Summary
Among its efforts to strengthen aviation security, the Transportation Security Administration (TSA) is developing a new passenger prescreening system--known as Secure Flight. As required by Congress, TSA is planning to assume, through Secure Flight, the prescreening function currently performed by the air carriers. This report assesses the (1) status of Secure Flight's development and implementation, (2) factors that could influence the effectiveness of Secure Flight, (3) processes used to oversee and manage the Secure Flight program, and (4) efforts taken to minimize the impacts on passengers and protect passenger rights. In conducting this assessment, we addressed the 10 specific areas of congressional interest related to Secure Flight outlined in Public Law 108-334.
TSA is making progress in addressing each of the key areas of congressional interest related to the development and implementation of Secure Flight, including developing and testing the system. However, TSA has not yet completed these efforts or fully addressed these areas, due largely to the current stage of the system's development. For example, while TSA has drafted a concept of operations and system requirements, it has not finalized these key documents or completed test activities that will need to be accomplished before Secure Flight becomes operational. Until requirements are defined, operating policies are finalized, and testing is completed--scheduled for later in the system's development--we cannot determine whether Secure Flight will fully address these areas of interest. TSA also initiated a number of actions designed to improve the ability of Secure Flight to identify passengers who should undergo additional security scrutiny, in place of the prescreening currently conducted by air carriers. Specifically, TSA officials stated that recently completed initial testing identified improvements over the current prescreening system, and TSA plans to use intelligence analysts to increase the accuracy of data matches. However, the effectiveness of Secure Flight in identifying passengers who should undergo additional security scrutiny has not been fully determined. For example, TSA has not resolved how passenger data will be transmitted from air carriers to TSA to support Secure Flight operations. Further, the ability of Secure Flight to make accurate matches between passenger data and data contained in the terrorist screening database is dependent on the quality of the data used, which has not been determined. TSA has also strengthened the oversight and management of Secure Flight, and has established relationships with key program stakeholders. However, air carriers expressed concerns regarding the uncertainty of system requirements, and the impact these requirements may have on the airline industry in terms of system modifications and costs. Additionally, TSA has taken steps to minimize potential impacts on passengers and to protect passenger rights during Secure Flight testing. However, TSA has not yet clearly defined the privacy impacts of the operational system or all of the actions TSA plans to take to mitigate potential impacts.
Recommendations
Our recommendations from this work are listed below with a Contact for more information. Status will change
from "In process" to "Implemented" or "Not implemented" based on our follow up work.
Director:
Team:
Phone:
Cathleen A. Berrick
Government Accountability Office: Homeland Security and Justice
No phone on record
Recommendations for Executive Action
Recommendation: To help manage risks associated with Secure Flight's continued development and implementation, and to assist the Transportation Security Administration in developing a framework from which to support its efforts in addressing congressional areas of interest outlined in Public Law 108-334, the Secretary of the Department of Homeland Security should direct the Assistant Secretary, Transportation Security Administration, to finalize the system requirements document and the concept of operations, and develop detailed test plans to help ensure that all Secure Flight system functionality is properly tested and evaluated. These system documents should address all system functionality and include system stress test requirements.
Agency Affected: Department of Homeland Security: Directorate of Border and Transportation Security: Transportation Security Administration
Status: In process
Comments: In commenting on this recommendation, DHS officials agreed with this recommendation and reported that TSA was proceeding to complete the Secure Flight concept of operations and the Secure Flight system requirements. As of August 2005, TSA reported that these documents were not finalized and an estimated completion date was not available.
Recommendation: To help manage risks associated with Secure Flight's continued development and implementation, and to assist the Transportation Security Administration in developing a framework from which to support its efforts in addressing congressional areas of interest outlined in Public Law 108-334, the Secretary of the Department of Homeland Security should direct the Assistant Secretary, Transportation Security Administration, to develop a plan for establishing connectivity among the air carriers, U.S. Customs and Border Protection, and the Transportation Security Administration to help ensure the secure, effective, and timely transmission of data for use in Secure Flight operations.
Agency Affected: Department of Homeland Security: Directorate of Border and Transportation Security: Transportation Security Administration
Status: In process
Comments: In commenting on this recommendation, DHS officials agreed with this recommendation and stated that TSA has been working closely with CBP since August 2004 to establish two-way connectivity to U.S. air carriers for Secure Flight, and that preliminary agreement has been reached between the senior leadership of both agencies concerning the roles in the process. Officials also stated that formal agreements between the agencies for establishing two-way connectivity would be completed. However, as of August 2005, TSA reported that these documents are not finalized.
Recommendation: To help manage risks associated with Secure Flight's continued development and implementation, and to assist the Transportation Security Administration in developing a framework from which to support its efforts in addressing congressional areas of interest outlined in Public Law 108-334, the Secretary of the Department of Homeland Security should direct the Assistant Secretary, Transportation Security Administration, to develop reliable life-cycle cost estimates and expenditure plans for Secure Flight--in accordance with guidance issued by the Office of Management and Budget--to provide program managers and oversight officials with information needed to make informed decisions regarding program development and resource allocations.
Agency Affected: Department of Homeland Security: Directorate of Border and Transportation Security: Transportation Security Administration
Status: In process
Comments: In commenting on this recommendation, DHS officials agreed with this recommendation and reported that in accordance with OMB requirements, Secure Flight would deliver a 10-year lifecycle cost estimate in the 3rd quarter of FY05. Officials also stated that,as required by the DHS Investment Review Board process, Secure Flight will also develop and deliver a 20-year lifecycle cost estimate by 3rd quarter FY05. In addition, officials stated that TSA is developing an appropriate regulation and its required benefit/cost analysis. As of August 2005, TSA reported that these documents were not finalized. TSA did not have an estimated date when this information will be released.
Recommendation: To help manage risks associated with Secure Flight's continued development and implementation, and to assist the Transportation Security Administration in developing a framework from which to support its efforts in addressing congressional areas of interest outlined in Public Law 108-334, the Secretary of the Department of Homeland Security should direct the Assistant Secretary, Transportation Security Administration, to develop results-oriented performance goals and measures to evaluate the effectiveness of Secure Flight in achieving intended results in an operational environment--as outlined in the Government Performance and Results Act--including measures to assess associated impacts on aviation security.
Agency Affected: Department of Homeland Security: Directorate of Border and Transportation Security: Transportation Security Administration
Status: In process
Comments: In commenting on this recommendation, DHS officials agreed with this recommendation and reported that Secure Flight is developing a comprehensive set of critical performance measures to assess implementation and operation of Secure Flight, and these measures will be refined and augmented during finalization of Secure Flight capability and prior to initial passenger screening in August 2005. As of August 2005, TSA had not provided information on the measures being developed.
Recommendation: To help manage risks associated with Secure Flight's continued development and implementation, and to assist the Transportation Security Administration in developing a framework from which to support its efforts in addressing congressional areas of interest outlined in Public Law 108-334, the Secretary of the Department of Homeland Security should direct the Assistant Secretary, Transportation Security Administration to, prior to achieving initial operational capability, finalize policies and issue associated documentation specifying how the Secure Flight program will protect personal privacy, including addressing how the program will comply with the requirements of the Privacy Act of 1974 and related legislation.
Agency Affected: Department of Homeland Security: Directorate of Border and Transportation Security: Transportation Security Administration
Status: In process
Comments: In commenting on this recommendation, DHS officials agreed with this recommendation and reported that TSA will issue for public comment a Privacy Impact Assessment and System of Records Notice for the program's operational phase and an Interim Final Rule to implement the program. As of August 2005, TSA reported that these documents are not finalized. TSA does not have an estimated date when this information will be released.
Recommendation: To help manage risks associated with Secure Flight's continued development and implementation, and to assist the Transportation Security Administration in developing a framework from which to support its efforts in addressing congressional areas of interest outlined in Public Law 108-334, the Secretary of the Department of Homeland Security should direct the Assistant Secretary, Transportation Security Administration to, prior to achieving initial operational capability, finalize policies and procedures detailing the Secure Flight passenger redress process, including defining the appeal rights of passengers and their ability to access and correct personal data.
Agency Affected: Department of Homeland Security: Directorate of Border and Transportation Security: Transportation Security Administration
Status: In process
Comments: In commenting on this recommendation, DHS officials agreed with this recommendation and stated that TSA was currently finalizing a redress process. As of August 2005, TSA reported that this process and the associated documents were not finalized.
