airport passenger screening background and issues for congress pot

Contents Policy ses for Airport Passenger Seroving Airline Passenger Trffe Growth 2 Scroonig Etficieney and Pasenger Wait Tires 2 Ipnoving Explosives Detestion st Passenger Chcepints 3 S

Congressional

Research Service

Airport Passenger Screening: Background and Issues for Congress

Summary

‘Over the nox several yours, the Transportation Seeuiy Adminstration CTSA) wil ikely face

‘continuing challenges tv addres projected eon in passoner itn vel wie misting

‘in inproving upon te efficiency and effectiveness of passenger sersening operations, New Inaives eo expand the ole oF TSA pesoane! beyond srcening operations, aswell as iniaives

to improve sreeing efficiency and efectivencss through te dephiyiment of ew technologies,

‘likely regutealtonal investment nation o anal apropsaions of S250 milion FY2008 and FY209, a portion ofthe 1 bilo deni for aviation sccuntyin the stilts measure (PL 11-5) has hoon designate for acgueing ad deploying tenatogiest secen

"plosives at passenger checkpoins optinizing inne explosives detection systems for check bgesge: developing strategie plans for addressing sereening techaology and human factors osc ad denn the faring requirements ompement these states plans,

A suber of ntatives relate to passenger an

by the TSA Thess include tests of new passenger checkpoint layouts and Feld testing of next senettonche«3poim technolages for dstecting exposes, nclang explosives cenical ace

‘ltcton devices, hole Bal imagine systems, ad advanced tesolouy (AT) Xray

capabilities

Contents

Policy ses for Airport Passenger Seroving

Airline Passenger Trffe Growth 2 Scroonig Etficieney and Pasenger Wait Tires 2

Ipnoving Explosives Detestion st Passenger Chcepints 3 Stttgic Panning forAderessing Tecnology and Human Factors Neos 4 Projecto Costs ad Funding Iss :

(Checkpoint Screening Homan Performance

Potential Impats of Respecting Peivacy on Sereeing Performance

X-Ray Inagery and Canty-On Baggage Seeeting Pdfonhanee 3B Passenger Checkpoins Eiicieney 15

‘The Link Between Checkpoint Elficency Aint Tenninal Design an Valera

Qveting Prcices and Prosedues 1s

‘The Talore Sele Sect Serooning Lane lative 6 The Registered Traveler Program ” Options for Fee Sieamining Passenger Checkpoint Pracedres 2 Checkpoint Procedures or Lig 2 Passenger Eication and Infortional Matas 2%

‘Checkpoint Evolution and Related init, 8 Next Generation Checkpoint Tecologies 27 [Esposives Trace Deletion Teciolosies, » [Explosives Trae Deteton (ETD) Machines, » Bolle ant Lig Explosives Sesnners n »

‘Waikthnough Explosives Tce Detstion Pol m

‘Whole Body Imag Technologies 0 X-Ray BackecaterImazing Systems, 2 Millimctee Wave imaging System „ -Adkance Technology X-Ray Equipment 4

‘ther CatdidatTetinologies atid Applications for Aviation Security Seteenine M

Screening and Vetting of Aine Crews 3 Figures

Figure 1, Avorage Peak Wait Tines at Sewening Chockpoins, v

sing magnetometers to detect mealie weapons on passengers and X-ray ystems 0 examine eay-on items These methods have change ile since dey were Hse

innplcmemted at comunercal sports in the Unie Sates during theeary 1970s, Receatly

Tunes ne intstives to expand te ole of TSA personel beyond radio piste

Scrcening of passengers and ter holon as well snares to inprose screening

leieney an effectiveness thug the deployment of new technologies, have ben implemented ay! are ising tested These changes are coming abot largely in response wo ecommerations and tautory requirements to aes thea posed by explosives cane by passengers ori thir

HEẺ sidinepusenger screening furtions have focused on checkpoint seening

Adessine the iene noo ta elocdvely detest explosives on passengers an in canyon items wil ihelyreqite considerable investment and resurees However, policymakers ad svaton security planners have ot yet atoed upon a clear state’ ad weldsfined plan fo

"volving aitine passenger sereeing funetions to incomporase new ehologes capa, a proceduns to more effectively and efficicnlydotet explosives, weapons el ter threat joes

4 ell imividuals who may pose a threat to aviation security

Over the nox several years, the TSA wil ikely face continuing challenges to aldess projected jnvith in pssengersiline vel while wainaisiny and inprving upon he efi and fffecivenes of pansengcr ad bagange serecnng operations, Alressing thve challenges raises mbsf significa policy ists relate to allcating esos ar lupđig mescnga

screening iitaives, adequately akzessing human performance issbes in the desig of ftare psstenger serene stems, an developing fective satis oe deplyine aes eeeration m—

Policy Issues for Airport Passenger Screening

‘The TSA faces a munber of ongoing challenges ta maimsin and improve yon the effectiveness and efficiency of passenger sercening functions These challenges include:

+ Adukessing project seine passenger talc growth ants potential impats on

serecning wpecations:

‘+ Opsinizingseweningefciency and thehpt and assinzng passenger wai

+ Monvitying an addressing potential spon space consents fa seneoning

`"

+ Improving the eaabiiy vo detest explosives passenger checkin 26

rocomended by The 9/11 Commission ad elle fori eisai

+ Developing satege plans foradressing enti cholo

factors ness elated passenger sereening: and and haman

+ efning funding rogiremens to implement hese strategic plas

‘There are numerous pliy issues eganting the srategies and approaches for addressing these

“ongoing challenges, Some of tbe key issues ae rey discussed below,

Airline Passenger Traffic Growth

Cuneo; sess the United Stes adits teritoies, passenger sereening is conducted a sot

550 iris, nla, there are more tan 730 serene eects sa ily sore than 20 Setesning lanes athe nation's commereia ius The Pedal Aviation Adninisration (FAA) Projees tt domestic passenger sai will Uerev an average annua ate of about 34% Fem 2OUO trough 2020 an intemational passenger tai will ncease aa tale of approximately

AS per year’ Based on these projections passenger volume a sereeing checkpoints s

spect io increase by more than 256% over the next eight years, hough a poking sonomic Slowdown cou mpctte th pace of his grow to some

152006, the TSA report tht it ha serene over 700 alion passengers another indivicnals sccesing the sour arcs of aspen the United Stats, I aifinepassengcr aie sos as Pract, dhe he TSA wil likely be seeing over one bin people analy by 2024, oF Pthaps sooner ntalives to cont randoms ad targeted screning of aint employees, cen heing conducted ude al programs at sleted apart, af expaed ates the entire aiqion system, Significant eseures wl kely be needed to ales Tuts sereening neds to scents this erst witht eating an operational impact on sereening elite and sffetiveness,

Av many laperatpots, space consents an our design considerations have limited the TSA's

‘hit toad ational ereening lanes am reconieue checkpoi ta npr the Hass of Pssseeser, Thì hạ ested in lengthy wai tines dating peak periods, sometimes exceeding 40

‘mines € many of te nation’s largest impos,

‘Wait tinses areas just a problem at le aos, male pion apts my also fee challenges with large seasonal flgcutions in passenger volume coupled wih serecing lane and

‘workforce consti that nay ini he aly to respond to spikes passenger tic

‘Therefore, in aliion 1n aeconnnodaing projected unre ghost in passenger volun, the TSA, faces onguing challenges at various agpons o improve upon the oxeraleliciney of passenger scrssning operations and met slate wai time objectives without saricingperormance

Space Constraints at Airports

Space constrains witha anor ave key to become an increasing eo0esr forthe TSA as it seks ov nerease the br of seeing lanes 4o me projected prow inthe number of ane Pessenges, These const ae also ily to Bacon an ites important sede 35 the {TSA seeking to econfigure checkpoint over the next several yeas o secon

screening technologies, The TSA is ako seeking o expand the footprint ofthe sre

chockpoint qucue and screening lanes provide a more elated tmmsptere for travelers and prove behavioral dtectia oficers (2D0s) with addtional spose to mingle an nterat with Psssengers inane 1 mvs the dstecton of easpicious Hehavior and possible stil it Tiss factors my combine fo res in a considerably lngrfootpanforserening checkpoints compared to current configurations, psticaly a olde sions gonstcted when pasenter

‘ohm was considers Tessa the ftp of ereeing ehekpis was ie sal

Improving Explosives Detection at Passenger Checkpoints

Te 9/11 Comission commended ha the TSA sive pio altentin o implementing

technology and procedures for screening passengers for explosives, someting not cumesly done ronlinely a screening checkpoints Powis a improve chockpwint enolase to dec

"explosives sere inched in he Iielligence Reform and Terrorism Prevention Neo 2004 (PL, TNA, hotelier the “Terorim Prevention Act),

To acess te sae of detecting explosives ened hy passenger, the TSA tested wallnongh trace deeion portals, known as explosives tsce potas ETP, a bas nplementd

rosa for condting pt slow searches of passengers For explosives Fall ployment of the walk-through tace detection portals, of plfer machines for use in seconlary serening of scleced pasengers had been pat of he TSA strategy for serening pasengse for explosives, but this nitive has sen pa om hold Gu to maicnance sues with deployed systems Te sffoctiveness ofthe tay hs also hoc oh into question by he fold pot to am US tos siines using guid explosives uncovered in August 2006, The TSA ie working oie strategies and technologies that more completely adress the explosives sat posed by

sovensertaml earn er

{In aditon o keeping wp wit increased volumes of people passing hugh aon screening

‘hhckpoins and impeving upon seeing elficenc, the TSA aces sgmtiant challenges

‘uklresing 9/11 Commission commendations si stataory mandates improve the aii to

‘etet explosives and homl-nakig components eared on passengers andi can tes

‘There are ingeing concer tha, without a significant investment to improve the detection of concealed explosives and non-etalic weapons a passenger checkpoints, considerable

‘ulnerabitis wll persist The TSA is pursuing & Wie varity of ehnologis to ares the

‘of dctsting explosives at passenger steering checkpoints Thess tc

‘valthrugh explosive trae detection potas, whole fod isaging (WD systems, tl igi Scamncr, esta prosthess sears, oe scans advanced ecology (AT) Xuay ystems fan explosives detection system (EDS) toed For eary-omserooing pplication The

‘tous technologies wil eomplemet, ain same cases ple, existing checkin Ls Ste

tS magnetometers, and wands, and explosives trace detection (ETD) equipment

Under the TS2s eure ude plans, i the neat tem, deployment ofthis technology wil be concentrated atthe nation’s largest airports and wil ofen be fined to se on those passengers Selected for secondary sefeening oro resolve alas st off ding primary seeing Ful ale Aeploymont of technsingies to sereen al passengers al cary stems for explonves al oboe

‘concealed items wll involve a considerably larger investmieat over he Jong tem However Specie long tem investment atmo deployment sratepy has not yet been are upon,

‘While these various technoingcs have each aleel af matty where they can he

‘operatinally deployed, aeevine an end sae wich al pasengu are sersnad unoblnsively

te detect od age of thea bets raises numberof ple sees elated othe privacy of sSseteer sẽ với s ong ter mtesimeníafssy orimpleiuening faire checkpoint top,

Strategic Planning for Addressing Technology and Human Factors Needs

The challenges to improving Serening caput stem frm the 9/11 Commission's

recommen o pose to detection of expsives.on passengers sd aes haa factors considerations related to serene performance.” For yeas afer hese recomendations swore esd the Goverment Accountability Orie (GAO) reported that ony ite pees

Ta been made in feng explosives detection technologies at passenger checkin, stale TSA lacks ares plan lo the sequisiton and deployment of screening feogies

‘Mowover, covet esting at passenger checkpoints coainues to provide evidence ta, despite the considerable oderal spending on ailine passenger sereeing since the 9/11 terrae, the

‘System remains vulnerable, particularly tthe threat posed by adreries tempting to sneak Inprovised explosive devies IEDs) or components wo assemble such devices thro secu checkpoints and onbnand passngerairiner These valnombiies reflect the ack of adeuate tcchnologies deployed a checkpoints epuble of deeng explosives materia: aswell

limitations in sree performance that since hy avarey of human performance Fars

Provisions PL, 110-53 (xe section 1407) equa the TSA finalize a sesic pln te

‘theeXpoineexpaives dtetion ruil by the Teroism Prevention Act, an fully implement the plan within one year of enaciment The ae ai contained provisions (Se section 1612) that like the eap os the systemwide mune oF TSA semeenets, and rue spwalzed taining for screeners on scunty skills suchas behavioral observation and analysis, explosives deletion,

‘nt docutentcaaminaion The act rect the TSA hire sulci personel tense

‘elute aviation eomlly and yedice average surty- relate delay to essa 10 nuts The Set created a separate “Checkpoint Seeutity erening Fund specifying that $250 milion of

‘he security ees elected ding FY2008 were he dpsed io his un (See section 1601), aun! made available fo escsch, developer, deplayncn, as instalaon of equipoent 39 improve the detection of explosives at passenger checkpoints, Te at also directed the TSA to

‘amy out plo stay eo exami technologies fo improve the secur at acess contol dooes and sit lanes fr aipor Secured areas (ee setion 1613)

Projected Costs and Funding Issues

‘The Impleienting Recommendations ofthe 11 Commission Act (PL 110-5) ined a provision estalishing an Aiport CekpwinySereening Fas, The fund provided $250 ion in assenger sway fos forthe aequsiton an deploymint of echnologes to impose the

tection of explosives at pasenecrseteening checkpoints it FY2008 The PY 200 Deparinent

fo Homeland Secor Atpopmations Act (PL, 110-329) provides $250 million for Checpean Seppo thos msitaning fading for checkpoint echiolopes, supplies, an eigen at the 1 1

{In ation to dhese appoprations, the American Recovery an Reinvesinent Act of 2009 (PL 11-3) specifies ah atonal Silom for aviation scuts, designated fo the proctemen ad lnsalation of checkpoint explosives dctvton equipment an checked bagaage explosives

‘ktetion systems This adltonal lning is eypected 4 xclente thẻ deployment of checkpoint

‘plosives detection fonolgies over the next two yeurs, Conference rp language (see HLRept 111-16) specifies that praoets shoul be peortized base security sks

Deploying now technologies and reconfiguring sexcening lanes a incorporate thes technologie and opisizepesformanee and eiciency wil ikely cost more tha $30,000 pe sreening lane based om TSA average unit costs for candidate testnlogies This cos onhy consider the ct css for serene le technology seston and nstallaton, ed aes inl a cons

‘scoctted ih espading of rconfeing apt terminals to accomimdate nes checkpoint ths, Given tht there ate mote Un 2,001 sreeing lanes i 0perdanthưoeghoufthe Ulel States, the total cost to uperade sereeing checkpoints fs ikelyw exces one billion dolla in

‘uipment cons lane

Adina, the costs operate ae mints his servning euipment i tikely to cast tens of

‘housands of dls each yest por severing lane Basen hese rough estimate, apparent thar cures anding levels for Cheskpoint Suppor will ot suppor a fll ele nearer

deployment of emerging passenger checkpoint technologies Congress may consider various fubdiag options 10 expand ar aecclerate the deployment of these checkpoint technologies I such

‘without satay and commitment a ure funding for system deployment of advanced technology system fr dotting explesivs and nonatallic that ent eheckpoins

Checkpoint Screening Human Performance

‘The aviation souny system sa human system involsing exlensive rane om human

petepsion, performance, decison nahin, and judgnien This i partie tye with gear to

"hokpoin sereing fonctions where passenger and cary-on serening inva hana Resse lmensivesctiiis to dstect al resolve pitta heat items An uredsing challenge fla to Propose checkpoint expansion snd enhancements addresing ongoing hunsan performance

‘onceens to mpave the detection of dngeraus ems at cekpoonts and incorporate aman factors considerations in the design and operator training fr next generation checkpoint,

toshnplogies and procedares,

Screener perfomance i continuing concem as coven testing esl have repeatedly

‘Jmonstrate existing weaknesses in sereeing procedures an capabilites dat could potenially

be exploited ty ters oreininalsseckingt attack the avon system, These weakness

‘nay elects combination of policies, cede, lchnology ea hes, and seneene ran Feformance lthph weakness i sersner hana perenmanoe has hee emphasized 36 Pticular eoncesn which ean be alfoted by vats Factors wide range of hum cos onsiderations pertiting to serening procedots,tining,fague and ales, human

Petoepfion and detection eapaiiies, and jagent and decision making ean have asignicart fect on the overall effectiveness of pascngerchockpoint steering a well as haggae Steen

—

Passenger ebockpoint screning atts tall passenger sitpot are cated out by about 30,0 screeners who make up about -6S% of the total TSA screener workfore The hans that tera the system, parity the sersning workfore, have long been regarded asa potty highly fallible and ysnrable clement ofthe aviation screningsysem, This thouk ao he

‘onsracl asa elton on the dedication an consent o inscal serene to pfoning this eave job iaetion, Rather i reriecs combination ofthe complex challenges Feed bs seroenets,intations in hun perception ad petormane, eenecf0lsdeeatje ha mày employ afl eonecalment methods, and competing jo pressures to accurately detec thes, jets while masining an efficient flow of passengers thigh security eek poins

‘derstrics esting lo cany nụ jackings or bomings by earring explosive devices, bos

‘making components handheld weapons throbgh sree checkpoints muy atm to exploit

‘uous limilations on human perception and pesformance that may compromise sccuity A

‘ate Factors may conte to these funn performance ination, incl nadeuate trang, bek of moviation adj ssFaction age, as workplace conditions a wells

`

‘appropriate tovchine and unprofessional or nile cont hy seweener Mere genera compas have focused on privacy concers aa penceptons tha the pat-down procedes were imanne snd hurling

‘complains regain the serening process

The TSA ina a sercening Performance Managerssat Information System (PMIS) where recon complains are lnged, Operations esearch nals lens ad federal sec aeons Fesiew comping logged in the database co tack tres aa deity ares of coco and ke

‘yop tions, ielding posible spiny ations, to wes specifi ses, Complains involving allegations of diermnnaion base on colo, race, gee, eligion, of atonal or thn

‘rigin are forward to the TSAs Offs of Chi Rights for further investigation, Devple

‘comiderale concern raised by some rgaring inappropriate behavior dating pal-down sezcening procedbns te DHS O1G found ne sssteratc problems wi he tchsique

‘uo necessitate resolve al lnm atl sreening in detail tho psengersasersined to pose

fn clevated saci sk, hie minsinine the pave rights ae diay af passengers denied

“8i Bo secondary steering measures, The principal option une consieration for alesing these coneerasisthe use of whale body insging technologies, escussed below While these tecologis offer potest ltenaive w pardon screenings techniques, the 20, rise pelvaey concerns fees th ges geperated by these systems ean reveal pate areas, physical

xpectations of privacy and modesty Some have also nots cult senstities wand

handicapped and asad inavivals ad point out that sereeners are sometimes hesitant 19 reform nrsive searches, paticularly om individuals wearing vanes presets Teronss

Sn enminals coh and have exploited these aspects of isl privacy by concealing pried Heme in buy cavities a eat private areas of ther bots, ad cold ako expt a serene + feluctaneeto perform thonaigh earhes of prosthetic devices Cover testers also use these

‘metho to conceal simulated teat tems nan effort test serene’ ables eo detec ens lund eal world coulitions and identify xulaehiifes in checKpoin sereenieg that ean

petaly be reduced hough procera madlffedionsandfor changes to sever traning, Those caver fests have reveal! weaknesses in sreener performance wo detect Weapons,

simu explosives, ant components of explosive devies,

Covert Testing

Much ofthe cance over the psommanesof apo serening eperations has arisen rom

‘oformasin that has been made publi egading the results of euver testing operations Covert, tewing using rudimentary tnack bobs ahd puts started soon aller erecting eeckpoins were fist established in the eatly 1970s Following the bombing of Pan Amy igh 103 in December IWR, the FAA hegan mote sophisticated "Ye tan” ess ny weaknesses serene ferfemaace and other spss of wvaton secur, The frm ed tam harkens back ta te Cold

‘Warera military cxorsises where red tenis —s9dssignatd in reference to the Soviet Unions re flag and the association of eo with coaunist groups adopts statis ataxic of an nom force in smaltions and wargames,

‘over festng conducted hy dhe TSA-OI, Petal Security Dirsctore (FSD) each apo are 2 petfor lca coves testing The Toal esting Was nll calle the Sezeener Training Exercises

sd Assessments (STEA), buts pow kaw asthe Aviation Serecang Assessment Program ASAP) and has hoon sevamped to hese reflec the typeof Hea cts at may he wed by temorists based on he fates inelligenee and hut formation

“dseouraing, bt ate a reflec of highly sopiscae aoncealmant maths being we hy towers in uncaer specific sys sulnenBiide< so tht corti ation ean he taken

Accom othe TSA“ a secur officers adapt an begin ts consistently discover cover testing mets, testers tat all over agin, creating more ifficak and hander-46-etet vests, Ths oan long game of en and mouse mre closely simllaes real eros pine aa operations un! Keep ies lr an formed ofthe latest technighes ata njnaverents.”" The TSA, Pins cut that hs type of testing ts undamenaly different rom the tate unchanging

Petfonmance evakisions that were employed porto the 911 tacks Since the presen day test protocols are constantly changing, dhe Tas mail used then to prove #sapshoe of Specie vulnerabilities inthe system, It has not systematically assssed whether sereener

etformsnce is improving oe geting worse over tins although it asset ispravements Have fhm mide Acvoning to the TSA, the coven testing methods ate primarily usc a oe or

‘ccstng ad identifying teas where performance imyovements ae needed a ane potently Schieable tosh adaionalvaining, operational emp o perl redesign

‘regarding tenorst weapons ad explosives tat pose treat to comune avation aad maton

‘or concealing these teat objets." While sexi est ess ate cso seciysesiive Jnformatio, thas Deen eeporte tht care fale res are comparable wo those observe in DST when screeners fe to detec hut 20 percent of concealed items ding onthe jo psformance testing” However, the TSA sass th the testing mes usd tha be as

fo way comparable o enrrent cover festng rethods

Concerns over advance warning given porto cover testing and sesensr performance

‘svaltons as Been a lnstaing sie While media reps have sages thal some foc TSAcover tes were leaked ta sereners, the TSA muitans tha ts posedares ae designed 0 Inininize the kino that sereners wil be spp a regarding 4 covert est operstion, wie Providing appopvatenoiiation to TSA wept level management and lca a enfrceinent to [suite that the tests are consuctd safely, Nonetheless cases of sereenets being tipped off

‘egariag ever esting ave Been documented For example, in 29M the DHS 6 found that Serceness atthe Jacson-Evers fntermational Airport in Mississipi had en given information

‘eating upcoming coven fests, including dae shout he gener and rave of the esters, the

‘ppe of est tems being eda the locaton of ts ems om he kever am 1n camy-en and

‘county, bat he cma was read 13 mies aller twas sent Based om these ings the TSA,

‘oncaded that he dissemination of informatio reganfing the upcoming cover test id ot pear hea deliberate tengo tp olf sereners a seteeningsuperisrs Foner TSA Administrator Kip Hatley ves that thee was noting inet that aye within the TSA stem po tpn Secu sereeers regarding covert testing i his ines.”

In adition o concems over possible advance waming of coven tests, consems have sso been raised that the TSA does not have equate processes in place to spstomatically document causes fof covet testing Failures and cart out appropiate retrial ation GAO audit of TSA's covert testing programs, including covet esting of passenger sctesning, Paggageserening, an spon

‘sccess Con systems, found that the TSA-O1 hs fale to systematically roo, caren nd inform management of cases for et firs a would he exposed if federal goverment Stapdanks for internal contol were flly implemented” The GAO fuer noted thatthe TSA Tacks a systematic proces to are tha ecommersations by TSAO ae Tully considered and ian eons aig tng ese eminent app)

While the TSA-O1 made numerous weommendations othe TSA's Orfiee of Seeuity Operations ling the period reviewed Me 203-June 2087, the GAO fond th often ih ore tha

AO (18 out of 43) of cases, TSA management che ook no ation ort was Ul

scion take adresse the recommendation, Te lack of a formal process made dieu to

‘scent how the recommendations related to covert esting esl an in fur Bow actions taken remsisd problems identified by the TSA-OL The GAO conclu that without such a proses the TSA abit to stengthen aviation security based onthe findings and recommendations of

‘cover testers imiiel, amitrocommended thal the TSA etalsh sydem for acumen the results a recommendations sewing Irom ever esting and otek ations ken ih response

to these recommendations,

In ation othe intra cover testing by the"TSA's Oi of Inspections, ho the Deparment

ff Homeland Seeuniy Offic af lspacor Genet and the GAO ineperderly etl pero Auahis su inspections of TSA screening Tanetons that often iehide cover testing metas

‘While many ofthe dts of dose aus ae considered security sensitive, the results of these tess have provided Congress and observers with important insights ranting the persisting ulterahiis at arpa passeager sereening checkpoint

‘Most nota in series of ever tess conducted in 2007, GAO investigations demonstrated th, joven when proper proces were Tllowed, checkpoint sereeing ote fed wo detect,

‘onecall explosives and components tha cou be sad to construct an explosive device

otenlaly capaÐleo downing un airliner” For these tests, he investigators constricted tw Iinprovised devices: an impnoviced explosive device (IED), consisting ofa liquid explosive that

‘wold be tigger hy alone sill detonstor(e blastng ean and an improvised ineenkary dlesce (ID), cnstnte fom commonly available prods including alge eomponet The investigators obained the matcials to construct these devices at local tres a ver the Imere Spang less that $130, The investigators het ciplayed various mths to coval the ens

“anti persons and in cary bagaage,denponstratng that iis posible to passer a

“onstuetd device othe components i build ab TED ora ID tnoagh apt sreening

‘checkpoints without detection In al eases, steers fae to detect or prot he cariage of TED ana IID componsats, including Hid component,

‘The GAO nvted tha the speife security weaknesses expe in these cover tess, which wens not divulged foe security asons, were identified by reviewing publily availabe invomnation including infomation oten shared dows he Intern apd realy available to email groups

Ly exploiting these weaknesses, the investigators were ale pas these compares, ilding hanned guid items trough various secant checkpoints While the investigators were subject

to secondary serening For untelatd reasons i ome sans, aon sess and of scoondary screening metho il 9 dete he inprose explosives oe pei em lạ oer instances, steeners challenge the investigators fr fling io flly comply with various Procedures, including procaduesreyaing permissible quanties ar packing id

‘The GAO cone shat its “tess clearly demonsrate that trois group, using poblily avaiable infomation anid few esoees, could esuse severe damage lo sa airplane and thesten

th safety of passengers by bringing probit TED au ID eoniponetas toh sees

“checkpoints.” In eviewing these rele, the TSA has aeknow lege checkpoint vulnerabilities Fete to hutpan performance serecing procedures apd checkin technologies The GAO assert thu improverints in these areas may further ede the risks to commercial avaton posed by IEDs sa IDs

Wie the GAO's specific commendations fusing ways to mprawe screener dsteston af thư objects mad to the TSA were nt ply dsiged, the GAO ao uted the TSA take the following ations to enance chechpoin serening operations

+ BsaMlsb dadfewed igbo szeaing lanee to ban (hos pass

vate sk an oe hse passengers with special ness rs posing an

+ nodes more ageressve, visible nd unpreditble checkpoint procedures,

stich radon pal-down and hand van sree aa

+ Continue develop ew technolo a cect o eter detect concealed

‘These recommendations lo ation weet a comtinving concer that, despite considerable

invesiment in cheskpoint seeing technologies and personel singe the teers atcks of September 11, 2001, significant vlmrabiities persis ia chockpoiee seeing operations Tạ teximony before the Howse Commitee on Howell Security on November 14,2007, former DHS Inspec General Clark Ket Ervin stated that [he sai ft stat forall he dollars and atenton thu has been focused on serener performance since O11, sux alter study shows

‘havi is fost as easy tea to shea these deadly weapons past sereners fas ¢ wasn Wile rvin’sconchisons have hoen somewhat controversial and widely disputed bythe DHS ann he TSA, his general recommendations parallel various tative pu Taewart by Congress fis he Gosh Adminstration wo ingmone scree performance, Specialy Erin recone tstensive training ad frequent rettaing of sersenets unde sulted real-world conditions temedial geton for sereoners and superiors tat Fal peformanve tests a8 termination of those tmployecs that habially perform on a sub-par vel und system deployment of next fseneration setoenng technologies, such as whole bx imaging and advanced X-ray syste

‘These recommendations reflect specific nes fr inprveméns in hua factors and ining for scrosning penonnel a wells investmen in steering thimlogies, The TSA is actively

pursing an approach to adress chekpont sercening tcology and human aces throats recently launched checkpoit evolution inti

Threat Image Projection

In addon cover testing which tess sersner performance in detecting conevated tet items

‘on passengers and in cary tenis under operational cantons, te performance of sereenets that ingpost X-ray ines of anyon sens tony monizoed and evalated sings

technology called Theat Inkige Projetion (TIP Ths technology provides the esp 0 overlay viral computer generat dat objets over X-ray inges of passeasers screened Property during orm screening operations ota present irl nage of hageage contaaing oneal thet ites TIP as fist Gide bythe FAA ia 19,

Following the terorst tacks of September 1, 201, TIPvas sisconinaed ss an operational feformance tool over ennceas thal secenee responses 40 TIP images would itease dea midst the eightened focus om aviation security thats, However, viewing the technique as a

‘ulsbleopersiona testing and pertarmance tol the TSA rsinkroduced TAP n 2003 using | ally espa database of threat ems sa a be mare representative of weapons al

neal tics tha may be used by ters campus athe FAA TIP ystem poet the IL atacks which had about 200 imnages ints database, the TIP system in use By the TSA, toa has over 2.000 images, with now ingges constanly boing ade based on idee thesats an concealment methods inte trough intl gence afc operations Feled X- fay equipment in use a screening checkpoints e TH-teay Thats, sess machines ae designed

to sore and display TIP database images and ae therefore eerred as TIP Ready X-ray oF TRX eipment These systems are networked, and inked ino TSA laoraturies tit cree aml lstnibate new TIP imagery peietialy base on nelignce garding new threat es an

‘0 TRX equipment, images of weapons and explosives ae proce onthe Xo images of sual hops sing seteened This is dane for sever paposes Fist, by providing perio test ings tothe seteones the system promotes arn and sts gs mitigation for boron and eomplaceney two factors that ean he a significant negative nspaet on suman performance Scan the ability to cllst dat nevardng screening performance and screener crit in

‘wall stings serves san invalable tol for oman facors researchers staying serene Performance, Forenanle, these resarchers ca look at pformance as fnction of Hine of dy Sx! ie on sil topics the shedulng of shifts ad breaks for seeoners, Resatchers san shay se the TIP lta to ideiy parila thea ens methods of consent sat ae en sca, adn esponse ean se rovrrent serene taining ana vealfieation wo nsze and comet spsife weaknesses, either a systemwide, ab stpot-by-aion or even onan Invidual screener level Thi, TIP provides a quantifiable cans to cvalat the peeformance of seresnens indivi work group, srpon, oF systemwide levels of analysis, As se team Be Used to ack prnaress overtime and a be une to document deficit levels ov fetfrmsance thst sablish groans fo dismissal, TIP has heen ane of the st igiicant

tecioloay changes vo carton sereening since X-ray serene echnignes were ist

jimplersente in the eaty 1970s, and divelywklesses umn ptformance aspeets of checkpoint screening ftions,

Sccondary evaluations of suspected explosives, and soon, Als, TIP doesnot provide any data om the sreting of pasengersthoielses o thir ehsckd bass: only provides dat ơn the scresning of cary haggege Nonethclss, TIPis widely regarded ae a important sreenct

‘valation too, adit wal ely renin an intra par of advanced technolngy (AT) Xo

suipment deployment in the Fue

‘esoluin, image coloration and ther image enhancement features allow serenerst9 were easly ` " biter illeentiatecenainclomentso the X-ray image For example the coloration aliws

‘sani materi lo san rom inane trials making ease lo detect dense one aie Inter that may be indie of an TED, ah povies ferential eolration of metals allow For easier dateetion of metalic weapons

{In adtion to selective coloration, newer Xin system allow fr @ wide aay of fee

“enhancement netions to highlight o tue of an deter certain Tenures 3 poco known image “sipping.” Howeset, some researc bạ sown that nvidualimage etaneemets do fot necessarily improve IED detection compared to viewing ofthe original Xray ings,

‘currently deployed X-ray systems have ese eapabiis, ie pressures a bu «zeenlng

“Sheekpoints may often prvlode dae examination using varous combinations of hss ima enhancement capabilites

‘vith experience and exposute to both TIPimagety and anfully concealed ral-work thư es Felention of bigh- performing experince X-ray sreoner is Hkey to nein «Key component

‘maisainins high levels of srening performance

‘tet treat ites an individuals ote ine

[With ngand to advancements in screening technology, ext generation advanced technology (AT) X-ray systems are capable of providing tape image views, usally two views that provide hth overiad view and a profile view of the X-ajed item Some ofthese systems also

incorporate computer image interpretation algorithms that automaticaly search for and ether hight or aes the operator to, suspected threat items such as explosives and weapons The features, however ean often he viewed negatively by operates an can sow the screening proces if hey poner high numbers of Take arn Fake postive The speeiie pertonmaee haces of ATX ray ssstens being aan ae deployed by the TSA, inline

inormasion slut their fase alarm tes, no publ sails, ut renin inant

‘considerations in he seston of systems and system features fr operational deployinent Policy

‘considerations regarding the acquisition aad deployneat of ATX-eay systems are Rrther

“isco inthe sostion on "Neat Generation Checkpoint Technolo

Passenger Checkpoint Efficiency

‘While the ability to detect teats ste primary mene for evaluating psssenger checkpoint stem perfarmance, maiiaining checkpoint efficiency ha also been givens high nee However, the well documented phenomenon of spes-accurcyIrade-ofs i humin performance highligh te fac that increasing system dough a lea wo miss seas an deterioration

ff system effectiveness Therefore, policymakers ant aviaionsecoiy strategists have generally focused om sinking &Halance between motaning reasonable walt times and high levels of treat, detection While escarch and enginecring hs fuse on optimizing screening lane ficiency

tn effectiveness, longstanding wa tins ohjeetbve have best ot by policy largely as on

‘whit creado as easonale ta expr by the traveling pu,

Passenger Wait Times

chs boon the Depastinnt of Transportation's andthe TSA longstanding gos that passengers should not ait ohaverage, more tha I ate o pass the ana seeitycheckpoin

‘This can he wae back wo He ajetves lid Out for checkin eliieneyby den Seeley of

‘Transporation Noonan Mina in 2002 a esponslil for ecekpoineserening fasion was being tured over tote TSA.”

‘The challenge in deterning the under of checkpoints tha will meet spied wait ime

‘rites largely derives from the variability an hctaton indy and boory passenger volumes Typically srepescratixebasy hu is pcke to mod! the passenger dem foe sereenins, The TSA deified a variety of ste fr slecing the bury oe peak ogo be used in

rmodling passenger screening demand, Daa can be derived from ether anal enplaemnt forecasts or fom atin iat schedules, with adjustments made forthe pereniage or amount of psssengers that ae transferring Irom ahr fights ad do to npose don on the gievnite

——

The mor of checkpoints rogue can then be estimate hase on the mudcled passenger

“dens for shack screening or a rpresentaive Bus Fur vied hy the hry regu achievable fram single checkpoint For example if the madel predicted A010 passengers pot Tout, and he achievable thvoushput pe «Teen abe was 3M passengers per hour (ive

passengers per minute) dhe ten sereening anes would provide an opial aur with sọ xecssve queue However dis may rsul in excessive capacity during non peak periods To hetter balance rscarces with reasonable walt ines, pase eguirement lor gusting Passe gsts

‘witing to poss through srcening checkpoints, knw as gue length surements ca Be

‘access by determing passenger aver aval at over the selevied busy ht, apie by The average expected Wat ine, die by the aumber of checkpoint anes poe hese

—

For example if it were expected Fate would be S passengers por inne, Wthe target wait Hine was 10 mate, then the that 3.000 passengers would ave during the hou, the ative {queue size woul be SH pasengers, an ina ten setening lane configuration, tht would translate to 50 passengers in gute po ane Acconling to design guidsines issued by the TSA,

space aloation for guoaes shoul provide someshere between seven and 15 square fx pr person” esting ina total square Footage allocation for queuing passengets of between 3,500 fad 7,300 square fet in his esanple

{In this manner, he TSA ean determine the wgtinum mone of sexening lanes an gage the space allacation tequiements For queuing passengers wo meet peak passenger demand Had However space constant at alrpors may prevent aehieving these objectives a est without overcrowding passengers im qucus which can fisher aggravation and tension making hoc tical to spo saspious vials, an can also eighten sect risk because these

“overrode quoues cold come prime lage fora sting os bombing attack ñ vao cations nig sion Factors ha have a able ipa on the optim manor of sere lanes aswell sth confgration of those anes More ieniiean sivtgMĂe imitaiom am ter factor initing aaa resouees to Setup aa staf Seen line as resi Tes tha

‘psa numbers of stecing lanes,

‘ccommanlte passenger seroening operations, The TSA mod it stating allocation and Screening lane roquizements using a ode! that ltemps osersen 88% of passengers within the {minut aac ime frame hese ot passenger volumes project for ac airs pe eel smomh” The TSA notes that on only about T percent of days out of tbe year wil pssengoe sohumis exeved hee levels cestling in expected Wat Kins of mie a 10 mies,

retitahly say ofthese day's tr din pak ave peri hn the Thakssing nd {Chis oilay times Wie this el, which forms the Dass ofthe TSA's stating

allocation, i designed w wininize the nuner of passengers experiencing was of mone than 10

‘mts, in prctice many mre passengers expeience waits of longer than 1 minke,

A tho busiest sispons, designated as security category X and eategory Talon average wait times have consistently exec the 10 sinate goal (Soe Figure 1) Since these Larger pons sccount for more than tee quartets of passenger hoantias, a good portion of afine wavelers

‘outinly experience wat ims im exces ofthe 10 mine gal While the serage wait tm

` sometimes excroding 0 mies, afe mbt uncommon ding peak vel periods a major airports However, cosistem peak period waits of ore than 4 miaes are olen grown for Tut

£xanôdion ram a TSA pnization Team Go deny stains, seen lane, other ©nfe issues hat ye cotbakng to these long wis” The GAO has recommended thatthe TSA, estaba mechanism for peal assessing the assumptions of is sereener taffing

allocation models sit eontinieso reine and optimize seesnertalling and sereeing lane Tunes."

Figure | Average Peak Wait Times at Screening Checkpoints

Despite various fonts to improve checkpoint eficieney an reduce passenger wail ines

‘hoekpoin ines remain vulerable ters gets for Domine, shootings othe pena Felese of chemical or bilosial agents bocau the lien cofri of lange eangregations of indvidals i the “noa-seile™ portion ofthe sip terminal, thats pio to seesning for posse drat items Ineiienies at screening ec kpoint tha sul is ng sence quotes

Sn eongestion in igor tenials inode unique vulnerable tha may hệ midgaled though

“aouseffons wo increase checkpoint efiieney hut may als he mitigated by specific design

‘considerations to minimize congestion and sola long srs qiccs fom open, asessble eres of the sip ternal