Office of Inspector General - United States Department of ... · PDF fileOffice of Inspector General Introduction ... potential for reducing airport security system vulnerabilities

DEPARTMENT OF HOMELAND SECURITY

Office of Inspector General

An Evaluation of the TransportationSecurity Administrations ScreenerTraining and Methods of Testing

Notice: The Department of Homeland Security, Office of Inspector General, has redacted this report for public release based on input from the relevant government entity pursuant to 49 C.F.R. Part 1520. Those redactions are identified as Part 1520 in the report. A review under the Freedom of Information Act, 5 U.S.C. 552, will be conducted upon request.

Office of Inspections, Evaluations, & Special Reviews

OIG-04-045 September 2004

appreciation to all of those who contributed to the preparation of this report.

Clark Kent Ervin Inspector General

Offi ce of Inspector General

U.S. Department of Homeland Security Washington, DC 20528

Preface

The Department of Homeland Security (DHS) Office of Inspector General (OIG) was established by the Homeland Security Act of 2002 (Public Law 107-296) by amendment to the Inspector General Act of 1978. This is one of a series of audit, inspection, investigative, and special reports prepared by the OIG as part of its DHS oversight responsibility to identify and prevent fraud, waste, abuse, and mismanagement.

This report assesses the strengths and weaknesses of the program or operation under review. It is based on interviews with employees and officials of relevant agencies and institutions, direct observations, and a review of applicable documents.

The recommendations herein have been developed to the best knowledge available to the OIG, and have been discussed in draft with those responsible for implementation. It is my hope that this report will result in more effective, efficient, and economical operations. I express my

Contents

Introduction......................................................................................................................................5

Results in Brief ................................................................................................................................6

Background ......................................................................................................................................9

Purpose, Scope, and Methodology.................................................................................................13

Findings .................14

Basic Screener Classroom Training .........................................................................................14Analysis..............................................................................................................................14Design ................................................................................................................................16Implementation ..................................................................................................................28Evaluation ..........................................................................................................................37

Basic Screener On-The-Job Training.......................................................................................41Analysis..............................................................................................................................41Design ................................................................................................................................43Implementation ..................................................................................................................47Evaluation ..........................................................................................................................48

Recurrent Training and Recertification Testing .......................................................................49Recurrent Program Has Been Established .........................................................................50Annual Screener Recertification Testing for FY 2003-04 Has Been Completed...............58

Other Issues Related to Screener Training, Screener Performance, and an Increase in the Detection of Prohibited Items ..................................................................................................62Use of the Online Learning Center Is Limited by Network Access...................................62Specific Screening Equipment Training and Certification Is Necessary............................66Efforts to Advance the Development and Deployment of New Screening Technologies

Should Be Accelerated....................................................................................................... 70Future Planning Should Account for Continually Changing Training Requirements .......73

An Evaluation of TSAs Screener Training and Methods of Testing Page 1

Contents

Appendices

Appendix A: Management Comments.......................................................................................75Appendix B: OIG Evaluation of Management Comments ........................................................94Appendix C: Recommendations ..............................................................................................107Appendix D: TSAs Interim Screener Recurrent Training Program Guidance ........................110Appendix E: Major Contributors to This Report .....................................................................115Appendix F: Report Distribution.............................................................................................116

Figures

Figure 1: Summary of Basic Screener Training Observations ..............................................8Figure 2: Checked Baggage Screener Basic Curriculum Activities Conducted..................33Figure 3: Required Cross-Training Hours for EDS Co-Located with ETD ........................45

: Screener Recertification Performance..................................................................60Figure 4: OLC Use ..............................................................................................................63Figure 5

Figure 6: Security Screening Equipment Models Currently in Use ....................................66Figure 7: Model-specific Screener ETD Training ...............................................................68Figure 8: On-Duty Screener EDS Certifications .................................................................69

Page 2 An Evaluation of TSAs Screener Training and Methods of Testing

Contents

Abbreviations

AMTAP Automated Multi-Level Training Assessment Program ATSA Aviation and Transportation Security Act CBT Computer-Based Training DFS Dual Function Screener DHS Department of Homeland Security DOT Department of Transportation EDS Explosives Detection System ETD Explosives Trace Detection EQA Office of Evaluation and Quality Assurance FAA Federal Aviation Administration FSD Federal Security Director FY Fiscal Year GAO Government Accountability Office IED Improvised Explosive Device IIT Image Interpretation Test IMT Image Mastery Test IPR Image Proficiency Review LEO Law Enforcement Officer MBS-2 Modular Bomb Set, Version II OIAPR Office of Internal Affairs and Program Review OIG Office of Inspector General OJT On-The-Job Training OLC Online Learning Center SOP Standard operating procedure SPR Standard Proficiency Review TAI TSA approved instructor TIP Threat Image Projection TRX TIP-Ready X-ray Machine TSA Transportation Security Administration TSL Transportation Security Lab WPT Office of Workforce Performance and Training

An Evaluation of TSAs Screener Training and Methods of Testing Page 3

Contents

Page 4 An Evaluation of TSAs Screener Training and Methods of Testing

OIGDepartment of Homeland Security Office of Inspector General

Introduction

In response to the September 11, 2001, terrorist attacks in the United States, Congress enacted the Aviation and Transportation Security Act, Public Law No. 107-71 (ATSA), which established the Transportation Security Administration (TSA). On February 17, 2002, TSA officially assumed responsibility for civil aviation security functions and began hiring and training federal employees to perform passenger checkpoint and checked baggage screening functions. ATSA requires a basic screener training program that consists of 40 hours of classroom instruction, 60 hours of on-the-job training (OJT), and an OJT examination before screeners may perform duties independently. After meeting these initial requirements, screeners must also receive recurrent training, operational testing, and an annual proficiency review, which includes TSAs annual screener recertification testing.

TSA developed two basic training courses to address the needs of passenger and checked baggage screeners. Although both types of screeners are taught some shared knowledge and skills, passenger checkpoint screeners develop additional skills in X-ray operation, screening of persons, and searching accessible property, while checked baggage screeners develop additional skills in searching checked baggage and operating certain machines that detect explosives. TSAs early versions of the basic training courses received criticism from the Department of Transportation and Department of Homeland Security Offices of Inspector General for the quality of OJT and checked baggage screener testing. In June 2003, TSAs Office of Workforce Performance and Training announced plans for course revisions. We initiated this review to determine whether TSA updated the courses and is meeting the training requirements set by ATSA.

An Evaluation of TSAs Screener Training and Methods of Testing Page 5

Results in Brief

Sin