Aviation Security: TSA Has Enhanced Its Explosives Detection Requirements for Checked Baggage, but Additional Screening Actions Are Needed

We found that TSA had not developed new screening protocols or deployed additional equipment to address the potential gap in screening capability between explosive detection systems (EDS) and explosive trace detection (ETD) if new EDSs with different requirements were deployed. Because TSA decided to revise the explosives detection requirements for EDS's prior to revising the ETD requirements, the differences in the requirements may affect TSA's capability to detect the 2010-required levels until TSA identifies technologies or protocols needed to address the potential gap. Without a plan to ensure that secondary-screening devices or protocols are in place to resolve EDS alarms if EDSs are deployed with additional capability, it will be difficult for TSA to provide assurances that the potential capability gap has been resolved. As a result, we recommended that TSA develop a plan to ensure that screening devices or protocols are in place to resolve EDS alarms if EDS are deployed that detect a broader set of explosives than existing ETD machines used to resolve EDS screening alarms. In April 2012, TSA reported that it had convened a working group to assess capability gaps for secondary screening technology, evaluate current technology capabilities against the capabilities of future EDS, and prepare a plan to procure any additional technology required to ensure alarms can be resolved. In March 2013, TSA reported that it was in the process of revising its Checked Baggage Alarm Resolution Plan and that the final plan will outline a strategy to procure technologies and implement procedures for enhanced detection at all levels of checked baggage screening, which TSA reported that it planned to finalize by the end of April 2013. To fully address this recommendation, TSA needed to finish developing the plan to ensure that devices or protocols are in place to resolve EDS alarms, and provide a copy of this plan to GAO for independent review. In November 2013, TSA issued an approved Life Cycle Cost Estimate (LCCE) for the Electronic Baggage Screening Program. This document outlines a strategy designed to ensure that ETDs are capable of providing alarm resolutions for EDSs for threat detection levels through 2015 and discusses EDS alarm resolution approaches beyond 2015. The information in the LCCE satisfies the intent of the recommendation, which is now closed as implemented.

We found that TSA has experienced a number of challenges related to collecting some explosives data needed to procure and deploy EDS's that meet the 2010 requirements. These data are needed both by vendors to develop EDS detection software and by the Transportation Security Laboratory for the certification testing process and includes such information as the physical and chemical properties of explosives. As a result, we recommended that TSA develop a plan to ensure that TSA has the explosives data needed for each of the planned phases of the 2010 EDS requirements before starting the procurement process for new EDS or upgrades included in each applicable phase. In April 2012, TSA reported that it had modified its acquisition strategy to require vendors to notify TSA that they have completed certification to meet the next level of detection in order for the vendor to be included in the next acquisition. In September 2012, TSA finalized a new Acquisition Plan for the EBSP that uses a qualified products list, which would require vendors to submit only EDS that have already been certified for consideration in any forthcoming acquisitions of EDS. This plan, according to TSA, separates the data collection and certification from procurement execution and was adopted to ensure all data collection and testing activities associated with meeting detection requirements are completed prior to allowing any vendor to submit equipment into the acquisition process. This recommendation is now closed as implemented.

We found that vendors of Explosive Detection Systems (EDS's) reported concerns about the extent to which TSA is communicating effectively about the current procurement. Specifically, vendors expressed concerns about the timeliness in which TSA responded to their questions or the manner in which TSA communicated important schedule changes. As a result, we recommended that TSA establish a process to communicate information to EDS vendors in a timely manner regarding TSA's EDS acquisition process, including information such as changes to the schedule. In April 2012, TSA provided information on a number of actions it had taken to improve communication with EDS vendors. For example, TSA issued 16 public notifications that contained projected schedules and program updates. In October 2012, TSA finalized its Explosives Detection System Competitive Procurement Qualification Program Communications Plan. Additionally, TSA's new EBSP acquisition plan uses a qualified products list, which awards contracts only to vendors whose equipment has already been certified. Because the concerns expressed by vendors were linked to TSA conducting data collection concurrent with the acquisition process, we reported that challenges collecting data on certain explosives led to delays in the acquisition schedule that were not always communicated to vendors in a timely manner. Now that development of EDS has been separated from the acquisition process, and only certified EDS already placed on the qualified products list are to be considered for current and future acquisitions, we consider his recommendation closed.

We found that TSA did not have a schedule in place for the Baggage Screening Program (EBSP) and had not established a reliable schedule for the current Explosive Detection System (EDS) acquisition. While there is not an integrated master schedule (IMS) for the entire EBSP, TSA has established a schedule for the current EDS acquisition. However, this schedule did not fully comply with the nine best practices identified by GAO for preparing a schedule because, for example, TSA officials did not complete a schedule risk analysis. As a result, we recommended that TSA develop and maintain an integrated master schedule for the entire EBSP in accordance with the nine best practices identified by GAO for preparing a schedule. In April 2012, TSA stated that it had secured contractor resources to support development of an IMS in accordance with GAO and industry best practices and that it anticipated completion of this schedule by September 2013. In October 2012, TSA stated that it plans to complete the development of the EBSP IMS by September 2013. To fully address this recommendation, TSA needed to complete the efforts it had underway and ensure that this schedule was implemented in accordance with the nine best practices identified by GAO for preparing a schedule. In September 2014, we assessed the current version of TSA's IMS for the entire EBSP, which includes milestones for EDS acquisitions and upgrades. Our assessment found that the schedule substantially met the majority of scheduling best practices. We concluded that the EBSP program office has made substantial improvements to the overall reliability of the IMS, including integrating subproject effort, sequencing logic, determining a valid critical path, and conducting schedule risk analysis. TSA's progress on the IMS satisfies the intent of the recommendation, which is now closed as implemented.

We found that TSA's Baggage Screening Program (EBSP) current life cycle cost estimate did not reflect anticipated costs for purchasing Explosive Detection Systems (EDS's) that met 2010 requirements. Specifically, the EBSP did not yet have an up-to-date approved life-cycle cost estimate in place, and as a result, DHS had no reliable basis for understanding how much the program will cost. As a result, we recommended that TSA ensure that key elements of the program's final cost estimate reflect critical issues, such as the potential cost impacts resulting from schedule slippage identified once an integrated master schedule for the EBSP has been developed in accordance with the nine best practices identified by GAO for preparing a schedule. In April 2012, TSA reported that it had finalized its updated EBSP life cycle cost estimate to incorporate costs with enhanced detection. Once the integrated master schedule for EBSP was completed, which TSA reported it planned to have completed by September 2013, TSA stated that it would be able to analyze risks to costs and schedules, including potential cost impacts resulting from schedule slippage. To fully address this recommendation, TSA needed to complete and fully document the efforts it had underway and ensure that the program's final cost estimate reflects the critical issues identified by GAO. In November 2013, TSA issued an approved Life Cycle Cost Estimate (LCCE) for the Electronic Baggage Screening Program. The LCCE includes a schedule and estimated purchase costs for new EDS/ETD equipment for each level of threat detection. The document also reflects critical issues, such as the potential cost impacts resulting from schedule slippage identified in TSA's integrated master schedule for the EBSP. The information in the LCCE satisfies the intent of the recommendation, which is now closed as implemented.

We found that TSA did not have a plan in place outlining how it will upgrade deployed Explosive Detection Systems (EDS's) to fully meet the 2010 requirements. As noted in our report, not all deployed EDS units met these requirements. As a result, we recommended that TSA develop a plan to deploy EDS's that meets the most recent EDS explosives detection requirements and ensure that new machines, as well as machines deployed in airports, will be operated at the levels established in the 2010 requirements. Further, this plan should include the estimated costs for new machines and upgrading deployed machines, and the timeframes for procuring and deploying new machines and upgrading deployed machines. In April 2012, TSA reported that it had developed a detection upgrade plan and that this plan was currently undergoing leadership review and would be available before the close of the third quarter of FY 2012. Further, TSA had awarded contracts as early as August 2011 with EDS vendors to implement the upgrades across the current fleet, without a plan in place for fully meeting the current requirements. As of March 2013, TSA has continued the process of upgrading deployed EDS and reported that purchases of new EDS that will meet the 2010 requirements are in various stages of the EDS competitive procurement. To fully address this recommendation, TSA needed to finalize its upgrade plan and ensure that it includes the estimated costs for new machines and upgrading deployed machines, and the timeframes for procuring and deploying new machines and upgrading deployed machines. In November 2013, TSA issued an approved Life Cycle Cost Estimate (LCCE) for the Electronic Baggage Screening Program. The LCCE includes a schedule and estimated purchase costs for new EDS/ETD equipment for each level of threat detection. The document also presents a strategy and anticipated costs for upgrading already deployed systems to meet higher detection capabilities. The information in the LCCE satisfies the intent of the recommendation, which is now closed as implemented.