Unmanned Aircraft Systems: Use in the National Airspace System and the Role of the Department of Homeland Security

What GAO Found

GAO earlier reported that unmanned aircraft systems (UAS) could not meet the aviation safety requirements developed for manned aircraft and posed several obstacles to operating safely and routinely in the national airspace system. These include 1) the inability for UAS to detect, sense, and avoid other aircraft and airborne objects in a manner similar to “see and avoid” by a pilot in a manned aircraft; 2) vulnerabilities in the command and control of UAS operations; 3) the lack of technological and operational standards needed to guide the safe and consistent performance of UAS; and 4) the lack of final regulations to accelerate the safe integration of UAS into the national airspace. GAO stated in 2008 that Congress should consider creating an overarching body within the Federal Aviation Administration (FAA) to address obstacles for routine access. FAA’s Joint Planning and Development Office (JPDO) has taken on a similar role. FAA has implemented GAO’s two recommendations related to its planning and data analysis efforts to facilitate integration.

The Department of Homeland Security (DHS) is one of several partner agencies of JPDO working to safely integrate UAS into the national airspace. Since 2005, FAA has granted DHS authority to operate UAS to support its national security mission in areas such as the U.S. northern and southern land borders. DHS’s Transportation Security Administration (TSA) has the authority to regulate security of all modes of transportation, including non-military UAS, and according to TSA officials, its aviation security efforts include monitoring reports on potential security threats regarding the use of UAS. Security considerations could be exacerbated with routine UAS access. TSA has not taken any actions to implement GAO’s 2008 recommendation that it examine the security implications of future, non-military UAS.

GAO’s ongoing work has identified several UAS issues that, although not new, are emerging as areas of further consideration in light of greater access to the national airspace. These include concerns about privacy relating to the collection and use of surveillance data. Currently, no federal agency has specific statutory responsibility to regulate privacy matters relating to UAS. Another emerging issue is the use of model aircraft (aircraft flown for hobby or recreation) in the national airspace. FAA is generally prohibited from developing any rule or regulation for model aircraft. The Federal Bureau of Investigation report of a plot to use a model aircraft filled with plastic explosives to attack the Pentagon and U.S. Capitol in September 2011 has highlighted the potential for model aircraft to be used for unintended purposes. An additional emerging issue is interruption of the command and control of UAS operations through the jamming and spoofing of the Global Positioning System between the UAS and ground control station. GAO plans to report more fully this fall on these issues, including the status of efforts to address obstacles to the safe and routine integration of UAS into the national airspace.