Transportation Security Administration 

Performance Targets and Action Plan 

180 Day Report to Congress 

19 May 2002 
Introduction 

This report has been prepared for submission to Congress in response to the following 

directive of Section 130 of the Aviation and Transportation Security Act (ATSA), Public 

Law 107-71, 115 Stat. 597 enacted on 19 November 2001: “...the Under Secretary for 

Transportation Security may, in consultation with Congress: 

i) Establish acceptable levels of performance for aviation security, including screening 

operations and access control, and 

ii) Provide Congress with an action plan, containing measurable goals and milestones, 

that outlines how those levels of performance will be achieved.” 

The purpose of this report is to share with Congress the preliminary work that we have 

completed in the areas of performance measurement and management for aviation 

security and to provide the opportunity for feedback as we work to fully develop and 

implement our processes and performance systems to measure progress.

Performance-based Organization 

TSA is committed to being a leading-edge, performance-based organization—an

organization whose operative culture establishes performance expectations that support 

the mission; drives those expectations into organizational and individual performance

plans; and collects objective data to assess its performance. We have made significant

progress. 

TSA is currently measuring its performance and collecting information to establish 

performance baselines against which we will manage and assess our performance in the 

future. Our overall strategic performance goal is to prevent intentional harm or 

disruption to the transportation system by terrorists or other persons intending to cause 

harm. There are many activities that must be performed to achieve that goal—many are 

being performed today, while others are being defined and refined by TSA. We have 

focused on an initial set of three process performance goal areas, that give us a top-level 

view of our progress during FY02 and early FY03. These goals will be evolving rapidly 

over the next 6-12 months as TSA operations come on line and we learn what is required 

to effectively manage the operation and what specific levels of performance should be 

expected that ensure we meet the overall TSA goal. The strategic goals on which initial 

performance measures will be based and reported are: 

 Meeting the ATSA mandates to federalize transportation security, beginning with the 

aviation system. We are collecting and assess our performance in federal takeover of

security operations at airports, federalizing the key security processes, and 

transitioning the security workforce to federal employees. 

 Maintaining aviation security. We are collecting and measure our performance in

implementing security technologies and in increasing the skills of the security 

workforce through comprehensive training. 

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 Servicing our customers. We are collecting information to baseline customer 

satisfaction as well as perceptions of the quality and courteousness of our security 

operations, including their wait times. 

TSA has fielded an interim performance measurement data collection and reporting 

capability. Our Performance Measurement Information System provides timely 

information to help ensure we meet our mandates to federalize transportation security. 

The same system provides information on security activities in the field and supports our 

airport Federal Security Directors (FSDs) as they manage their operations. This system is 

a first step capability that will be enhanced as we learn what is needed to best manage the 

agency. It embodies the performance-based management culture that is critical to 

meeting our mission with the full confidence of the Congress, the Administration, and the 

American public. 

TSA’s performance management system has a strong foundation: 

 We have committed to a process-based performance management approach with 

centralized monitoring to assure consistent performance across the transportation

system. We will proactively manage processes to achieve our mission and avoid

being in a reactive posture. 

 We have identified and described our mission essential business and security 

processes, designated process owners and performers, and are identifying the specific

performance expectations and measures for those processes. 

 We are implementing cost effective methods and tools to collect, analyze, and use 

performance measures to assess TSA’s progress in meeting our mission and to assure 

accountable parties meet their commitments. 

 We have developed a performance measurement, management, and reporting 

infrastructure that draws on a common data set. The same data set that provides 

information to our field managers for operational management also provides

information to TSA headquarters staff for overall system performance assessment, 

risk assessment and management, and operational review and oversight. That same

system provides the data to report on our progress to Congress. 

President’s Management Agenda 

TSA’s performance management approach also ensures that we are in accord with the 

President’s Management Agenda in several key areas: 

 With respect to Human Capital Management, our process-based approach will define

what needs to be done down to the level of individuals or small work groups. 

 With respect to Financial Management and Budget/Performance Integration, our 

approach will be used to identify the resources required to execute processes. By 

design, we will automatically be able to tie resource requirements and expenditures to 

performing mission-critical processes and achieving desired results. Likewise, we 

will be able to understand where additional resources are required and what are 

specific trade-offs should they not be available. 

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 Our performance management system utilizes a Web-based tool, and will be an

excellent federal government example of leveraging the internet to efficiently perform 

a critical governmental function. 

Performance Measures to Track Progress 

TSA is at the beginning of rolling out security to airports. Specific security and business

processes are being refined and prototyped in the field and in Headquarters. We are 

confident that our ultimate performance goal will be achieved: no intentional harm or

disruption to the nation’s transportation system. However, the contributing performance 

levels for each element of the transportation security system must be tested in real life 

operations and be allowed to stabilize. 

As TSA is mandated to ‘stand up’ components of its organization and engage in distinct 

transportation security activities on particular timelines, these requirements have been 

employed as initial performance measures for the agency. TSA’s FY02 performance 

goals relate to the procedural aspects of federalizing aviation security and assuming the 

central responsibilities of transportation security. For FY03, TSA will finalize and

implement performance outcome goals and measures on which TSA’s management

success is based. 

Initial goals have been broken into three main areas for the purposes of Government

Performance and Results Act (GPRA) reporting: 

 Transition security functions and responsibilities at airport facilities 

 Deploy equipment and workforce improvements to enhance security 

 Baseline our performance in meeting customer expectations 

Building from these strategic goal areas, measures to serve as initial indicators of success

for TSA’s operations have been identified (Exhibit 1). They are aimed at providing 

essential management information to FSDs, TSA Executives, and Congress, as well as

measuring progress against the agency’s Performance Plan goals. 

Exhibit 1, Government Performance and Results Act Measures 

Measure/ 

Data Definition / Purpose 

Federalize 

Aviation 

Security 

In order to measure the TSA’s progress in federalizing aviation security, there are

two primary indicators: percentage of staff required that are on board and 

percentage of airports that have been rolled over to federal authority. 

% authorized Federal Security Directors (FSDs) that have been hired 

% required Federal Air Marshals (FAMs) that are operational (hired and trained) 

% authorized LEOs operational (hired and trained) 

% authorized passenger screeners deployed

% authorized baggage screeners deployed 

% airports with fully federalized screeners 

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Measure/ Definition / Purpose Data 

Progress of federalizing checkpoint passenger / gate passenger / baggage / cargo screening process,

physical access control, and perimeter security 

(1) Process design complete

(2) Pilot rolled-out 

(3) # airports with federalized security process 

(4) % airports with fully federalized security processes 

Improve 

Security 

As it federalizes aviation security, the TSA will, at a minimum, maintain the integrity 

of the security system. Although additional security measures will be developed and 

utilized in the future, improving security initially will be measured by success in 

screening bags with Explosive Detection System/Explosive Trace Detection machines

and by ensuring that screeners have appropriate training (currently defined as 40-

hours of classroom and 60-hours of On-the-Job training).

% Bags screened through explosive detection systems (EDS)/explosive trace detection systems (ETD) 

% Screeners with 40-hour training completed

% Screeners with 60-hour OTJ training completed

Customer

Satisfaction

One of TSA’s goals is to be customer-focused in its aviation security activities. 

Initially, customer satisfaction will be captured by monitoring numbers of customer

complaints and customer wait time. A national poll and customer surveys 

(distributed at the airports) are planned methods to supplement this performance 

information. 

# complaints per 1,000 passengers 

Average wait time (collected on an hourly basis) at passenger screening checkpoints 

Performance Plan Measures 

For FY03, TSA will set forth specific security outcome performance goals and measures. 

These may change as it is determined which performance measures drive effective

security results and which are critical for external reporting. The areas from which these 

goals will flow: 

 Federalization: Complete aviation security federalization and begin processes for

other modes 

 Security: Prevent successful terrorist (or other) incidents; Implement and utilize 

security technology; Hire, train, certify, and monitor the performance of a security 

workforce; Utilize Federal Air Marshals to cover flights 

 Customer Service: Monitor wait times, Establish Customer Satisfaction Index 

 Efficiency: Monitor security costs per enplanement and security checkpoint 

throughput 

Performance Measurement System Fielded 

An initial performance measurement system that enables the collection and presentation

of performance measures data was fielded on 25 April 2002. This system—a first step 

toward the development of the operational performance management system—collects 

data from Headquarters’ functions and operators in the field to measure how well the new 

TSA-specified processes are performed and the security results/outcomes that are 

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achieved. It presents these data through a series of Web-based reports that provide 

information for management and front-line decision making as well as externallyrequired reporting. TSA Executives, Federal Security Directors, screener supervisors, 

and Strategic Planning and Management staff access this system. By fielding this 

system, the operational tone of the TSA is one that is performance driven. 

Although the TSA is currently focusing much of its staff energies and resources on 

responding to its aviation security requirements, it remains the federal agency responsible 

for developing policy and overseeing all transportation security concerns. The

performance framework that has been created allows for TSA’s performance 

management system to accommodate this expansion of organizational duties and 

responsibilities, including both expanding into other modes and redefining activities 

within existing processes and modes. 

Plan of Action and Milestones for Screening Operations and Access Control 

Screening Operations

Although performance expectations for specific screening operations (e.g., confiscation 

of weapons and other prohibited items at checkpoints) have not been fielded, this 

information is being captured for internal operations decision making and as baseline 

information to be used in setting performance expectations. We also have identified 

performance measures and are utilizing proxy data to ensure that we are accountable for 

prompt and measurable success. Specifically, our performance measures, milestones and 

proxy data for Screening Operations are illustrated in Exhibit 2. 

Exhibit 2, Passenger and Baggage Screening Operations 

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6) Complete 100% of 429 airports

by 31 December 2002

6) Implement Federalized Baggage 

Screening Processes

6) Federalize Baggage Screening

Processes

7) Hire and Deploy 100% of

Authorized Workforce by 31

December 2002

7) Deploy Federalized Baggage 

Screening Workforce

7) Federalize Baggage Screening

Workforce

Intended Performance, Measurable Goals and Milestones for FY02/FY03

11) Develop Risk Model to Determine 11) Risk Model(s) Developed 11) Risk Contributors Identified

Acceptable Levels of Security

Risks/Methods to Appropriately 

Mitigate Risk

10) Completed Development and

Deployment of Proof-of-Concept

Performance Measurement

System

10) Operational Performance 

Management System Developed and 

Deployed

10) Implement Process driven,

Quantitative Operations

Management Capability

9) Screen 100% of Bags via

EDS/ETD at 429 airports

9) 100% of Bags EDS/ETD Screened

by 31 December 2002

9) EDS/ETD Screen Bags

8) Continuous Measurement –

Should Always be 100%

8) 100% of Screeners have 40 hours

Classroom and 60 hours OJT

training

8) Train Screeners

5) Hire and Deploy 100% of

Authorized Workforce by 18

November 2002

5) Deploy Federalized Passenger

Screening Workforce

5) Federalize Passenger Screening

Workforce

4) Complete 100% of 429 airports

by 19 November 2002

4) Implement Federalized Passenger

Screening Processes

4) Federalize Passenger Screening

Processes

3) Pilot Passenger, and Baggage 3) Complete FY02 3) Completed

Screening Operations

2) Crew Training Developed 2) Complete FY02 2) Completed

1) Processes for Passenger & Baggage 1) Complete FY02 1) Completed

Screening Defined

Milestones Intended Performance

(FY02/FY03)

Measure/Proxy Data

6) Complete 100% of 429 airports

by 31 December 2002

6) Implement Federalized Baggage 

Screening Processes

6) Federalize Baggage Screening

Processes

7) Hire and Deploy 100% of

Authorized Workforce by 31

December 2002

7) Deploy Federalized Baggage 

Screening Workforce

7) Federalize Baggage Screening

Workforce

Intended Performance, Measurable Goals and Milestones for FY02/FY03

11) Develop Risk Model to Determine 11) Risk Model(s) Developed 11) Risk Contributors Identified

Acceptable Levels of Security

Risks/Methods to Appropriately 

Mitigate Risk

10) Completed Development and

Deployment of Proof-of-Concept

Performance Measurement

System

10) Operational Performance 

Management System Developed and 

Deployed

10) Implement Process driven,

Quantitative Operations

Management Capability

9) Screen 100% of Bags via

EDS/ETD at 429 airports

9) 100% of Bags EDS/ETD Screened

by 31 December 2002

9) EDS/ETD Screen Bags

8) Continuous Measurement –

Should Always be 100%

8) 100% of Screeners have 40 hours

Classroom and 60 hours OJT

training

8) Train Screeners

5) Hire and Deploy 100% of

Authorized Workforce by 18

November 2002

5) Deploy Federalized Passenger

Screening Workforce

5) Federalize Passenger Screening

Workforce

4) Complete 100% of 429 airports

by 19 November 2002

4) Implement Federalized Passenger

Screening Processes

4) Federalize Passenger Screening

Processes

3) Pilot Passenger, and Baggage 3) Complete FY02 3) Completed

Screening Operations

2) Crew Training Developed 2) Complete FY02 2) Completed

1) Processes for Passenger & Baggage 1) Complete FY02 1) Completed

Screening Defined

Milestones Intended Performance

(FY02/FY03)

Measure/Proxy Data

Access Control (Perimeter and Physical Access)

The ATSA calls for improved airport perimeter access security including security of 

aircraft, ground access to secure areas, and airport perimeter screening. As one 

component of this, the Law requires that TSA “establish pilot programs in no fewer than 

20 airports to test and evaluate new and emerging technology for providing access 

control and other security protections for closed or secure areas of the airport.” The TSA 

is developing a list of airports that are candidates for these pilot programs. 

In addition to its access control pilot programs, the TSA has established a DOT 

Credential Office that will be responsible for developing a credentialing system to control 

access to transportation operations areas. A technical architecture for this system has

been developed and industry has been engaged to receive feedback on the DOT/TSA’s 

credentialing plans and methods. The credentialing system is on schedule to be piloted 

prior to the close of the fiscal year. 

Performance measures, milestones and proxy data for Access Control include the

following as shown in Exhibit 3. 

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Exhibit 3, Access Control 

Role of Other Organizations 

for all transportation security activities, there are other 

takeholders and federal agencies whose operations are critical to the initial operational 

erformance goals for modes other than aviation are subsumed within 

e performance plans of the relevant DOT modal administrations. TSA will incorporate

first year of operations, faces significant challenges and very high 

xpectations. Although the agency is responsible for “security in all modes of 

n broken into three main categories for

e purposes of Government Performance and Results Act reporting: (1) Federalize

ses for which it is responsible (i.e., 

viation, maritime, and land transportation security activities) and determines the drivers 

of transportation security risk and related critical performance measures, the initial 

Intended Performance, Measurable Goals and Milestones for FY02/FY03

4) Establish Credentialing System Pilot 4) Pilot Established FY02 4) Determine Date for Pilot to Begin

3) Engage Industry on Credentialing 3) Industry Engaged FY02 3) Completed

Processes/Methods

2) Credentialing System Architecture 2) Completed

Developed FY02

2) Develop Credentialing System

Architecture

1) First access control pilot 

established

1) Twenty access control pilots

established

1) Establish Access Control Pilots

Milestones Intended Performance

(FY02/FY03)

Measure/Proxy Data

Intended Performance, Measurable Goals and Milestones for FY02/FY03

4) Establish Credentialing System Pilot 4) Pilot Established FY02 4) Determine Date for Pilot to Begin

3) Engage Industry on Credentialing 3) Industry Engaged FY02 3) Completed

Processes/Methods

2) Credentialing System Architecture 2) Completed

Developed FY02

2) Develop Credentialing System

Architecture

1) First access control pilot 

established

1) Twenty access control pilots

established

1) Establish Access Control Pilots

Milestones Intended Performance

(FY02/FY03)

Measure/Proxy Data

Although TSA is responsible

s

success of TSA. These include airlines, airport authorities, the National Guard, and state 

and local police. In addition, the FAA and the intelligence community have key roles in

supporting TSA as it works to achieve its goals. The responsibilities of these

organizations include providing regulatory oversight, policy development, and oversight 

of select security screener activities in the form of Law Enforcement Officer oversight

and interventions. 

In FY02, security p

th

non-aviation security performance targets into its FY03 Performance Plan. 

Conclusion 

TSA, in its

e

transportation,” Public Law 107-71, the ATSA, laid out very clear expectations for 

TSA’s assumption of aviation security standards. Accordingly, it is these expectations 

that TSA is working to fulfill in its initial years. 

The initial aviation security goals of TSA have bee

th

aviation security, (2) Improve/maintain aviation security, and (3) Customer satisfaction. 

In each of these arenas, clear measures of performance have been established and staff 

responsible or accountable for performance have been determined. An initial 

performance measurement system has been developed that allows for data collection and 

presentation of these initial performance measures. 

As TSA continues to define and execute the proces

a

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performance measurement system will give way to an operational performance

management system. This performance management system will feed both operational 

performance management decision making and system-wide performance analysis. 

The system will provide a central source of performance and risk information, enabling 

information on security readiness to be derived from actual operational performance. 

he system will include data to develop and report internal and external performance 

ion. We

annot fail. And we must have the mechanisms to know where our performance stands 

T

measures, operational performance data (e.g., security machine performance data), and 

will rely largely on automated data collection and reporting. It will be scaleable

functionally and technically to respond to the evolution and expansion of TSA’s mission 

and scope (e.g., into all modes of transportation security). And it will enable TSA to 

provide in our future performance reports the following information: (1) what are critical 

security measures, (2) what are the outcomes of our activities as they pertain to

transportation security, (3) is our performance improving or worsening/is it at acceptable 

levels, and (4) is our transportation security system yielding acceptable levels of risk for

our nation’s travelers, as well as the industries that rely on the transport system. 

TSA is well on its way to being among the federal government leaders in performance 

measurement and management. That is fitting, given the importance of our miss

c

and to assure the American people the transportation system is as secure as we can make 

it, given the many (sometimes competing) interests, constraints, and expectations. 

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