Summary: The Transportation Security Administration
ABSTRACT
In many ways, air cargo security is more challenging than inspecting the passengers and baggage that board flights across the United States every day. Cargo frequently receives less examination than do people and baggage, even though they are often traveling on the same airplane. Critical activities that affect the inspection of air cargo happen away from the airport. Freight forwarders receive hundreds of small packages, bundle them into larger groups on pallets or in containers, then send the larger bunch for shipment on aircraft. These large packages, often in shrink wrap or containers, are difficult for inspectors to assess adequately. This paper will address the roles of the Transportation Security Administration and …show more content…
private sector in ensuring the security of air cargo packages, technologies currently used for screening cargo, and government regulations meant to protect people and goods from terrorist attacks related to air cargo services. Air cargo can be any size, from very large to very small. It includes such items as electronic equipment, apparel, human remains, fresh seafood, and other perishable goods. It can be shipped in wooden crates, assembled pallets, unit-loading devices, or individual pieces also known as “break bulk” cargo (United States Government Accountability Office, 2005). Every day approximately 50,000 pounds of cargo is flown across the United States. Much of this cargo is transported, consolidated, and put on pallets or in containers, each offering a new opportunity for the introduction of explosives or other undocumented materials. Potential problems for air cargo being used by terrorists are easily demonstrated by the amount of theft and smuggling that occurs every year (Crowley, 2007). Cargo crimes have become increasingly common. This includes such things as smuggling contraband in the system, or theft of transported goods. Often, these crimes are committed with the assistance or knowledge of cargo workers. This emphasizes the importance of background checks and more effective cargo security technology (Elias, 2007). Two-thirds of the nation’s cargo is found on all-cargo aircraft, such as FedEx or UPS. The remaining one-third is sent on scheduled passenger flights. Of the cargo sent on passenger flights, two-thirds is sent on international flights, the remaining one-third on domestic. Terrorism experts predict that passenger flights are more likely to be the target of a terrorist attack (Crowley, 2007).
Transportation Security Administration It is impossible to discuss the security issues in aviation without mentioning the Transportation Security Administration (TSA).
During the months following the September 11 terrorist attacks, the TSA was given the responsibility for security screenings of all flights. New safety measures include locked cockpit doors, air marshals on many flights, several armed flight crews, and situational awareness of passengers (Transportation Security Administration home page). In November 2001, the Aviation and Transportation Security Act mandated that there would be improved screening and inspections of passengers and property, including cargo. The 9/11 Commission determined that more resources were needed to identify and track potentially dangerous cargo (United States Government Accountability Office, 2005).
The TSA has identified four objectives for securing air cargo:
1. enhance shipper and supply chain security,
2. identify elevated risk cargo through pre-screening,
3. identify technology for performing targeted air cargo inspections,
4. secure all-cargo aircraft through appropriate facility security measures
(Elias, 2007).
Initially, the TSA took an administrative role in securing cargo. Agents would establish programs for shippers. Then, they would screen participants in the supply chain, offering only limited oversight for compliance with the programs (Crowley, …show more content…
2007). Currently, test programs for 100% cargo inspection are underway at San Francisco International Airport and Cincinnati/Northern Kentucky International Airport. These pilot programs offer TSA inspection points with a full range of capabilities. Every airport has different air cargo security needs depending on the type of commodities typically handled. TSA inspection centers will be developed for each individual airport (Crowley, 2007). 70% of all federal transportation security funding is used to prescreen passengers and baggage.
This funding includes monies spent to secure aviation, maritime, land, and inter-modal transportation. Every year, TSA has a budget of $5 billion to screen passengers and their baggage. A budget of only $55 million is designated to screen cargo. This cargo is often found on the same airplanes as passengers. Less than 1% of TSA employees (approximately 300 agents) were assigned to screen air cargo in 2007 (Crowley, 2007). By the end of 2008, that number had increased to nearly 450, demonstrating the new emphasis being placed on the security of air cargo (Transportation Security Administration home page).
Inspect or Screen? Following the September 11 attacks in 2001, several legislative mandates called for either the “inspection” or “screening” of air cargo. While it does not appear that there is much difference in these words, the way they have been interpreted and implemented by the TSA is important (Crowley, 2007).
The “screening” process that is used by TSA includes reviewing all of the documents associated with the cargo passing through a checkpoint. Most cargo that is administratively screened is only assessed further based on specific risk factors, including who is shipping, where the shipment is going, and how it will get there. After determining which packages may pretense the largest threat, those packages are placed through the “inspection” process (Crowley,
2007).
“Inspection” of air cargo includes a detailed examination of a package. Any of a number of technologies or techniques may be used to ensure that the package does not contain an explosive or present other danger while in flight (Crowley, 2007).
Air Carriers Air carriers have a strong involvement with the TSA. Additionally, carriers share limited responsibility for security programs. They are required to verify certificates of freight forwarders and known shippers. Carriers ensure the integrity of a shipment after it arrives at the airport. Carriers also inspect some of the cargo will be placed on their aircraft. These inspections are either random, or targeted because of content or shipper (Crowley, 2007).
There are 300 air carriers operating in the United States, including passenger and all-cargo services. There are 450 airports used by airliners (Crowley, 2007).
Types of Air Cargo Shippers In the past, air cargo shippers were largely responsible for policing their own packages for security. Cargo inspections or security management have been the responsibility of the private sector (shippers). The Intelligence Reform and Terrorism Prevention Act required the Transportation Security Administration to issue air cargo regulations (United States Government Accountability Office, 2005). The TSA and legislative bodies have focused primarily on domestic cargo. Better screening of international shipments is becoming a priority. The Freight Assessment System, started in 2008, is based on the Custom and Border Protection Automated Targeting System. It assesses the risk of all international cargo that comes to the United States through any port of entry, including land, sea, or air (Crowley, 2007). Undeclared shipments of hazardous materials are one of the biggest challenges faced by FAA and TSA officials. The most challenging type of hazmat in air transportation is lithium batteries, which can cause fires, smoke, or extreme heat (United States Government Accountability Office, 2009). It is vital for shippers to accurately declare the items they are shipping.
Known Shippers
There are 1.5 million known shippers in the TSA central database. These include large and small businesses, manufacturers, retailers, publishers, banks, government agencies, and individuals. They have an established relationship with the air carrier or freight forwarder providing service. These shippers have been able to meet specific TSA security requirements and have established relationships with the air carrier. This group is the only shippers allowed to place shipments on domestic passenger flights (Crowley, 2007).
Freight Forwarders
There are 3,800 freight forwarders or consolidators certified by the TSA, located at nearly 10,000 separate stations. The certification gives employees unsupervised access to air cargo. These companies receive cargo from shippers, then consolidate the paperwork and freight, and finally deliver it to the air carrier. Freight forwarders are required to observe the combining, or “build up,” of cargo. Any client who opens a new account is subject to having cargo screened. Forwarders may also screen cargo, depending on the description of the commodity. Any package picked up from a private residence will also be screened (Crowley, 2007).
Dozens of freight forwarders bring cargo to the air carrier’s cargo facility at each airport. This unique form of access to the airport is more difficult to secure than passengers and baggage. It takes about 60 to 90 minutes to screen a passenger and his/her baggage. Air cargo security can extend over several days, back to the manufacturing or production site. Employee infiltration into the airlines, freight forwarders, and shippers, pose some of the largest security risks (Crowley, 2007).
Certified Shippers The most recent category of shippers is Certified Shippers, a category meant to make the shipment of “built up” cargo more secure. These companies voluntarily submit to more stringent security requirements. They pay for the initial certification and subsequent audits. They have demonstrated the security of buildings and vehicles, use tamper-resistant seals on packages, have in-depth shipment tracking measures, and employees wear identification and have training on security. Cargo sent by certified shippers is only subject to secondary or random inspections (Crowley, 2007). Security tapes and seals are used to insure that cartons, containers, trucks, and trailers have not been opened surreptitiously (Cargo Security Alliance home page).
Methods of Securing Air Cargo Hardened containers are used to carry “suspicious cargo.” HULD (hardened unit loading devices) are made of Kevlar or other composite material. They only weigh approximately 30% (approximately 60 pounds) more than the ordinary unit loading device (ULD), having little effect on takeoff weight and fuel usage. HULD are designed to contain the blast and flame caused by an explosive, adding significantly to the safety of air cargo shipments. Smaller containers will need to be developed for narrow-bodied aircraft (Crowley, 2007) In Israel, cargo is placed in a large chamber that simulates some or all of the flight. If any explosives are in a package, it is detonated before actually being placed onboard an aircraft (Crowley, 2007). Every day, small portions of the total air cargo in the United States arrives at the airport already on 4-foot square pallets, in large cargo containers, or on “cookie sheets.” Cookie sheets are large metal sheets on which the cargo is stacked to be the size of a unit loading device. It is not reasonable to open, screen, and re-package each of these bundles. However, since it only requires a small amount of explosive to bring down an airplane, it is important to inspect every package. New technology that can adequately check each bundle of packages is necessary to prevent the timely, expensive screening of each bundle. Research on ways to better inspect large shipments already built up is underway at the Transportation Security Laboratory in Atlantic City, New Jersey (Crowley, 2007). Frequently used inspection techniques include EDS, x-rays, ETD, canine, and manual searches. EDS (Explosives Detection Systems) provide automated explosives detection. While expensive, it is estimated that these systems are capable of screening 75% to 85% of all air cargo that is “break bulk” (individual packages that are not “built up”) (Elias, 2007). X-ray technologies are also effective in screening air cargo. Low density packages or packages that are identical from unit to unit are effectively viewed with x-rays. They are less expensive, but require a highly trained screener to interpret the images (Crowley, 2007). ETD (Explosive Trace Detectors) require the contaminated surface of a package be available for screening. They are labor intensive, but especially effective if a sample is taken from the packaging of a bomb (Crowley, 2007). Canine units are frequently found at air cargo facilities. These trained teams are effective at detecting many types of materials in packages. Under favorable circumstances, these teams can work successfully for 20 to 30 minutes (Crowley, 2007). At the end of fiscal year 2008, TSA had 460 canine teams, each spending 25% of their work day specifically focused on air cargo. This has increased the amount of cargo screened every day (Transportation Security Administration home page). Manual searches are labor and training intensive. Training the searchers is especially important if they are to appreciate the materials located in packages. When technology applications are unsuitable for a search, using trained employees to search packages is valuable (Crowley, 2007).
Conclusion
It is vital for the federal government, particularly the TSA, and the private sector to work together to secure the nation’s air cargo system. The cost of air cargo security is significant, and continues to increase. However, the potential loss of life and property has greater potential costs. The air cargo system has limited resources available compared to its size and complexity. It is essential to provide security to this important component of our national economy.
References
Cargo Security Alliance home page. Security Solutions for the Supply Chain. Retrieved from http://www.securecargo.org/content/chain-custody
Crowley, P and Butterwork, B, 2007. Keeping Bombs off Planes. Center for American Progress, May 2007. Retrieved from http://www.americanprogress.org/issues/2007/05/pdf/air_cargo.pdf
Elias, B, 2007. Air Cargo Security. CRS Report for Congress, July 2007. Retrieved from http://www.fas.org/sgp/crs/homesec/RL32022.pdf
Transportation Security Administration home page. Air Cargo. Retrieved from http://www.tsa.gov/what_we_do/layers/aircargo/index.shtm
United States Government Accountability Office, 2005. Aviation Security: Federal Action Needed to Strengthen Domestic Air Security. Report to Congressional Requesters, October 2005. Retrieved from http://www.gao.gov/new.items/d0676.pdf
United States Government Accountability Office, 2009. Aviation Safety: Better Data and Targeted FAA Efforts Needed to Identify and Address Safety Issues of Small Air Cargo Carriers. Report to Congressional Requesters, June 2009. Retrieved from http://www.gao.gov/new.items/d09614.pdf
In many ways, air cargo security is more challenging than inspecting the passengers and baggage that board flights across the United States every day. Cargo frequently receives less examination than do people and baggage, even though they are often traveling on the same airplane. Critical activities that affect the inspection of air cargo happen away from the airport. Freight forwarders receive hundreds of small packages, bundle them into larger groups on pallets or in containers, then send the larger bunch for shipment on aircraft. These large packages, often in shrink wrap or containers, are difficult for inspectors to assess adequately. This paper will address the roles of the Transportation Security Administration and …show more content…
private sector in ensuring the security of air cargo packages, technologies currently used for screening cargo, and government regulations meant to protect people and goods from terrorist attacks related to air cargo services. Air cargo can be any size, from very large to very small. It includes such items as electronic equipment, apparel, human remains, fresh seafood, and other perishable goods. It can be shipped in wooden crates, assembled pallets, unit-loading devices, or individual pieces also known as “break bulk” cargo (United States Government Accountability Office, 2005). Every day approximately 50,000 pounds of cargo is flown across the United States. Much of this cargo is transported, consolidated, and put on pallets or in containers, each offering a new opportunity for the introduction of explosives or other undocumented materials. Potential problems for air cargo being used by terrorists are easily demonstrated by the amount of theft and smuggling that occurs every year (Crowley, 2007). Cargo crimes have become increasingly common. This includes such things as smuggling contraband in the system, or theft of transported goods. Often, these crimes are committed with the assistance or knowledge of cargo workers. This emphasizes the importance of background checks and more effective cargo security technology (Elias, 2007). Two-thirds of the nation’s cargo is found on all-cargo aircraft, such as FedEx or UPS. The remaining one-third is sent on scheduled passenger flights. Of the cargo sent on passenger flights, two-thirds is sent on international flights, the remaining one-third on domestic. Terrorism experts predict that passenger flights are more likely to be the target of a terrorist attack (Crowley, 2007).
Transportation Security Administration It is impossible to discuss the security issues in aviation without mentioning the Transportation Security Administration (TSA).
During the months following the September 11 terrorist attacks, the TSA was given the responsibility for security screenings of all flights. New safety measures include locked cockpit doors, air marshals on many flights, several armed flight crews, and situational awareness of passengers (Transportation Security Administration home page). In November 2001, the Aviation and Transportation Security Act mandated that there would be improved screening and inspections of passengers and property, including cargo. The 9/11 Commission determined that more resources were needed to identify and track potentially dangerous cargo (United States Government Accountability Office, 2005).
The TSA has identified four objectives for securing air cargo:
1. enhance shipper and supply chain security,
2. identify elevated risk cargo through pre-screening,
3. identify technology for performing targeted air cargo inspections,
4. secure all-cargo aircraft through appropriate facility security measures
(Elias, 2007).
Initially, the TSA took an administrative role in securing cargo. Agents would establish programs for shippers. Then, they would screen participants in the supply chain, offering only limited oversight for compliance with the programs (Crowley, …show more content…
2007). Currently, test programs for 100% cargo inspection are underway at San Francisco International Airport and Cincinnati/Northern Kentucky International Airport. These pilot programs offer TSA inspection points with a full range of capabilities. Every airport has different air cargo security needs depending on the type of commodities typically handled. TSA inspection centers will be developed for each individual airport (Crowley, 2007). 70% of all federal transportation security funding is used to prescreen passengers and baggage.
This funding includes monies spent to secure aviation, maritime, land, and inter-modal transportation. Every year, TSA has a budget of $5 billion to screen passengers and their baggage. A budget of only $55 million is designated to screen cargo. This cargo is often found on the same airplanes as passengers. Less than 1% of TSA employees (approximately 300 agents) were assigned to screen air cargo in 2007 (Crowley, 2007). By the end of 2008, that number had increased to nearly 450, demonstrating the new emphasis being placed on the security of air cargo (Transportation Security Administration home page).
Inspect or Screen? Following the September 11 attacks in 2001, several legislative mandates called for either the “inspection” or “screening” of air cargo. While it does not appear that there is much difference in these words, the way they have been interpreted and implemented by the TSA is important (Crowley, 2007).
The “screening” process that is used by TSA includes reviewing all of the documents associated with the cargo passing through a checkpoint. Most cargo that is administratively screened is only assessed further based on specific risk factors, including who is shipping, where the shipment is going, and how it will get there. After determining which packages may pretense the largest threat, those packages are placed through the “inspection” process (Crowley,
2007).
“Inspection” of air cargo includes a detailed examination of a package. Any of a number of technologies or techniques may be used to ensure that the package does not contain an explosive or present other danger while in flight (Crowley, 2007).
Air Carriers Air carriers have a strong involvement with the TSA. Additionally, carriers share limited responsibility for security programs. They are required to verify certificates of freight forwarders and known shippers. Carriers ensure the integrity of a shipment after it arrives at the airport. Carriers also inspect some of the cargo will be placed on their aircraft. These inspections are either random, or targeted because of content or shipper (Crowley, 2007).
There are 300 air carriers operating in the United States, including passenger and all-cargo services. There are 450 airports used by airliners (Crowley, 2007).
Types of Air Cargo Shippers In the past, air cargo shippers were largely responsible for policing their own packages for security. Cargo inspections or security management have been the responsibility of the private sector (shippers). The Intelligence Reform and Terrorism Prevention Act required the Transportation Security Administration to issue air cargo regulations (United States Government Accountability Office, 2005). The TSA and legislative bodies have focused primarily on domestic cargo. Better screening of international shipments is becoming a priority. The Freight Assessment System, started in 2008, is based on the Custom and Border Protection Automated Targeting System. It assesses the risk of all international cargo that comes to the United States through any port of entry, including land, sea, or air (Crowley, 2007). Undeclared shipments of hazardous materials are one of the biggest challenges faced by FAA and TSA officials. The most challenging type of hazmat in air transportation is lithium batteries, which can cause fires, smoke, or extreme heat (United States Government Accountability Office, 2009). It is vital for shippers to accurately declare the items they are shipping.
Known Shippers
There are 1.5 million known shippers in the TSA central database. These include large and small businesses, manufacturers, retailers, publishers, banks, government agencies, and individuals. They have an established relationship with the air carrier or freight forwarder providing service. These shippers have been able to meet specific TSA security requirements and have established relationships with the air carrier. This group is the only shippers allowed to place shipments on domestic passenger flights (Crowley, 2007).
Freight Forwarders
There are 3,800 freight forwarders or consolidators certified by the TSA, located at nearly 10,000 separate stations. The certification gives employees unsupervised access to air cargo. These companies receive cargo from shippers, then consolidate the paperwork and freight, and finally deliver it to the air carrier. Freight forwarders are required to observe the combining, or “build up,” of cargo. Any client who opens a new account is subject to having cargo screened. Forwarders may also screen cargo, depending on the description of the commodity. Any package picked up from a private residence will also be screened (Crowley, 2007).
Dozens of freight forwarders bring cargo to the air carrier’s cargo facility at each airport. This unique form of access to the airport is more difficult to secure than passengers and baggage. It takes about 60 to 90 minutes to screen a passenger and his/her baggage. Air cargo security can extend over several days, back to the manufacturing or production site. Employee infiltration into the airlines, freight forwarders, and shippers, pose some of the largest security risks (Crowley, 2007).
Certified Shippers The most recent category of shippers is Certified Shippers, a category meant to make the shipment of “built up” cargo more secure. These companies voluntarily submit to more stringent security requirements. They pay for the initial certification and subsequent audits. They have demonstrated the security of buildings and vehicles, use tamper-resistant seals on packages, have in-depth shipment tracking measures, and employees wear identification and have training on security. Cargo sent by certified shippers is only subject to secondary or random inspections (Crowley, 2007). Security tapes and seals are used to insure that cartons, containers, trucks, and trailers have not been opened surreptitiously (Cargo Security Alliance home page).
Methods of Securing Air Cargo Hardened containers are used to carry “suspicious cargo.” HULD (hardened unit loading devices) are made of Kevlar or other composite material. They only weigh approximately 30% (approximately 60 pounds) more than the ordinary unit loading device (ULD), having little effect on takeoff weight and fuel usage. HULD are designed to contain the blast and flame caused by an explosive, adding significantly to the safety of air cargo shipments. Smaller containers will need to be developed for narrow-bodied aircraft (Crowley, 2007) In Israel, cargo is placed in a large chamber that simulates some or all of the flight. If any explosives are in a package, it is detonated before actually being placed onboard an aircraft (Crowley, 2007). Every day, small portions of the total air cargo in the United States arrives at the airport already on 4-foot square pallets, in large cargo containers, or on “cookie sheets.” Cookie sheets are large metal sheets on which the cargo is stacked to be the size of a unit loading device. It is not reasonable to open, screen, and re-package each of these bundles. However, since it only requires a small amount of explosive to bring down an airplane, it is important to inspect every package. New technology that can adequately check each bundle of packages is necessary to prevent the timely, expensive screening of each bundle. Research on ways to better inspect large shipments already built up is underway at the Transportation Security Laboratory in Atlantic City, New Jersey (Crowley, 2007). Frequently used inspection techniques include EDS, x-rays, ETD, canine, and manual searches. EDS (Explosives Detection Systems) provide automated explosives detection. While expensive, it is estimated that these systems are capable of screening 75% to 85% of all air cargo that is “break bulk” (individual packages that are not “built up”) (Elias, 2007). X-ray technologies are also effective in screening air cargo. Low density packages or packages that are identical from unit to unit are effectively viewed with x-rays. They are less expensive, but require a highly trained screener to interpret the images (Crowley, 2007). ETD (Explosive Trace Detectors) require the contaminated surface of a package be available for screening. They are labor intensive, but especially effective if a sample is taken from the packaging of a bomb (Crowley, 2007). Canine units are frequently found at air cargo facilities. These trained teams are effective at detecting many types of materials in packages. Under favorable circumstances, these teams can work successfully for 20 to 30 minutes (Crowley, 2007). At the end of fiscal year 2008, TSA had 460 canine teams, each spending 25% of their work day specifically focused on air cargo. This has increased the amount of cargo screened every day (Transportation Security Administration home page). Manual searches are labor and training intensive. Training the searchers is especially important if they are to appreciate the materials located in packages. When technology applications are unsuitable for a search, using trained employees to search packages is valuable (Crowley, 2007).
Conclusion
It is vital for the federal government, particularly the TSA, and the private sector to work together to secure the nation’s air cargo system. The cost of air cargo security is significant, and continues to increase. However, the potential loss of life and property has greater potential costs. The air cargo system has limited resources available compared to its size and complexity. It is essential to provide security to this important component of our national economy.
References
Cargo Security Alliance home page. Security Solutions for the Supply Chain. Retrieved from http://www.securecargo.org/content/chain-custody
Crowley, P and Butterwork, B, 2007. Keeping Bombs off Planes. Center for American Progress, May 2007. Retrieved from http://www.americanprogress.org/issues/2007/05/pdf/air_cargo.pdf
Elias, B, 2007. Air Cargo Security. CRS Report for Congress, July 2007. Retrieved from http://www.fas.org/sgp/crs/homesec/RL32022.pdf
Transportation Security Administration home page. Air Cargo. Retrieved from http://www.tsa.gov/what_we_do/layers/aircargo/index.shtm
United States Government Accountability Office, 2005. Aviation Security: Federal Action Needed to Strengthen Domestic Air Security. Report to Congressional Requesters, October 2005. Retrieved from http://www.gao.gov/new.items/d0676.pdf
United States Government Accountability Office, 2009. Aviation Safety: Better Data and Targeted FAA Efforts Needed to Identify and Address Safety Issues of Small Air Cargo Carriers. Report to Congressional Requesters, June 2009. Retrieved from http://www.gao.gov/new.items/d09614.pdf