Aviation Security: Background and Policy Options for Screening and Securing Air Cargo

The air cargo system is a complex, multi-faceted network that handles a vast amount of freight, express packages, and mail carried aboard passenger and all-cargo aircraft. The air cargo system is vulnerable to several security risks, including potential plots to place explosives aboard aircraft; illegal shipments of hazardous materials; criminal activities such as smuggling and theft; and potential hijackings and sabotage by persons with access to aircraft. Several procedural and technology- based initiatives to enhance air cargo security and deter terrorist and criminal threats have been put in place or are under consideration. Procedural initiatives include industry-wide consolidation of the “known shipper program”; increased cargo inspections; increased physical security of air cargo facilities; increased oversight of air cargo operations; security training for cargo workers; stricter controls over access to cargo aircraft and air cargo operations areas; improved tracking of cargo shipments along the entire supply chain; and expanded use of explosives detection canine teams for inspecting air cargo shipments. Technology being considered to improve air cargo security includes tamper-resistant and tamper-evident packaging and containers; explosive detection technologies adapted for use in the air cargo environment; blast- resistant cargo containers and aircraft hardening; and biometric systems for worker identification and access control.

The Aviation and Transportation Security Act (ATSA, P.L. 107-71) contains general provisions for cargo screening, inspection, and security measures. Cargo carried in passenger airplanes must be screened or its security otherwise ensured. In practice, the Transportation Security Administration (TSA) has relied heavily on known shipper protocols to prevent shipments of cargo from unknown sources on passenger aircraft. ATSA also mandated development of a security plan for all-cargo operations. The TSA’s air cargo security plan has focused on risk-based methods for assessing cargo shipments and targeting physical inspections. The National Intelligence Reform Act of 2004 (P.L. 108-458) included provisions establishing a pilot program for evaluating the deployment of blast-resistant cargo containers; promoting the research, development, and deployment of enhanced air cargo security technology; evaluating international air cargo threats; and finalizing operational regulations of air cargo security. Those regulations, finalized by the TSA in 2006, require use of an industry-wide known shipper database, background checks of air cargo workers, and enhanced security measures at air cargo operations areas. In addition to these measures, Congress has provided appropriations to hire more canine teams and cargo inspectors to step up cargo screening and regulatory inspections.

Appropriations legislation over the past four years has called for continued increases to the amounts of air cargo placed on passenger airplanes that is physically screened. The Implementing Recommendations of the 9/11 Commission Act of 2007 (P.L. 110-53) requires the DHS to establish a system to physically screen 100% of all air cargo within three years, with an interim requirement of screening 50% of air cargo within 18 months of enactment. The act also directs the TSA to implement a program for deploying blast-resistant cargo containers for use by air carriers on a risk-managed basis. This report will be updated as needed.