing 
to assess the extent to which specific procedures would reduce 
vulnerabilities, especially considering that the effectiveness of a 
procedure also relies on the capability of TSOs and screening 
equipment. 

TSA also recently piloted additional procedures that would incorporate 
unpredictability into the screening system and that would allow TSOs to 
determine the level of screening passengers should receive based on 
suspicious behavior. While TSA has not yet determined whether to 
incorporate these new procedures into the SOP, our preliminary 
observations indicate that TSA did not have a formal evaluation plan in 
place when piloting these procedures. Regarding screening passengers 
based on suspicious behavior, TSA officials stated that this method has 
been successful for law enforcement officials, including those 
operating in airports, as well as aviation officials in other countries 
such as Israel. FSD staff at three airports that participated in the 
piloting of these procedures identified factors TSA headquarters should 
consider prior to implementing these procedures, one of which is the 
lack of TSOs to conduct these procedures. FSD staff at one airport said 
that they had to close a screening lane in order to have a sufficient 
number of TSOs to implement the piloted procedure. FSD staff at all 
three airports also reported that some TSOs had to work overtime so 
that other TSOs could be trained to implement these procedures. TSA 
headquarters staff stated that the prohibited items list and changes to 
other programs would offset the additional TSO resources needed to 
implement these procedures. However, FSD staff with whom we spoke at 2 
of the airports that piloted these procedures stated that the changes 
made did not free up screening resources as was planned. 

TSA Is Supporting the Development and Deployment of Technologies to 
Strengthen Commercial Aviation Security, but Faces Management and 
Funding Challenges: 

DHS and TSA Are Taking Steps to Develop and Deploy Technologies for 
Screening Passengers and Checked Baggage, but Further Planning Is 
Needed to Focus R&D Efforts: 

DHS's and TSA's research and development efforts for passenger and 
checked baggage screening are part of a broader DHS program focused on 
researching and developing technologies to detect, prevent, and 
mitigate terrorist threats. History has shown that terrorists will 
adapt their tactics and techniques in an attempt to bypass increased 
security procedures, and are capable of developing increasingly 
sophisticated measures in an attempt to avoid detection. This ever 
changing threat necessitates the need for continued R&D of new 
technologies and the fielding of these technologies to strengthen 
aviation security. 

In March 2005, the DHS OIG reported that significant improvement in 
screener performance may not be possible without greater use of new 
technology. The DHS OIG encouraged TSA to expedite its testing programs 
and give priority to technologies that will enable the screening 
workforce to better detect both weapons and explosives. In addition, 
the President's fiscal year 2007 budget request states that checkpoints 
do not currently have the ability to accurately and quickly detect 
explosives on all passengers, and only a minimal number of airline 
passengers are directed to a selectee lane for further inspection in 
which they are manually searched for explosives. The request further 
states that "many travelers are allowed to pass through the checkpoints 
without complete testing and detection," and recognizes the importance 
of filling this detection gap. TSA officials stated that the agency is 
addressing this issue through a variety of security measures. TSA has 
recently put increased focus on the threats posed by IEDs and is 
investing in technology for this purpose. For example, about 60 
explosives trace portal machines have been installed at over 20 
airports. This new technology uses puffs of air to help detect the 
presence of explosives on individuals. DHS's fiscal year 2007 budget 
request states that TSA expects that about 434 explosive trace portal 
machines will be in operation throughout the country by September 2007. 
TSA is also developing backscatter technology, in which backscatter 
signals interact with explosives, plastics and metals, giving them 
shape and form and making them easy to visually interpret. However, 
limited progress has been made in fielding this technology at airport 
passenger screening checkpoints. We will soon begin a review of DHS's 
and TSA's progress in planning for, managing, and deploying their R&D 
programs in support of passenger checkpoint screening operations. 

To enhance checked baggage screening, TSA is developing and testing 
next-generation EDS machines. Most of the currently deployed EDS 
technology was developed prior to the passage of ATSA and was based on 
criteria set forth by Congress in the Aviation Security Improvement Act 
of 1990. According to TSA, since the large-scale deployment of EDS 
machines in 2002 and 2003, manufacturers have only marginally improved 
false alarm rates and throughput capabilities of the equipment. The 
maximum number of bags an EDS machine can screen per hour is 500, which 
can be achieved only when the machines are integrated in-line with the 
baggage conveyor system. New EDS equipment was certified in 2005, 
including a smaller EDS machine designed to replace ETD machines used 
for primary screening and an upgraded large EDS machine. In September 
2005, TSA entered into a $24.8 million contract to purchase 72 smaller 
EDS machines to be installed at 24 airports. The President's fiscal 
year 2007 budget request for TSA includes funding to support research 
and development for EDS machines that can operate at up to 900 bags per 
hour and employ new threat detection concepts. In its February 2006 
strategic framework for checked baggage screening, TSA identified 
development of high-throughput EDS machines and lowering of false alarm 
rates as key arenas for improving investment management of next- 
generation technologies. 

We reported in September 2004 that DHS and TSA have made some progress 
in managing transportation security R&D programs according to 
applicable laws and R&D best practices. However, we found that their 
efforts were incomplete in several areas, including preparing strategic 
plans for R&D efforts that contain measurable objectives, preparing and 
using risk assessments to select and prioritize R&D projects, and 
coordinating with stakeholders--a condition that increases the risk 
that their R&D resources will not be effectively leveraged. We also 
found that TSA and DHS delayed several key R&D projects and lacked both 
estimated deployment dates for the vast majority of their R&D projects 
and adequate databases to effectively manage their R&D portfolios. We 
recommended that DHS and TSA (1) conduct some basic research in the 
transportation security area; (2) complete their strategic planning and 
risk assessment efforts; (3) develop a management information system 
that will provide accurate, complete, current, and readily accessible 
project information for monitoring and managing their R&D portfolios; 
and (4) develop a process with the Department of Transportation to 
coordinate transportation security R&D efforts and share this 
information with transportation stakeholders. DHS and TSA agreed that 
the recommendations were key to a successful R&D program. We will 
examine DHS's and TSA's efforts to implement these recommendations as 
part our upcoming review of TSA's checkpoint R&D program. 

TSA Is Focusing Its Checked Baggage Strategic Planning Efforts on 
Deployment of In-line EDS Systems, but Faces Challenges in Funding 
These Systems on a Large-Scale Basis: 

TSA has made substantial progress in installing EDS and ETD systems at 
the nation's airports--mainly as part of interim lobby screening 
solutions--to provide the capability to screen all checked baggage for 
explosives, as mandated by Congress. Although TSA made progress in 
fielding EDS and ETD equipment at the nation's airports, TSA placed 
this equipment in a stand-alone mode--usually in airport lobbies--to 
conduct the primary screening of checked baggage for explosives, rather 
than integrating EDS machines in-line with airports' baggage conveyor 
systems. TSA officials stated that they employed these interim 
solutions because of the significant costs required to install in-line 
systems and the need to reconfigure many airports' baggage conveyor 
systems to accommodate the equipment. These interim screening solutions 
led to operational inefficiencies, including requiring a greater number 
of screeners and screening fewer bags for explosives each hour, as 
compared with using EDS machines in-line with baggage conveyor systems. 
Performing primary screening using ETD machines, as is the case for 
more than 300 airports, is more labor intensive and less efficient than 
screening using the EDS process. TSA's placement of stand-alone EDS and 
ETD machines in airport lobbies also resulted in passenger crowding, 
which presented unsafe conditions and may have added security risks for 
passengers and airport workers. In May 2004, TSA conducted a 
retrospective cost-benefit analysis on nine airports with agreements to 
install in-line screening systems and found that significant savings 
and other benefits, including reduced screener staffing requirements 
and increased baggage throughput, may be achieved through the 
installation of in-line systems. TSA estimated that in-line baggage 
screening systems at these nine airports would save the federal 
government about $1 billion over 7 years,[Footnote 26] compared with 
stand-alone EDS systems, and that initial investment would be recovered 
in a little over 1 year.[Footnote 27] TSA's analysis also showed that a 
cost savings may not be achieved for all airports. According to TSA's 
data, federal cost savings varied from about $50 million to over $250 
million at eight of the nine airports, while at one airport, there was 
an estimated $90 million loss.[Footnote 28] 

With the objective of initially fielding this equipment largely 
accomplished, TSA is shifting its focus from equipping airports with 
interim screening solutions to systematically planning for the more 
optimal deployment of checked baggage screening systems, although 
identifying the resources to fund the systems on a large-scale basis 
continues to be a challenge. To assist TSA in planning for the optimal 
deployment of checked baggage screening systems, we recommended in our 
March 2005 report that TSA systematically evaluate baggage screening 
needs at airports, including the costs and benefits of installing in- 
line baggage screening systems--explosive detection systems integrated 
in-line with airport baggage conveyor systems--at airports that do not 
yet have in-line systems installed. We suggested that part of such 
planning should include analyzing which airports should receive federal 
support for in-line EDS baggage screening systems based on cost savings 
that could be achieved from more effective and efficient baggage 
screening operations and on other factors, including enhanced security. 
Also, for airports where in-line systems may not be economically 
justified because of high investment costs, we suggested that a cost- 
effectiveness analysis be used to determine the benefits of additional 
stand-alone EDS machines to screen checked baggage in place of the more 
labor-intensive ETD machines. We also recommended that TSA consider the 
costs and benefits of the new technologies being developed through its 
research and development efforts, which could provide smaller EDS 
machines that have the potential to reduce the costs associated with 
installing in-line EDS baggage screening systems or to replace ETD 
machines currently used as the primary method for screening at over 300 
airports nationwide. DHS agreed with our recommendations and stated 
that TSA had initiated an analysis of deploying in-line EDS machines 
and was in the process of formulating criteria to identify those 
airports that would benefit from an in-line EDS system. DHS also stated 
that TSA had begun conducting an analysis of the airports that rely 
heavily on ETD machines as the primary checked baggage screening 
technology to identify those airports that would benefit from 
augmenting ETDs with stand-alone EDS equipment. 

On February 8, 2006, TSA issued a report to Congress outlining a 
framework for a strategic plan for its TSA Checked Baggage Screening 
Program. TSA plans to finalize the plan, including funding and cost- 
sharing strategies for in-line baggage screening systems, in Spring 
2006. The framework introduces a strategy intended to increase security 
through deploying EDS to as many airports as practicable, lower life- 
cycle costs for the program, minimize impacts to TSA and 
airport/airline operations, and provide a flexible security 
infrastructure for accommodating growing airline traffic and potential 
new threats. The framework addresses the following issues: 

* Optimized checked baggage screening solutions--finding the ideal mix 
of higher-performance and lower-cost alternative screening solutions. 

* Funding prioritization schedule by airport--which airports should 
receive funding for an in-line baggage screening system based on 
quantitative modeling of security, economic, and other factors. 

* Deployment strategy--a plan for the acquisition of next-generation 
EDS systems, the redeployment of existing EDS assets, and investment in 
life-cycle extension programs. 

* EDS Life-Cycle Management Plan--structured guidelines for EDS R&D 
investment, procurement specifications for next-generation EDS systems, 
and the redeployment of existing EDS assets and investment in life-
cycle extension programs that minimize the cost of ownership of the EDS 
systems. 

* Stakeholder collaboration plan--TSA plans to work closely with 
airport operators and other key stakeholders to develop airport- 
specific screening solutions, refine the nationwide EDS deployment 
strategy, and investigate alternative funding programs that may allow 
for innovative as well as non-federal sources of funding or financing, 
including formulas for sharing costs between different government 
entities and the private sector. 

This strategic framework is a positive step forward in systematically 
planning for TSA's checked baggage screening program. The completion of 
a strategic plan for this program should help TSA ensure that it is 
efficiently allocating its limited resources to maximize the 
effectiveness of its checked baggage screening operations. However, it 
will be important for TSA to complete their analysis and plans for the 
funding of in-line EDS systems, which has been the primary obstacle to 
the deployment of these systems over the past few years. 

TSA Has Strengthened Its Efforts to Measure the Effectiveness of 
Screening Systems: 

TSA has strengthened its efforts to measure the performance of the 
various components of the passenger and checked baggage screening 
systems--people, processes, and technology--but results of covert 
testing identified that weaknesses and vulnerabilities continue to 
exist. In November 2003, we reported on the need for TSA to strengthen 
its efforts to measure the performance of its aviation security 
system.[Footnote 29] At that time, TSA had collected limited data on 
the effectiveness of its aviation security programs and initiatives. 
Specifically, limited covert testing had been performed, the Threat 
Image Projection (TIP) system[Footnote 30] was not fully operational at 
passenger screening checkpoints and was not available for checked 
baggage screening systems, and TSA had not fully implemented a 
congressionally mandated annual screener proficiency review (referred 
to as the recertification program). Since then, TSA has implemented and 
strengthened efforts to collect performance data in these areas. 

In the area of covert testing, TSA headquarters increased the amount of 
passenger and checked baggage screening covert tests it performs and 
recently changed its approach to covert testing to focus its resources 
on catastrophic threats--threats that can take down an airplane or blow 
up an airplane. These tests, in which undercover OI inspectors attempt 
to pass threat objects through passenger screening checkpoints and in 
checked baggage, are designed to measure vulnerabilities in passenger 
and checked baggage screening systems and to identify systematic 
problems affecting performance of TSOs in the areas of people 
(training), processes (procedures), and technology. OI began conducting 
covert testing in September 2002, conducting test scenarios for the 
passenger checkpoint and for checked baggage. These scenarios were 
carried over from tests developed and conducted under FAA, but OI 
reported using more updated weapons than those used by FAA and more 
robust tests. TSA considers its covert testing as a snapshot of a TSO's 
ability to detect threat objects at a particular point in time, as one 
of several indicators of systemwide screener performance, and as an 
important mechanism for identifying areas in passenger and checked 
baggage screening needing improvement. 

In September 2003, we reported that OI had conducted limited covert 
testing, but planned to double the amount of tests it conducted during 
fiscal year 2004, based on an anticipated increase in its staff from 
about 100 full-time equivalents to about 200 full-time 
equivalents.[Footnote 31] TSA officials stated that based on budget 
constraints, OI's fiscal year 2004 staffing authorization was limited 
to 183 full-time-equivalents.[Footnote 32] Despite a smaller than 
expected staff increase, by the end of the second quarter of fiscal 
year 2004, OI had already surpassed the number of tests it had 
performed during fiscal year 2003--conducting a total of 836 tests in 
fiscal year 2003 and 1,233 in the first two quarters of fiscal year 
2004.[Footnote 33] 

Our analysis of TSA's covert testing results for tests conducted 
between September 2002 and September 2005 identified that overall, 
weaknesses existed in the ability of screeners to detect threat objects 
on passengers, in their carry-on bags, and in checked baggage. Covert 
testing results in this analysis cannot be generalized either to the 
airports where the tests were conducted or to airports 
nationwide.[Footnote 34] 

During the first 3 years of covert testing, OI decided to maintain the 
same test scenarios and same level of difficulty so that test results 
would be comparable over time.[Footnote 35] In July 2005, OI began 
revamping its covert testing program based on the results of the 
Secretary of DHS's Second Stage Review--a review of the department's 
programs, policies, operations, and structure.[Footnote 36] 
Specifically, the Assistant Secretary of DHS, TSA, instructed OI to 
implement a more risk-based approach and focus its resources on 
catastrophic threats--threats that can take down an airplane or blow up 
an airplane. In August 2005, the Assistant Secretary of DHS, TSA, 
further instructed OI to discontinue its former covert testing program 
and implement the revamped covert testing program. OI began 
implementation of its revamped testing in September 2005. OI conducted 
117 tests over a 1-week period at one airport focusing on catastrophic 
threats and incorporated additional testing elements that had not 
previously been included. According to OI officials, this testing 
involved over 50 personnel from various TSA components. Since then, OI 
has conducted tests at three additional airports.[Footnote 37] OI 
officials stated that TSA leadership is considering these initial tests 
in making final determinations regarding the revised testing program 
that OI will implement, and that final decisions regarding the 
structure, content, and frequency of these tests have not yet been 
made. 

In February 2004, TSA provided protocols to help FSDs conduct their own 
covert testing of local airport passenger screening activities--a 
practice that TSA had previously prohibited.[Footnote 38] Between May 
2004 and April 2005, FSDs conducted a total of 17,954 local covert 
tests at 350 airports; as of February 2006, TSA reported that FSDs had 
conducted a total of 48,826 local covert tests. In February 2005, TSA 
released a general procedures document for local covert testing at 
checked baggage screening locations. Between March 2005 and September 
2005, 1,370 local tests of EDS screening were conducted at 71 airports. 
TSA headquarters officials stated that a key challenge FSDs face in 
conducting local testing is the lack of available federal staff to 
conduct the testing, particularly at smaller airports. In May 2005, we 
reported that TSA officials stated that they had not yet begun to use 
data from local covert testing to identify training and performance 
needs because of difficulties in ensuring that local covert testing is 
implemented consistently nationwide.[Footnote 39] TSA officials stated 
in March 2006 that data is available for use by FSDs to identify 
training needs and TSO performance. 

Covert testing is one method TSA uses to measure the security 
effectiveness of passenger and checked baggage screening procedures and 
technologies in the operating environment in addition to other TSA 
measures that assess the performance of passenger and checked baggage 
TSOs. One other source of information on TSO performance in detecting 
threat objects is the results from the TIP system. TIP is designed to 
test passenger screeners' detection capabilities by projecting threat 
images, including images of guns, knives, and explosives, onto bags as 
they are screened during actual operations. TSOs are responsible for 
identifying the threat image and calling for the bag to be searched. 
Once prompted, TIP identifies to the screener whether the threat is 
real and then records the TSO's performance in a database that could be 
analyzed for performance trends.[Footnote 40] TIP threat detection 
results in conjunction with OI covert test results and local testing 
are intended to assist TSA in identifying specific training and 
performance improvement efforts. 

In May 2005, we reported that in October 2003 TSA reactivated TIP as 
planned with an expanded library of 2,400 images at all but 1 of the 
more than 1,800 checkpoint lanes nationwide. In December 2005, TSA 
reported that it has further expanded the image library to include 
additional images of IEDs and IED components as part of its effort to 
improve TSOs' detection of explosives. Additionally, the President's 
fiscal year 2007 budget request states that TSA plans to maximize the 
training benefits of the TIP system by tailoring TIP sessions to 
address individual TSO weaknesses revealed in user performance data. 
For example, if a TSO has particular difficulty identifying IEDs, the 
TIP would trigger the projection of a higher proportion of simulated 
IEDs while that TSO was operating the machine than under standard 
circumstances. While there have been improvements in TIP for passenger 
screening, TIP is not yet available for checked baggage screening. In 
April 2004, we reported that TSA officials stated that they were 
working to resolve technical challenges associated with using TIP for 
checked baggage screening on EDS machines and have started EDS TIP 
image development.[Footnote 41] However, in December 2004, TSA 
officials stated that because of severe budget reductions, TSA will be 
unable to begin implementing a TIP program for checked baggage in 
fiscal year 2005. Officials did not specify when such a program might 
begin. 

Another measure of TSO performance is the results of annual 
recertification testing. ATSA requires that each TSO receive an annual 
proficiency review to ensure he or she continues to meet all 
qualifications and standards required to perform the screening 
function. To meet this requirement, TSA established a recertification 
program. The first recertification program--which was conducted during 
the period October 2003 through March 2004--was composed of two 
assessment components, one of TSOs' performance and the other of TSOs' 
knowledge and skills. During the performance assessment component of 
the recertification program, TSOs are rated on both organizational and 
individual goals, such as maintaining the nation's air security, 
vigilantly carrying out duties with utmost attention to tasks that will 
prevent security threats, and demonstrating the highest levels of 
courtesy to travelers to maximize their levels of satisfaction with 
screening services. The knowledge and skills assessment component 
consists of three modules: (1) knowledge of standard operating 
procedures, (2) image recognition, and (3) practical demonstration of 
skills. 

Across all airports, TSOs performed well on the recertification testing 
for the first 2 years the program was in place, with about 1 percent of 
TSOs subject to recertification failing to complete this requirement. 
In both years, TSOs faced the greatest difficulty on their first 
attempt to pass the practical demonstration of skills module--a hands- 
on simulated work sample used to evaluate a screener's knowledge, 
skill, and ability when performing specific screener tasks along with 
the ability to provide customer service.[Footnote 42] According to TSA 
officials, at the completion of recertification at an airport, TSA 
management has access to reports at both the individual TSO and airport 
level, which identify the specific areas that were missed during 
testing. National level reports are also available that isolate areas 
that need improvement and can be targeted in basic and recurrent 
training. In fiscal year 2004, TSA established a performance measure 
for the recertification program.[Footnote 43] 

During the first year of recertification testing, dual-function TSOs 
who were actively working as both passenger and checked baggage TSOs 
were required to take only the recertification test for passenger TSOs. 
They were therefore not required to take the recertification testing 
modules required for checked baggage, even though they worked in that 
capacity.[Footnote 44] TSA's second annual recertification testing, 
which began in October 2004, included components for dual-function 
TSOs, but did not include an image recognition module for checked 
baggage TSOs--which would include dual-function screeners performing 
checked baggage screening. TSA officials stated that a decision was 
made to not include an image recognition module for checked baggage 
TSOs during this cycle because not all checked baggage TSOs would have 
completed training on the onscreen resolution protocol by the time 
recertification testing was conducted at their airports.[Footnote 45] 
In October 2005, TSA released guidance for screener recertification 
that included an image recognition module for checked baggage and dual- 
function screeners trained in the onscreen alarm resolution protocol. 

In addition to enhancing its efforts to measure the performance of 
TSOs, TSA also has developed two performance indexes to measure the 
effectiveness of the passenger and checked baggage screening systems. 
These indexes measure overall performance through a composite of 
indicators and are derived by combining specific performance measures 
relating to passenger and checked baggage screening, respectively. 
Specifically, these indexes measure the effectiveness of the screening 
systems through machine probability of detection and covert testing 
results;[Footnote 46] efficiency through a calculation of dollars spent 
per passenger or bag screened; and customer satisfaction through a 
national poll, customer surveys, and customer complaints at both 
airports and TSA's national call center. We reported in May 2005 that 
the screening performance indexes developed by TSA can be a useful 
analysis tool, but without targets for each component of the index, TSA 
will have difficulty performing meaningful analyses of the parts that 
make up to the index. For example, without performance targets for 
covert testing, TSA will not have identified a desired level of 
performance related to screener detection of threat objects. 
Performance targets for covert testing would enable TSA to focus its 
improvement efforts on areas determined to be most critical, as 100 
percent detection capability may not be attainable. In January 2005, 
TSA officials stated that the agency planned to track the performance 
of individual index components and establish performance targets 
against which to measure these components. 

Concluding Observations: 

Since its inception, TSA has achieved significant accomplishments in 
meeting congressional mandates related to establishing passenger and 
checked baggage screening operations. With the initial congressional 
mandates now largely met, TSA has turned its attention to assessing and 
enhancing the efficiency and effectiveness of its passenger and checked 
baggage screening systems. As threats and technology evolve, it is 
vital that TSA continue to enhance training and procedures for the TSO 
workforce. Over the past several years, TSA has strengthened its TSO 
training program in an effort to ensure that TSOs have the knowledge 
and skills needed to successfully perform their screening functions. 
However, without addressing the challenges to delivering ongoing 
training, including installing high-speed connectivity at airport 
training facilities, TSA may have difficulty maintaining a screening 
workforce that possesses the critical skills needed to perform at a 
desired level. TSA is also revising existing screening procedures and 
developing new procedures to enhance security effectiveness, many of 
which are risk-based, as we have previously advocated. Additionally, 
TSA has developed a staffing model intended to provide the necessary 
levels of TSOs to support security activities at the nation's airports. 
However, given the challenges TSA faces in determining appropriate 
staffing levels at airports--to include hiring the appropriate mix of 
part-time TSOs needed to support screening functions--it is critical 
that TSA carefully consider how it strategically hires, deploys, and 
manages its TSO workforce to help strengthen its passenger and checked 
baggage screening programs. 

As TSA works towards improving the performance of individual TSOs and 
screening operations, it will also be important that the agency deploy 
and leverage screening equipment and technologies, sustain its research 
and development efforts, and strengthen its R&D management and planning 
efforts. We are encouraged that TSA is currently undertaking efforts to 
systematically analyze the cost and benefits of in-line baggage 
screening systems and to identify innovative funding and financing 
options. This planning should help TSA support future funding requests 
by demonstrating enhanced security, improved operational efficiencies, 
and cost savings to both TSA and the affected airports. 

Mr. Chairman, this concludes my statement. I would be pleased to answer 
any questions that you or other members of the Committee may have at 
this time. 

Contact Information: 

For further information on this testimony, please contact Cathleen A. 
Berrick at (202) 512-3404 or berrickc@gao.gov. Contact points for our 
Offices of Congressional Relations and Public Affairs may be found on 
the last page of this statement. 

In addition to the contact named above, Kristy Brown, Philip Caramia, 
Kevin Copping, Katherine Davis, Christine Fossett, Tom Lombardi, Laina 
Poon, and Maria Strudwick made key contributions to this testimony. 

[End of section] 

Related GAO products: 

Aviation Security: Significant Management Challenges May Adversely 
Affect Implementation of the Transportation Security Administration's 
Secure Flight Program. GAO-06-374T. Washington, D.C.: February 9, 2006. 

Aviation Security: Federal Air Marshal Service Could Benefit from 
Improved Planning and Controls, GAO-06-203. Washington, D.C.: November 
28, 2005. 

Aviation Security: Federal Action Needed to Strengthen Domestic Air 
Cargo Security, GAO-06-76. Washington, D.C.: October 17, 2005. 

Transportation Security Administration: More Clarity on the Authority 
of Federal Security Directors Is Needed. GAO-05-935. Washington, D.C.: 
September 23, 2005. 

Aviation Security: Flight and Cabin Crew Member Security Training 
Strengthened, but Better Planning and Internal Controls Needed. GAO-05- 
781. Washington, D.C.: September 6, 2005. 

Aviation Security: Transportation Security Administration Did Not Fully 
Disclose Uses of Personal Information During Secure Flight Program 
Testing in Initial Privacy Notes, but Has Recently Taken Steps to More 
Fully Inform the Public. GAO-05-864R. Washington, D.C.: July 22, 2005. 

Aviation Security: Better Planning Needed to Optimize Deployment of 
Checked Baggage Screening Systems. GAO-05-896T. Washington, D.C.: July 
13, 2005. 

Aviation Security: Screener Training and Performance Measurement 
Strengthened, but More Work Remains. GAO-05-457. Washington, D.C.: May 
2, 2005. 

Aviation Security: Secure Flight Development and Testing Under Way, but 
Risks Should Be Managed as System Is Further Developed. GAO-05-356. 
Washington, D.C.: March 28, 2005. 

Aviation Security: Systematic Planning Needed to Optimize the 
Deployment of Checked Baggage Screening Systems. GAO-05-365. 
Washington, D.C.: March 15, 2005. 

Aviation Security: Measures for Testing the Effect of Using Commercial 
Data for the Secure Flight Program. GAO-05-324. Washington, D.C.: 
February 23, 2005. 

Transportation Security: Systematic Planning Needed to Optimize 
Resources. GAO-05-357T. Washington, D.C.: February 15, 2005. 

Aviation Security: Preliminary Observations on TSA's Progress to Allow 
Airports to Use Private Passenger and Baggage Screening Services. GAO- 
05-126. Washington, D.C.: November 19, 2004. 

General Aviation Security: Increased Federal Oversight Is Needed, but 
Continued Partnership with the Private Sector Is Critical to Long-Term 
Success. GAO-05-144. Washington, D.C.: November 10, 2004. 

Aviation Security: Further Steps Needed to Strengthen the Security of 
Commercial Airport Perimeters and Access Controls. GAO-04-728. 
Washington, D.C.: June 4, 2004. 

Transportation Security Administration: High-Level Attention Needed to 
Strengthen Acquisition Function. GAO-04-544. Washington, D.C.: May 28, 
2004. 

Aviation Security: Challenges in Using Biometric Technologies. GAO-04- 
785T. Washington, D.C.: May 19, 2004. 

Nonproliferation: Further Improvements Needed in U.S. Efforts to 
Counter Threats from Man-Portable Air Defense Systems. GAO-04-519. 
Washington, D.C.: May 13, 2004. 

Aviation Security: Private Screening Contractors Have Little 
Flexibility to Implement Innovative Approaches. GAO-04-505T. 
Washington, D.C.: April 22, 2004. 

Aviation Security: Improvement Still Needed in Federal Aviation 
Security Efforts. GAO-04-592T. Washington, D.C.: March 30, 2004. 

Aviation Security: Challenges Delay Implementation of Computer- 
Assisted Passenger Prescreening System. GAO-04-504T. Washington, D.C.: 
March 17, 2004. 

Aviation Security: Factors Could Limit the Effectiveness of the 
Transportation Security Administration's Efforts to Secure Aerial 
Advertising Operations. GAO-04-499R. Washington, D.C.: March 5, 2004. 

Aviation Security: Computer-Assisted Passenger Prescreening System 
Faces Significant Implementation Challenges. GAO-04-385. Washington, 
D.C.: February 13, 2004. 

Aviation Security: Challenges Exist in Stabilizing and Enhancing 
Passenger and Baggage Screening Operations. GAO-04-440T. Washington, 
D.C.: February 12, 2004. 

The Department of Homeland Security Needs to Fully Adopt a Knowledge- 
based Approach to Its Counter-MANPADS Development Program. GAO-04-341R. 
Washington, D.C.: January 30, 2004. 

Aviation Security: Efforts to Measure Effectiveness and Strengthen 
Security Programs. GAO-04-285T. Washington, D.C.: November 20, 2003. 

Aviation Security: Federal Air Marshal Service Is Addressing Challenges 
of Its Expanded Mission and Workforce, but Additional Actions Needed. 
GAO-04-242. Washington, D.C.: November 19, 2003. 

Aviation Security: Efforts to Measure Effectiveness and Address 
Challenges. GAO-04-232T. Washington, D.C.: November 5, 2003. 

Airport Passenger Screening: Preliminary Observations on Progress Made 
and Challenges Remaining. GAO-03-1173. Washington, D.C.: September 24, 
2003. 

Aviation Security: Progress Since September 11, 2001, and the 
Challenges Ahead. GAO-03-1150T. Washington, D.C.: September 9, 2003. 

Transportation Security: Federal Action Needed to Enhance Security 
Efforts. GAO-03-1154T. Washington, D.C.: September 9, 2003. 

Transportation Security: Federal Action Needed to Help Address Security 
Challenges. GAO-03-843. Washington, D.C.: June 30, 2003. 

Federal Aviation Administration: Reauthorization Provides Opportunities 
to Address Key Agency Challenges. GAO-03-653T. Washington, D.C.: April 
10, 2003. 

Transportation Security: Post-September 11th Initiatives and Long-Term 
Challenges. GAO-03-616T. Washington, D.C.: April 1, 2003. 

Airport Finance: Past Funding Levels May Not Be Sufficient to Cover 
Airports' Planned Capital Development. GAO-03-497T. Washington, D.C.: 
February 25, 2003. 

Transportation Security Administration: Actions and Plans to Build a 
Results-Oriented Culture. GAO-03-190. Washington, D.C.: January 17, 
2003. 

Aviation Safety: Undeclared Air Shipments of Dangerous Goods and DOT's 
Enforcement Approach. GAO-03-22. Washington, D.C.: January 10, 2003. 

Aviation Security: Vulnerabilities and Potential Improvements for the 
Air Cargo System. GAO-03-344. Washington, D.C.: December 20, 2002. 

Aviation Security: Registered Traveler Program Policy and 
Implementation Issues. GAO-03-253. Washington, D.C.: November 22, 2002. 

Airport Finance: Using Airport Grant Funds for Security Projects Has 
Affected Some Development Projects. GAO-03-27. Washington, D.C.: 
October 15, 2002. 

Commercial Aviation: Financial Condition and Industry Responses Affect 
Competition. GAO-03-171T. Washington, D.C.: October 2, 2002. 

Aviation Security: Transportation Security Administration Faces 
Immediate and Long-Term Challenges. GAO-02-971T. Washington, D.C.: July 
25, 2002. 

Aviation Security: Information Concerning the Arming of Commercial 
Pilots. GAO-02-822R. Washington, D.C.: June 28, 2002. 

Aviation Security: Vulnerabilities in, and Alternatives for, Preboard 
Screening Security Operations. GAO-01-1171T. Washington, D.C.: 
September 25, 2001. 

Aviation Security: Weaknesses in Airport Security and Options for 
Assigning Screening Responsibilities. GAO-01-1165T. Washington, D.C.: 
September 21, 2001. 

Homeland Security: A Framework for Addressing the Nation's Efforts. GAO-
01-1158T. Washington, D.C.: September 21, 2001. 

Aviation Security: Terrorist Acts Demonstrate Urgent Need to Improve 
Security at the Nation's Airports. GAO-01-1162T. Washington, D.C.: 
September 20, 2001. 

Aviation Security: Terrorist Acts Illustrate Severe Weaknesses in 
Aviation Security. GAO-01-1166T. Washington, D.C.: September 20, 2001. 

FOOTNOTES 

[1] ATSA created TSA as an agency within the Department of 
Transportation (DOT) with responsibility for securing all modes of 
transportation, including aviation. Pub. L. No. 107-71, § 101, 115 
Stat. 597 (2001). The Homeland Security Act of 2002, signed into law on 
November 25, 2002, transferred TSA from the DOT to the new Department 
of Homeland Security Pub. L. No. 107-296, § 403, 116 Stat. 2135, 2178. 

[2] TSA defines an operational screening test as any covert test of a 
screener conducted by TSA, on any screening function, to assess the 
screener's threat item detection ability or adherence to TSA-approved 
procedures. 

[3] Pursuant to the Homeland Security Act, the deadline for screening 
all checked baggage using explosive detection systems was, in effect, 
extended until December 31, 2003. 

[4] Sterile areas are areas located within the terminal where 
passengers wait after screening to board departing aircraft. Access to 
these areas is generally controlled by TSA screeners at checkpoints 
where they conduct physical screening of passengers and their carry-on 
baggage for weapons and explosives. 

[5] TSOs must deny passage beyond the screening location to any 
individual or property that has not been screened or inspected in 
accordance with passenger screening standard operating procedures. If 
an individual refuses to permit inspection of any item, that item must 
not be allowed into the sterile area or aboard an aircraft. 

[6] Explosive detection systems use probing radiation to examine 
objects inside baggage and identify the characteristic signatures of 
threat explosives. EDS equipment operates in an automated mode. 

[7] Explosive trace detection works by detecting vapors and residues of 
explosives. Human operators collect samples by rubbing bags with swabs, 
which are chemically analyzed to identify any traces of explosive 
materials. 

[8] Positive passenger bag match is an alternative method of screening 
checked baggage that requires that the passenger be on the same 
aircraft as the checked baggage. 

[9] ATSA required that TSA begin allowing all commercial airports to 
apply to TSA to transition from a federal to a private TSO workforce. 
To support this effort, TSA created the Screening Partnership Program 
to allow all commercial airports an opportunity to apply to TSA for 
permission to use qualified private screening contractors and private 
sector screeners. Currently, private screening companies provide 
passenger and checked baggage screening at six airports. 

[10] Department of Homeland Security Appropriations Act, 2006, Pub. L. 
No. 109-90, 119 Stat. 2064 (2005); H.R. Conf. Rep. No. 109-241, at 49- 
50 (2005). 

[11] GAO, Aviation Security: Challenges Exist in Stabilizing and 
Enhancing Passenger and Baggage Screening Operations, GAO-04-440T 
(Washington, D.C.: Feb. 12, 2004). 

[12] Intelligence Reform and Terrorism Prevention Act of 2004, Pub. L. 
No. 108-458, § 4023, 118 Stat 3638, 3723-24. 

[13] One full-time-equivalent is equal to one work year or 2,080 non- 
overtime hours. 

[14] This budgetary FTE limit is not to be confused with the 45,000 FTE 
screener cap imposed by Congress in the FY2006 DHS Appropriations Act 
that limits the total number of FTE screeners available to TSA. 

[15] We interviewed FSD staff at 3 category X airports, 1 category I 
airports, and 1 category III airport. TSA classifies the commercial 
airports in the United States into one of five security risk categories 
(X, I, II, III, IV, and V) based on various factors, such as the total 
number of takeoffs and landings annually, and other special security 
considerations. In general, category X airports have the largest number 
of passenger boardings, and category IV airports have the smallest. 

[16] GAO-04-440T. 

[17] GAO, Airport Passenger Screening: Preliminary Observations on 
Progress Made and Challenges Remaining, GAO-03-1173 (Washington, D.C.: 
Sept. 24, 2003). 

[18] Some recommendations appear repeatedly in multiple reports issued 
by OIAPR. 

[19] GAO, Aviation Security: Screener Training and Performance 
Measurement Strengthened but More Work Remains, GAO-05-457 (Washington 
D.C.: May 2, 2005). 

[20] According to the budget request, the remaining $36 million is 
needed to support operations and maintenance costs, including recurring 
costs for routers, switches, circuits, cabinets, racks, and network 
monitoring. 

[21] In April 2005, TSA began documenting proposed changes to passenger 
checkpoint screening procedures. 

[22] TSA does not review proposed SOP changes on a regular basis. 
Rather, the administration accumulates proposed changes and reviews 
them periodically on an as-needed basis. Since TSA began documenting 
proposed changes to checkpoint screening procedures, the agency has 
conducted three reviews of proposed changes, which took place in April 
2005, August 2005, and September 2005. 

[23] TSA attributed nine proposed changes to senior leadership 
direction, and TSA did not categorize five proposed changes from 2005. 

[24] Office of Inspections recommended two additional changes to 
checkpoint screening procedures prior to March 2005. 

[25] A selectee is a person identified for additional screening by a 
computer-assisted passenger screening system or another process as 
determined and approved by TSA. 

[26] This figure refers to the net present value saved over 7 years if 
received up front. 

[27] For a basis of comparison, Office of Management and Budget 
Circular A-94 stipulates using a 7 percent real discount rate to 
compute the present value of cost savings. TSA used a 4 percent real 
discount rate. Following Office of Management and Budget guidance, cost 
savings are $1.14 billion. In addition, in TSA's analysis, the federal 
government does not pay for $319 million, or 25 percent, of project 
costs. Accounting for these costs to reflect total costs, as 
recommended by Circular A-94, lowers overall savings to $820 million. 

[28] The relatively large costs for upfront in-line EDS at one airport 
are not offset by the modest amount of estimated operation and 
maintenance cost savings; therefore, the in-line EDS system may be more 
costly than EDS stand-alone. By contrast, at another airport the 
upfront costs of in-line EDS are lower than for stand-alone EDS, and 
there is a substantial amount of estimated operation and maintenance 
cost savings. Therefore, the in-line EDS system for this latter airport 
may be less costly than stand-alone EDS. 

[29] GAO, Aviation Security: Efforts to Measure Effectiveness and 
Address Challenges, GAO-04-232T, (Washington, D.C.: Nov. 5, 2003). 

[30] The Threat Image Projection system is designed to test TSOs' 
detection capabilities by projecting threat images, including images of 
guns and explosives, into bags as they are screened. TSOs are 
responsible for positively identifying the threat image and calling for 
the bag to be searched. 

[31] GAO-03-1173. 

[32] Covert testing is an ancillary duty and not a full-time assignment 
for the majority of OI staff. According to OI, 14 full-time-equivalent 
positions in headquarters are dedicated fully to the covert testing 
program, which includes covert testing of all modes of transportation, 
not just airports. These 14 full-time-equivalents are in a special 
group that forms the core of team leaders for the covert testing trips. 

[33] OI conducted a total of 2,369 passenger and checked baggage covert 
tests in fiscal year 2004. 

[34] Test results cannot be generalized because sample tests were not 
identified using the principles of probability sampling. In a 
probability sample to assess screener detection of threat objects, each 
screening of a passenger or baggage would have to have a chance of 
being selected. A well-designed probability sample would enable failure 
rates to be generalized to all airports. However, for cost and 
operational reasons, probability sampling may not be feasible for 
passenger and checked baggage screening because it would require a very 
large sample size and an exhaustive examination of each sampled 
passenger or baggage to determine if there was a threat object to 
detect. 

[35] In August 2004, OI began piloting various enhanced covert test 
scenarios based on more current threat information. 

[36] The review examined elements of the Department of Homeland 
Security in order to recommend ways that DHS could better manage risk 
in terms of threat, vulnerability, and consequence; prioritize policies 
and operational missions according to this risk-based approach; and 
establish a series of preventive and protective steps that would 
increase security at multiple levels. 

[37] OI conducted testing at two of the three airports twice during 
September 2005 through December 2005. 

[38] The local covert testing protocols were updated in June 2004 and 
August 2004 to provide information on alternative testing methods. 

[39] GAO-05-457. 

[40] The TIP database records both the TIP hit rate and TIP false alarm 
rate. These two results are used to determine the probability of 
detection and probability of false alarm, which determine overall TIP 
performance. The TIP performance measure is classified as sensitive 
security information. 

[41] GAO, Aviation Security: Private Screening Contractors Have Little 
Flexibility to Implement Innovative Approaches, GAO-04-505T 
(Washington, D.C.: April 22, 2004). 

[42] We cannot reported on the specific results of the testing due to 
the security classification of this testing. 

[43] Information related to the measures is sensitive security 
information. 

[44] As of January 7, 2005, TSA reported that its workforce included 
approximately 25,947 dual-trained TSOs who were certified to serve as 
passenger or baggage TSOs. 

[45] TSA's onscreen resolution protocol requires that when an EDS 
machine alarm goes off, indicating the possibility of explosives, TSA 
screeners, by reviewing computer-generated images of the inside of the 
bag, attempt to determine whether or not a suspect item or items are in 
fact explosive materials. If the screener is unable to make this 
determination, the bag is diverted from the main conveyor belt into an 
area where it receives a secondary screening by a screener with an ETD 
machine. 

[46] According to TSA, the machine probabilities of detection are 
established by the certification standards for each particular model of 
machine, and machines are not deployed unless they have met those 
standards.