http://www.fas.org/irp/threat/212fin~1.htmlChapter Three:
Improving Security for Travelers
"We know we can't make the world risk-free, but we can reduce the risks we face and we have to take the fight to the terrorists. If we have the will, we can find the means."
President Clinton
The Federal Bureau of Investigation, the Central Intelligence Agency, and other intelligence sources have been warning that the threat of terrorism is changing in two important ways. First, it is no longer just an overseas threat from foreign terrorists. People and places in the United States have joined the list of targets, and Americans have joined the ranks of terrorists. The bombings of the World Trade Center in New York and the Federal Building in Oklahoma City are clear examples of the shift, as is the conviction of Ramzi Yousef for attempting to bomb twelve American airliners out of the sky over the Pacific Ocean. The second change is that in addition to well-known, established terrorist groups, it is becoming more common to find terrorists working alone or in ad-hoc groups, some of whom are not afraid to die in carrying out their designs.
Although the threat of terrorism is increasing, the danger of an individual becoming a victim of a terrorist attack -- let alone an aircraft bombing -- will doubtless remain very small. But terrorism isn't merely a matter of statistics. We fear a plane crash far more than we fear something like a car accident. One might survive a car accident, but there's no chance in a plane at 30,000 feet. This fear is one of the reasons that terrorists see airplanes as attractive targets. And, they know that airlines are often seen as national symbols.
When terrorists attack an American airliner, they are attacking the United States. They have so little respect for our values -- so little regard for human life or the principles of justice that are the foundation of American society -- that they would destroy innocent children and devoted mothers and fathers completely at random. This cannot be tolerated, or allowed to intimidate free societies. There must be a concerted national will to fight terrorism. There must be a willingness to apply sustained economic, political and commercial pressure on countries sponsoring terrorists. There must be an unwavering commitment to pursuing terrorists and bringing them to justice. There must be the resolve to punish those who would violate sanctions imposed against terrorist states.
Today's aviation security is based in part on the defenses erected in the 1970s against hijackers and on recommendations made by the Commission on Aviation Security and Terrorism, which was formed in the wake of the bombing of Pan Am 103 over Lockerbie, Scotland. Improvements in aviation security have been complicated because government and industry often found themselves at odds, unable to resolve disputes over financing, effectiveness, technology, and potential impacts on operations and passengers.
Americans should not have to choose between enhanced security and efficient and affordable air travel. Both goals are achievable if the federal government, airlines, airports, aviation employees, local law enforcement agencies, and passengers work together to achieve them. Accordingly, the Commission recommends a new partnership that will marshal resources more effectively, and focus all parties on achieving the ultimate goal: enhancing the security of air travel for Americans.
The Commission considered the question of whether or not the FAA is the appropriate government agency to have the primary responsibility for regulating aviation security. The Commission believes that, because of its extensive interactions with airlines and airports, the FAA is the appropriate agency, with the following qualifications: first, that the FAA must improve the way it carries out its mission; and second, that the roles of intelligence and law enforcement agencies in supporting the FAA must be more clearly defined and coordinated. The Commission's recommendations address those conditions.
The terrorist threat is changing and growing. Therefore, it is important to improve security not just against familiar threats, such as explosives in checked baggage, but also to explore means of assessing and countering emerging threats, such as the use of biological or chemical agents, or the use of missiles. While these do not present significant threats at present, it would be short-sighted not to plan for their possible use and take prudent steps to counter them.
The Commission believes that aviation security should be a system of systems, layered, integrated, and working together to produce the highest possible levels of protection. Each of the Commission's recommendations should be looked upon as a part of a whole, and not in isolation. It should be noted that a number of the Commission's recommendations outlined in the previous chapter, particularly those relating to certification and regulation, apply to the FAA's security programs, as well.
Recommendations
3.1. The federal government should consider aviation security as a national security issue, and provide substantial funding for capital improvements.
The Commission believes that terrorist attacks on civil aviation are directed at the United States, and that there should be an ongoing federal commitment to reducing the threats that they pose. In its initial report, the Commission called for approximately $160 million in federal funds for capital costs associated with improving security, and Congress agreed. As part of its ongoing commitment, the federal government should devote significant resources, of approximately $100 million annually, to meet capital requirements identified by airport consortia and the FAA. The Commission recognizes that more is needed. The Commission expects the National Civil Aviation Review Commission to consider a variety of options for additional user fees that could be used to pay for security measures including, among others, an aviation user security surcharge, the imposition of local security fees, tax incentives and other means.
3.2. The FAA should establish federally mandated standards for security enhancements.
These enhancements should include standards for use of Explosive Detection System (EDS) machines, training programs for security personnel, use of automated bag match technology, development of profiling programs (manual and automated), and deployment of explosive detection canine teams.
3.3. The Postal Service should advise customers that all packages weighing over 16 ounces will be subject to examination for explosives and other threat objects in order to move by air.
The Postal Service now requires that packages weighing over 16 ounces must be brought to a post office, rather than be placed in a mailbox. To improve security further, the Postal Service should mandate that all mail weighing over 16 ounces contain a written release that allows it to be examined by explosive detection systems in order to be shipped by air. The Postal Service should develop and implement procedures to randomly screen such packages for explosives and other threat objects. If necessary, the Postal Service should seek appropriate legislation to accomplish this.
3.4. Current law should be amended to clarify the U.S. Customs Service's authority to search outbound international mail.
Currently, the Customs Service searches for explosives and other threat objects on inbound mail and cargo. This recommended legislative enhancement parallels the Customs Service's existing border search authority.
3.5. The FAA should implement a comprehensive plan to address the threat of explosives and other threat objects in cargo and work with industry to develop new initiatives in this area.
The FAA should place greater emphasis on the work of teams, such as the Aviation Security Advisory Committee and the Baseline Cargo Working Group, to address cargo issues. The Commission believes that the FAA should implement the Baseline Group's recommendation with regard to profiling by "known" and "unknown" shippers. In addition, unaccompanied express shipments on commercial passenger aircraft should be subject to examination by explosives detection systems; the FAA should work with industry to develop a computer assisted cargo profiling system that can be integrated into airlines' and forwarders' reservation and operating systems; requirements should be implemented requiring that trucks delivering cargo for loading on planes be sealed and locked; the FAA should develop and distribute air cargo security training materials; and enhanced forwarder and shipper employee screening procedures should be developed.
3.6. The FAA should establish a security system that will provide a high level of protection for all aviation information systems.
In addition to improving the physical security of the traveling public, information systems critical to aircraft, air traffic control and airports should also be protected. Although government is responsible for a great number of aviation related information systems, a partnership must be formed in order to create integrated protection among these and related private sector systems. Some protective measures will become the responsibility of airlines, some that of the airports and others of the aircraft and air traffic control systems manufacturers and maintenance providers. The National Security Agency must play a role in coordinating information security measures, setting standards and providing oversight of system security to ensure protection against outside interference, disruption and corruption. Specific legislation should be reviewed that makes willful interference with information systems a federal crime with substantial penalties to provide a clear deterrent.
3.7. The FAA should work with airlines and airport consortia to ensure that all passengers are positively identified and subjected to security procedures before they board aircraft.
Curb-side check-in, electronic ticketing, advance boarding passes, and other initiatives are affecting the way passengers enter the air transportation system. As improved security procedures are put into place, it is essential that all passengers be accounted for in that system, properly identified and subject to the same level of scrutiny. The Commission urges the FAA to work with airlines and airport consortia to ensure that necessary changes are made to accomplish that goal.
3.8. Submit a proposed resolution, through the U.S. Representative, that the International Civil Aviation Organization begin a program to verify and improve compliance with international security standards.
Although 185 nations have ratified the International Civil Aviation Organization convention, and the security standards contained in it, compliance is not uniform. This creates the potential for security vulnerabilities on connecting flights throughout the world. To help raise levels of security throughout the world, the International Civil Aviation Organization needs greater authority to determine whether nations are in compliance. Strong U.S. sponsorship for adding verification and compliance capabilities to the International Civil Aviation Organization could lead to enhanced worldwide aviation security.
3.9. Assess the possible use of chemical and biological weapons as tools of terrorism.
FAA should work with the Department of Defense and the Department of Energy on programs to anticipate and plan for changing threats, such as chemical and biological agents.
3.10. The FAA should work with industry to develop a national program to increase the professionalism of the aviation security workforce, including screening personnel.
The Commission believes it's critical to ensure that those charged with providing security for over 500 million passengers a year in the United States are the best qualified and trained in the industry. One proposal that could accomplish this goal is the creation of a nationwide non-profit security corporation, funded by the airlines, to handle airport security. This concept, under consideration by the major airlines, merits further review.
The Commission recommends that the FAA work with the private sector and other federal agencies to promote the professionalism of security personnel through a program that could include: licensing and performance standards that reflect best practices; adequate, common and recurrent training that considers human factors; emphasis on reducing turnover rates; rewards for performance; opportunities for advancement; a national rank and grade structure to permit employees to find opportunities in other areas; regional and national competitions to identify highly skilled teams; and, an agreement among users to hire based on performance, not just cost.
3.11 Access to airport controlled areas must be secured and the physical security of aircraft must be ensured.
Air carriers and airport authorities, working with FAA, must develop comprehensive and effective means by which to secure aircraft and other controlled areas from unauthorized access and intrusion. Use of radio frequency transponders to track the location of people and objects in airport controlled areas, including aircraft, offers significant advantages over the current security measures commonly used today. Where adequate airport controlled area and aircraft security are not assured by other means, this technology should be considered for use at both international and domestic airports.
