69–006 

110TH CONGRESS REPORT " ! HOUSE OF REPRESENTATIVES 1st Session 110–482 

DIRECTING THE ASSISTANT SECRETARY OF HOMELAND SECURITY 

(TRANSPORTATION SECURITY ADMINISTRATION) TO ADDRESS 

VULNERABILITIES IN AVIATION SECURITY BY CARRYING OUT A PILOT 

PROGRAM TO SCREEN AIRPORT WORKERS WITH ACCESS TO SECURE 

AND STERILE AREAS OF AIRPORTS, AND FOR OTHER PURPOSES 

DECEMBER 11, 2007.—Committed to the Committee of the Whole House on the State 

of the Union and ordered to be printed 

Mr. THOMPSON of Mississippi, from the Committee on Homeland 

Security, submitted the following 

R E P O R T 

together with 

ADDITIONAL VIEWS 

[To accompany H.R. 1413] 

[Including cost estimate of the Congressional Budget Office] 

The Committee on Homeland Security, to whom was referred the 

bill (H.R. 1413) to direct the Assistant Secretary of Homeland Security (Transportation Security Administration) to address 

vulnerabilities in aviation security by carrying out a pilot program 

to screen airport workers with access to secure and sterile areas of 

airports, having considered the same, report favorably thereon with 

amendments and recommend that the bill as amended do pass. 

CONTENTS 

Page 

Purpose and Summary ............................................................................................ 3 

Background and Need for Legislation .................................................................... 3 

Hearings ................................................................................................................... 4 

Committee Consideration ........................................................................................ 4 

Committee Votes ...................................................................................................... 4 

Committee Oversight Findings ............................................................................... 6 

New Budget Authority, Entitlement Authority, and Tax Expenditures ............. 6 

Congressional Budget Office Estimate ................................................................... 6 

Statement of General Performance Goals and Objectives .................................... 7 

Congressional Earmarks, Limited Tax Benefits, and Limited Tariff Benefits ... 7 

Federal Mandates Statement ................................................................................. 7 

Advisory Committee Statement .............................................................................. 7 

Constitutional Authority Statement ...................................................................... 8 


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Applicability to Legislative Branch ........................................................................ 8 

Section-by-Section Analysis of the Legislation ...................................................... 8 

Changes in Existing Law Made by the Bill, as Reported ..................................... 9 

Additional Views ...................................................................................................... 10 

The amendments are as follows: 

Strike all after the enacting clause and insert the following: 

SECTION 1. ENHANCED PERIMETER SECURITY AND ACCESS CONTROL THROUGH COMPREHENSIVE SCREENING OF AIRPORT WORKERS. 

(a) PILOT PROGRAM.—Not later than 120 days after the date of the enactment of 

this Act, the Assistant Secretary of Homeland Security (Transportation Security Administration) shall carry out a pilot program at 7 service airports to screen all individuals with unescorted access to secure and sterile areas of the airport in accordance with section 44903(h) of title 49, United States Code. 

(b) PARTICIPATING AIRPORTS.—At least 2 of the airports participating in the pilot 

program shall be large hub airports (as defined in section 40102 of title 49, United 

States Code). At least 1 of the airports participating in the pilot program shall be 

a category III airport. Each of the remaining airports participating in the pilot program shall represent a different airport security risk category (as defined by the Assistant Secretary). 

(c) SCREENING STANDARDS.— (1) IN GENERAL.—Except as provided under paragraphs (2) and (3), screening 

for individuals with unescorted access under the pilot program shall be conducted under the same standards as apply to passengers at airport security 

screening checkpoints and, at a minimum of 1 airport, shall be carried out by 

a private screening company that meets the standards in accordance with section 44920(d) of title 49, United States Code. That airport shall be an airport 

that uses such a private screening company to carry out passenger screenings 

as of the date of the enactment of this Act. 

(2) DESIGNATED SCREENING LANE.—In addition to the requirements under 

paragraph (1), each airport participating in the pilot program shall designate 

at least one screening lane at each airport security screening checkpoint to be 

used to screen individuals with unescorted access on a priority basis under the 

pilot program. Such lane may also be used to screen passengers. 

(3) ALTERNATIVE MEANS OF SCREENING.—At 1 of the 7 airports participating 

in the pilot program, the Assistant Secretary shall deploy, instead of the screening standards required under paragraphs (1) and (2), alternative means of 

screening all individuals with unescorted access to secure and sterile areas of 

the airport. Alternative means of screening may include—

(A) biometric technology for airport access control; 

(B) behavior recognition programs; 

(C) canines to screen individuals with unescorted access to secure and 

sterile areas of the airport; 

(D) targeted physical inspections of such individuals; 

(E) video cameras; and 

(F) increased vetting, training, and awareness programs for such individuals. 

(d) VULNERABILITY ASSESSMENTS.—As part of the pilot program under this section, the Assistant Secretary shall conduct a vulnerability assessment of each airport participating in the pilot program. Each such assessment shall include an assessment of vulnerabilities relating to access badge and uniform controls. 

(e) TECHNOLOGY ASSESSMENTS.—Airport operators at each airport at which the 

pilot program under this section is implemented shall conduct an assessment of the 

screening technology being used at that airport and submit the results of the assessment to the Assistant Secretary. The Assistant Secretary shall compile the results 

of all the assessments and provide them to each airport participating in the pilot 

program. 

(f) OPERATIONAL ASSESSMENTS.—As part of the pilot program under this section, 

the Assistant Secretary shall conduct an operational assessment at each airport participating in the pilot program. Each such assessment shall include an evaluation 

of—

(1) the effect on security of any increase in terminal congestion created as a 

result of screening individuals with unescorted access under the pilot program; 

(2) the average wait times at screening checkpoints for passengers and individuals with unescorted access; 

(3) any additional personnel required to screen individuals with unescorted 

access; 

(4) the effect of screening individuals with unescorted access on other security-related activities at the airport; 


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(5) any lost productivity of individuals with unescorted access associated with 

airport participation in the pilot program; and 

(6) the rate at which ‘‘prohibited items’’ are detected and confiscated from individuals with unescorted access. 

(g) DURATION.—The pilot program shall be carried out for a period of not less than 

180 days. 

(h) AUTHORIZATION OF APPROPRIATIONS.—There are authorized to be appropriated 

such sums as may be necessary to carry out this section. 

(i) REPORT.—

(1) IN GENERAL.—Not later than 90 days after the last day of the pilot program, the Assistant Secretary shall submit to the Committee on Homeland Security of the House of Representatives and the Committee on Commerce, 

Science, and Transportation of the Senate a report on the results of the pilot 

program. 

(2) CONTENTS OF REPORT.—The report shall include the following: 

(A) An assessment of the effect of screening all airport workers with access to secure and sterile airport areas on screening and logistical resources. 

(B) An assessment of the security improvements that are achieved from 

screening such workers. 

(C) An assessment of the costs of screening such workers. 

(D) The results of the vulnerability assessments conducted under subsection (d). 

(E) An estimate of the infrastructure and personnel requirements necessary to implement a screening program for individuals with unescorted 

access at all commercial service airports in the United States in order to 

process each such individual and each passenger through each screening 

checkpoint in fewer than 10 minutes. 

Amend the title so as to read: 

A bill to direct the Assistant Secretary of Homeland Security (Transportation Security Administration) to address vulnerabilities in aviation security by carrying out 

a pilot program to screen airport workers with access to secure and sterile areas 

of airports, and for other purposes. 

PURPOSE AND SUMMARY

The purpose of H.R. 1413 is to direct the Assistant Secretary of 

Homeland Security (Transportation Security Administration) to address vulnerabilities in aviation security by carrying out a pilot 

program to screen individuals with unrestricted access to secure 

and sterile areas of airports, and for other purposes. 

BACKGROUND AND NEED FOR LEGISLATION

The Committee believes that unfettered employee access in airport terminals is a security gap in aviation that must be addressed, 

as in the November 2003, 25 people, mostly current or former employees at John F. Kennedy (JFK) International Airport, were arrested for operating a long-running drug smuggling operation. Another instance occurred in March 2007 at Orlando International 

Airport, where a Comair employee was arrested at Orlando International for smuggling weapons and drugs aboard a flight to San 

Juan, Puerto Rico. Then, at JFK in October 2007 employees were 

caught smuggling drugs through the airport. The Committee believes that the actions taken by H.R. 1413 are long overdue and 

that this legislation is a reasonable step toward ensuring better security for the Nation’s airports, airplanes, and travelers. The Committee emphasizes that a breach in airport security could have devastating consequences and that, without more rigorous efforts to 

screen airport employees, these gaps could be repeatedly exploited 

for the purposes of carrying out criminal, or even terrorist, acts. 


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HEARINGS

On February 6, 2007, the Subcommittee on Transportation Security and Infrastructure Protection held a hearing entitled ‘‘Update 

on Federal Rail and Public Transportation Security Efforts.’’ The 

Subcommittee received testimony from the Honorable Kip Hawley, 

Assistant Secretary, Transportation Security Administration, Department of Homeland Security, Mr. Terry Rosapep, Deputy Associate Administrator, Program Management, Federal Transit Administration, Department of Transportation, Mr. Michael Haley, 

Deputy Chief Counsel, Federal Railroad Administration, Department of Transportation, and Ms. Cathleen A. Berrick, Director, 

Homeland Security and Justice Issues, U.S. Government Accountability Office. 

On February 13, 2007, the Subcommittee on Transportation Security and Infrastructure Protection held a hearing entitled ‘‘Rail 

and Mass Transit Security: Industry and Labor Perspectives.’’ The 

Subcommittee received testimony from Mr. Fred Weiderhold, Inspector General, Amtrak, Ms. Nancy Wilson, Vice President for Security, Association of American Railroads, Mr. Lewis G. Schiliro, 

Director of Interagency Preparedness, Metropolitan Transportation 

Authority, State of New York, Mr. Gary Maslanka, International 

Vice President, Director of Railroad Division, Transport Workers 

Union, and Mr. John Murphy, Director, Teamster Rail Conference, 

International Brotherhood of Teamsters. 

On April 19, 2007, the Subcommittee on Transportation Security 

and Infrastructure Protection held a hearing entitled ‘‘Airport Security: The Necessary Improvements to Secure America’s Airports.’’

The Subcommittee received testimony from Hon. Kip Hawley, Assistant Secretary, Transportation Security Administration, Department of Homeland Security; Ms. Lauren Stover, Assistant Aviation 

Director for Security and Communications, Miami-Dade Aviation 

Department; Mr. Greg Principato, President, Airports Council 

International—North America; and Mr. William E. Holden, Senior 

Vice President of Operations, Covenant Homeland Security Solutions. 

COMMITTEE CONSIDERATION

H.R. 1413 was introduced by Mrs. Lowey and five original cosponsors on March 8, 2007, and referred solely to the Committee 

on Homeland Security. Within the Committee on Homeland Security, H.R. 1413 was referred to the Subcommittee on Transportation Security and Infrastructure Protection. 

On April 24, 2007, the Subcommittee on Transportation Security 

and Infrastructure Protection met in open markup session and ordered H.R. 1414 to be forwarded to the Full Committee for consideration, as amended, by unanimous consent. 

On August 1, 2007, the Full Committee met in open markup session and ordered H.R. 1413 favorably reported to the House of Representatives, amended, by voice vote. 

COMMITTEE VOTES

Clause 3(b) of rule XIII of the Rules of the House of Representatives requires the Committee to list the record votes on the motion 

to report legislation and amendments thereto. 


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On April 24, 2007, the Subcommittee on Transportation Security 

and Infrastructure Protection met in open markup session and ordered H.R. 1414 to be forwarded to the Full Committee for consideration, as amended, by unanimous consent. 

The following amendment was offered: 

An amendment offered by Ms. Jackson-Lee (#1); on Page 2, line 

7, after ‘‘at’’ strike ‘‘5 service airports to screen all airport workers 

with access’’ and insert ‘‘7 service airports to screen all individuals 

with unescorted access’’. Page 2, line 10, after ‘‘Code.’’ insert ‘‘At 

one of the seven airports, the Assistant Secretary shall deploy, instead of the screening standards under subsection (c), alternative 

means of screening all individuals with unescorted access to secure 

and sterile areas of the airport. Alternative means of screening includes: (1) biometric technology for airport access control; (2) behavior recognition programs; (3) canines to screen airport workers; 

(4) targeted physical inspections of employees; (5) video cameras; 

and (6) increased employee vetting, training, and awareness programs.’’. Page 2, line 14, before ‘‘Each’’ insert ‘‘At least 1 of the airports participating in the pilot program shall be a category III airport.’’. Page 2, line 20 after ‘‘screening for’’ delete ‘‘airport workers’’ and replace with ‘‘individuals with unescorted access’’. Page 2, line 

23 after ‘‘minimum of’’ delete ‘‘2 airports’’ and replace with ‘‘1 airport’’. Page 2, line 24 delete ‘‘private screening companies that 

meet’’ and replace with ‘‘a private screening company that meets’’. Page 2, line 26 after ‘‘Code.’’ insert ‘‘That airport shall be an airport 

that uses such a private screening company to carry out passenger 

screenings as of the date of the enactment of this Act.’’. Page 3, line 

5, strike ‘‘exclusively to screen airport workers under the pilot program.’’ and replace with ‘‘screen individuals with unescorted access 

on a priority basis under the pilot program. Such lane may also be 

used to screen passengers.’’. Page 3, line 20, insert ‘‘(f) OPERATIONAL ASSESSMENTS.—As part of the pilot program under 

this section, the Assistant Secretary shall conduct an operational 

assessment at each airport participating in the pilot program. Each 

such assessment shall include an evaluation of—(1) the effect on 

security of any increase in terminal congestion created as a result 

of screening individuals with unescorted access under the pilot program; (2) the average wait times at screening checkpoints for passengers and individuals with unescorted access; (3) any additional 

personnel required to screen individuals with unescorted access; (4) 

the effect of screening individuals with unescorted access on other 

security-related activities at the airport; (5) any lost productivity of 

individuals with unescorted access associated with airport participation in the pilot program; and (6) the rate at which ‘‘prohibited 

items’’ are detected and confiscated from individuals with 

unescorted access.’’ Page 3, line 21, redesignate subsections (f) 

through (h) as subsections (g) through (i), respectively. Page 4, line 

21, after ‘‘conducted under subsection (d).’’ insert ‘‘(E) An estimate 

of the infrastructure and personnel requirements necessary to implement a screening program for individuals with unescorted access at all commercial service airports in the United States in order 

to process each passenger or employee through each screening 

checkpoint in fewer than 10 minutes.’’; and to amend the title so 

as to read: ‘‘To direct the Assistant Secretary of Homeland Security 

(Transportation Security Administration) to address vulnerabilities 


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in aviation security by carrying out a pilot program to screen individuals with unrestricted access to secure and sterile areas of airports, and for other purposes.’’.; was AGREED TO by voice vote. 

On August 1, 2007, the Full Committee met in open markup session and ordered H.R. 1413 favorably reported to the House of Representatives, amended, by voice vote. 

The following amendments were offered: 

The Committee considered a Committee Print showing the text 

of H.R. 1413 as agreed to by the Subcommittee. The title of the 

Committee Print was amended so as to read ‘‘to direct the Assistant Secretary of Homeland Security (Transportation Security Administration) to address vulnerabilities in aviation security by carrying out a pilot program to screen airport workers with access to 

secure and sterile areas of airports, and for other purposes.’’

The Committee adopted the bill, as amended, by voice vote. 

The following amendments were offered: 

An amendment offered by Mr. Dent (#1), to insert a new subsection (g) entitled ‘‘(g) Suspension’’ was WITHDRAWN by unanimous consent. 

COMMITTEE OVERSIGHT FINDINGS

Pursuant to clause 3(c)(1) of rule XIII of the Rules of the House 

of Representatives, the Committee has held oversight hearings and 

made findings that are reflected in this report. 

NEW BUDGET AUTHORITY, ENTITLEMENT AUTHORITY, AND TAX

EXPENDITURES

In compliance with clause 3(c)(2) of rule XIII of the Rules of the 

House of Representatives, the Committee finds that H.R. 1413, 

would result in no new or increased budget authority, entitlement 

authority, or tax expenditures or revenues. 

CONGRESSIONAL BUDGET OFFICE ESTIMATE

The Committee adopts as its own the cost estimate prepared by 

the Director of the Congressional Budget Office pursuant to section 

402 of the Congressional Budget Act of 1974: 

U.S. CONGRESS, CONGRESSIONAL BUDGET OFFICE, Washington, DC, September 5, 2007. 

Hon. BENNIE G. THOMPSON, 

Chairman, Committee on Homeland Security, 

House of Representatives, Washington, DC. 

DEAR MR. CHAIRMAN: The Congressional Budget Office has prepared the enclosed cost estimate for H.R. 1413, a bill to direct the 

Assistant Secretary of Homeland Security (Transportation Security 

Administration) to address vulnerabilities in aviation security by 

carrying out a pilot program to screen airport workers with access 

to secure and sterile areas of airports. 

If you wish further details on this estimate, we will be pleased 

to provide them. The CBO staff contact is Megan Carroll. 

Sincerely, 

PETER R. ORSZAG, 

Director. 


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Enclosure. 

H.R. 1413—A bill to direct the Assistant Secretary of Homeland Security (Transportation Security Administration) to address 

vulnerabilities in aviation security by carrying out a pilot program to screen airport workers with access to secure and sterile 

areas of airports 

H.R. 1413 would direct the Assistant Secretary of Homeland Security, through the Transportation Security Administration (TSA), 

to test and evaluate alternative means of screening certain individuals employed at airports. Under the bill, TSA would establish 

pilot projects at seven airports to screen all individuals with 

unescorted access to secure areas of airports and areas where access is controlled by TSA (known as sterile areas). The legislation 

would require the agency to initiate those projects within 120 days 

of enactment, operate them for at least 180 days, and, after ending 

the projects, report on their results within 90 days. 

Based on information from TSA on the cost of similar activities 

to develop and test screening systems, CBO estimates that implementing H.R. 1413 would cost $10 million over the 2008–2009 period, assuming appropriation of the necessary amounts. Enacting 

H.R. 1413 would not affect direct spending or revenues. H.R. 1413 

contains no intergovernmental or private-sector mandates as defined in the Unfunded Mandates Reform Act and would impose no 

costs on state, local, or tribal governments. 

The CBO staff contact for this estimate is Megan Carroll. This 

estimate was approved by Peter H. Fontaine, Assistant Director for 

Budget Analysis. 

STATEMENT OF GENERAL PERFORMANCE GOALS AND OBJECTIVES

Pursuant to clause 3(c)(4) of rule XIII of the Rules of the House 

of Representatives, H.R. 1413, contains the following general performance goals, and objectives, including outcome related goals and 

objectives authorized. 

H.R. 1413 establishes a pilot project and requires a report to the 

Congress 270 days after the creation of the pilot project. 

CONGRESSIONAL EARMARKS, LIMITED TAX BENEFITS, AND LIMITED

TARIFF BENEFITS

In compliance with rule XXI of the Rules of the House of Representatives, this bill, as reported, contains no congressional earmarks, limited tax benefits, or limited tariff benefits as defined in 

clause 9(d), 9(e), or 9(f) of the rule XXI. 

FEDERAL MANDATES STATEMENT

The Committee adopts as its own the estimate of Federal mandates prepared by the Director of the Congressional Budget Office 

pursuant to section 423 of the Unfunded Mandates Reform Act. 

ADVISORY COMMITTEE STATEMENT

No advisory committees within the meaning of section 5(b) of the 

Federal Advisory Committee Act were created by this legislation. 


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CONSTITUTIONAL AUTHORITY STATEMENT

Pursuant to clause 3(d)(1) of rule XIII of the Rules of the House 

of Representatives, the Committee finds that the Constitutional authority for this legislation is provided in article I, section 8, clause 

1, which grants Congress the power to provide for the common Defense of the United States. 

APPLICABILITY TO LEGISLATIVE BRANCH

The Committee finds that the legislation does not relate to the 

terms and conditions of employment or access to public services or 

accommodations within the meaning of section 102(b)(3) of the Congressional Accountability Act. 

SECTION-BY-SECTION ANALYSIS OF THE LEGISLATION

Section 1. Comprehensive screening of airport workers 

This section establishes pilot program at seven airports to screen 

all individuals with access to secure areas. It also dictates that, of 

the seven airports, at least two must be large hub airports. One 

must be a category III airport, and one airport shall deploy alternative means of screening all individuals with unescorted access to 

secure and sterile areas of the airport. Within the scope of this provision, alternative means of screening may include biometric technology for airport access control; behavior recognition programs; canines to screen airport workers; targeted physical inspections of 

employees; video cameras; and increased employee vetting, training, and awareness programs. Under this section, the remaining 

airports shall represent a different security risk as defined by the 

Assistant Secretary, Transportation Security Administration, Department of Homeland Security (Assistant Secretary). 

In addition, the Committee believes that when implementing this 

section the Assistant Secretary should consult with the airport operator, the appropriate air carriers, airport and airline employee 

organizations and their representatives for each airport under consideration as a site for the pilot program. The effectiveness of the 

pilot program will be enhanced by such consultation and will help 

to assure that the pilot program at each participating airport is tailored to the unique infrastructure and physical configuration of 

that airport. Even, in some instances, conducting screening away 

from the passenger checkpoint. 

The Committee encourages the use of the same equipment and 

protocols as those established for passengers at security checkpoints. However, the Committee intends for the pilot program to 

allow individuals with unescorted access to carry necessary items 

that would otherwise be prohibited under guidelines established by 

the Assistant Secretary for passenger screening. 

The pilot program requires at least one of the airports to be an 

airport that uses a private screening company instead of Transportation Security Officers to screen passengers. Additionally, all airports must designate at least one separate screening lane for workers, although this provision allows such designated screening lane 

to be used for passenger screening as well. 

This section requires the Assistant Secretary to conduct vulnerability (including access badge and uniform controls) and operational assessments for pilot airports. It requires airport operators 


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to conduct assessments of screening technology and submit those 

assessments to the Assistant Secretary, and the Assistant Secretary shall submit a report within 90 days of implementation to 

the Committee on Homeland Security of the House of Representatives and the Committee on Commerce, Science, and Transportation of the Senate detailing the status of the program, including 

program costs and effects, and the status of the vulnerability assessments. 

The Committee notes that a Government Accountability Office 

estimate of more than one million airport workers, including cabin 

cleaners, maintenance crews, and caterers, are permitted to bypass 

metal detectors or other physical screening before accessing secure 

areas. The Committee believes that this security gap has been exploited too many times by workers in the past, as in the November 

2003 case where 25 people, mostly current or former employees at 

John F. Kennedy International Airport, were arrested for operating 

a long-running drug smuggling operation. Another instance occurred in March 2007 at Orlando International Airport, where a 

Comair employee was arrested at Orlando International for smuggling weapons and drugs aboard a flight to San Juan, Puerto Rico. 

The Committee believes that the actions taken by H.R. 1413 are 

long overdue and that this legislation is a reasonable step toward 

ensuring better security for the Nation’s airports, airplanes, and 

travelers. The Committee emphasizes that a breach in airport security could have devastating consequences and that, without more 

rigorous efforts to screen airport employees, these gaps could be repeatedly exploited for the purposes of carrying out criminal, or 

even terrorist, acts. 

CHANGES IN EXISTING LAW MADE BY THE BILL, AS REPORTED

In compliance with clause 3(e) of rule XIII of the Rules of the 

House of Representatives, changes in existing law made by the bill, 

as reported. H.R. 1413 makes no changes to existing law. 


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ADDITIONAL VIEWS 

H.R. 1413 seeks to enhance aviation security through screening 

employees with access to secure and sterile areas of airports. This 

legislation requires the Transportation Security Administration 

(TSA) to conduct a pilot program at seven airports to screen individuals with access to secure and sterile areas. Six participating 

airports must screen 100 percent of airport workers using passenger screening standards. 

While I support efforts to improve security in Security Identification Display Areas (SIDA) of airports, I question the merits of requiring airport employees with access to secure areas to be 

screened under the same standards as passengers. Unlike passengers, many airport employees must move from the unsecured 

area of the airport to the SIDA area several times a day. Also, unlike passengers, employees are subject to background checks and 

other security-related reviews. 

Should airport workers want to cause damage within a SIDA, 

many potential tools of destruction are at their disposal within the 

secure area. During Subcommittee consideration of H.R. 1413, I introduced an amendment that directs the TSA to select a seventh 

participating airport to evaluate alternative, and potentially more 

effective, screening techniques developed in coordination with the 

TSA. I believe this change will allow the TSA to assess and compare options for screening—but regret that the main focus of the 

bill’s other six pilots remains fixated on the 100 percent screening 

of employees using passenger standards. As currently drafted, H.R. 

1413 inappropriately stacks the deck in favor of one security measure, rather than promoting a balanced review of all available strategies. I believe that an effective pilot would grant TSA greater discretion for testing alternative forms of screening, rather than emphasize 100 percent screening. 

The cost of this pilot program is another concern which the Committee failed to adequately address. I am aware of two projected 

cost estimates for the pilot which vary substantially. The Congressional Budget Office (CBO) recently estimated that implementing 

H.R. 1413 would cost $10 million over the 2008–2009 period. However, the United States Commercial Aviation Partnership (USCAP) 

projects the cost of this temporary, 6-month pilot at between $116 

and $275 million. The House-passed Department of Homeland Security Appropriations Act for Fiscal Year 2008, H.R. 2638, would 

provide only $5 million for a pilot to screen airport workers, but 

does not mandate 100 percent screening. Similarly, the Senatepassed bill, S. 1644, would provide $15 million for ‘‘various methods’’ to evaluate screening of airport employees, but also does not 

mandate 100 percent screening for such pilots. Accordingly, there 

could be great disparity between the estimated costs and the 


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amount of federal funding made available for the airport employee 

screening pilot described in H.R. 1413. 

Currently, airports provide a physical plan to enable screening, 

while the TSA provides the security equipment and the screening 

staff. H.R. 1413 does not address how such responsibilities will be 

divided under the pilot program. If TSA receives a 100 percent 

screening mandate without adequate funding from appropriations, 

TSA will be forced to shift Transportation Security Officers away 

from passenger screening lanes in order to staff the pilots. This 

could result in longer passenger wait times and discourage air travel. On the other hand, forcing airports or airlines to pay the costs 

of the temporary pilot program would drive up costs, increase 

prices and perhaps also lower demand, with no clear long-term security benefit to the airport. 

H.R. 1413’s requirements can have significant consequences to 

the normal operations of the airport. At least one Category III airport will be involved, and such airports have substantially dissimilar traffic patterns and different security threats than larger 

airports. Requiring 100 percent screening at a smaller airport could 

quickly prove that it requires higher financial costs or TSA resources that far outpace the threat of terrorism at that facility. 

Such a result would discount a crucial 9/11 Commission recommendation that finite resources be expended on the basis of risk. 

While I support the underlying goals of this legislation, I have 

lingering reservations about the scope and cost of the security mandates imposed, and the current lack of funding. Accordingly, I believe that further modifications to the bill may be necessary. 

DANIEL E. LUNGREN. 

Æ 


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