Department of Homeland Security 

Office of Inspector General

 Evaluation of Screening of Air Cargo 
 

Transported on Passenger Aircraft 
 

(Unclassified Summary) 
 

OIG-10-119 September 2010 
Office a/Inspector General 

U.S. Department of Homeland Security 

Washington, DC 20528 

Homeland 

Security SEP 2 1 2010 

Preface 

The Department ofHomeland Security (DHS) Office ofInspector General (OIG) was 

established by the Homeland Security Act of2002 (public Law 107-296) by amendment 

to the Inspector General Act of1978. This is one of a series of audit, inspection, and 

special reports prepared as part of our oversight responsibilities to promote economy, 

efficiency, and effectiveness within the department. 

This report addresses the strengths and weaknesses of the Transportation Security 

Administration's screening measures to prevent the introduction of explosives into air 

cargo shipped on passenger aircraft. It is based on interviews with employees and 

officials of relevant agencies and institutions, direct observations, field testing, and a 

review of applicable documents. 

We judgmentally selected nine airports based on the high volume ofpassenger air cargo 

and locations with participants in the certified cargo screening program. At each 

location, we selected entities to test based on collaboration with the local inspectors' 

knowledge ofthe facilities and the technologies employed. 

The recommendations herein have been developed to the best knowledge available to our 

office, and have been discussed in draft with those responsible for implementation. We 

trust this report will result in more effective, efficient, and economical operations. We 

express our appreciation to all ofthose who contributed to the preparation ofthis report. 

~~~~

Richard L. Skinner 

Inspector General 
Background 

Approximately 7.6 million pounds of cargo are transported aboard 

passenger aircraft every day. Air cargo ranges in size from one pound to 

several tons and can include items such as electronic equipment, 

automobile parts, clothing, medical supplies, fresh produce, and human 

remams. 

The Aviation and Transportation Security Act 012001 (pL 107-71) 

established the requirement that the Transportation Security 

Administration (TSA) provide for the screening of cargo carried aboard 

passenger aircraft. Implementing Recommendations olthe 9/11 

Commission Act 012007 (PL 110­

53) mandated that TSA ensure the 

screening of 100 percent of cargo 

transported on passenger aircraft 

beginning August 2010. To meet 

this requirement, TSA developed the 

certified cargo screening program, 

Screening is defined as a physical 

examination or non-intrusive 

method ofassessing whether cargo 

poses a threat to transportation 

security. 

Source: Public Law 110-53 

under which shippers tender cargo for transport on passenger aircraft via a 

cargo screening facility that use TSA approved air cargo screening 

methods. Once screened, the cargo is forwarded to an air carrier for 

transport. According to TSA, currently over 75% of cargo transported on 

passenger aircraft is screened. 

Each piece of cargo must be screened using one ofthe following methods 

approved by TSA. 

•	 Explosive Trace Detection (ETD) is a device used to detect 

explosive particles. The ETD compares the chemical 

composition ofthe sample to the signature of known explosive 

materials. For cargo screening, the samples are usually taken 

from the outside ofthe box. 

•	 X-ray is a device that captures computer images ofthe cargo 

content, which is displayed on a monitor for the screener to 

detect any anomalies that could be threat items. 

•	 Physical search requires the screener to open the box or crate 

and examine the contents to prevent the introduction of any 

explosive, incendiary, or other destructive substance on to the 

aircraft. The contents are also matched to the description on 

the airway bill or manifest. 
•	 TSA-certified canine teams locate and identify dangerous 

materials and alert their handlers when dangerous materials are 

present. 

TSA provides mandatory air cargo security requirements to the air cargo 

industry through procedures contained in the Aircraft Operator Standard 

Security Program, and the Certified Cargo Screening Program Order. To 

ensure compliance with the screening procedures, TSA relies on 

transportation security inspectors (inspectors) who conduct 

comprehensive, supplemental, and special emphasis inspections of 

certified cargo screening facilities and air carriers. The inspectors provide 

compliance enforcement, on..the-spot counseling and educational outreach 

for these entities~

Our prior audit workl identified several vulnerabilities with air cargo 

security, including access controls to cargo holding areas and background 

checks for individuals handling air cargo. This audit evaluates the 

effectiveness ofthree ofthe cargo screening methods: 1) ETD, 2) x-ray, 

and 3) physical screening. 

1 (U) OIG-07-57 TSA's Oversight ofPassenger Aircraft Cargo Security Faces Significant Challenges, 

issued July 2007 and OIG-l0-09 Security ofAir Cargo During Ground Transportation, issued November 

2009. 
Results of Audit 

The number oftests conducted, the names of airports tested, and the 

quantitative and qualitative results ofour testing are classified. We have 

shared the information with the department, the Transportation Security 

Administration (TSA), and appropriate congressional committees. 

We identified vulnerabilities in the cargo screening procedures employed 

by air carriers and cargo screening facilities to detect and prevent 

explosives from being shipped in air cargo transported on passenger 

aircraft. As a result of our testing, we made five recommendations that, 

when implemented, should improve the agency's screening and security 

measures to prevent the introduction of explosives into air cargo shipped 

on passenger aircraft. 

We gave a copy ofour draft report to TSA for review and comment. The 

unclassified portion ofTSA's response to our draft report is summarized 

below. 

TSA's Response 

TSA appreciated our work and will consider our audit results as part ofits 

ongoing efforts to assess and improve air cargo screening for passenger 

aircraft. TSA provided general and specific comments to the report and 

recommendations. The agency acknowledged that improvements can be 

made in the air cargo screening process to prevent the introduction of 

explosives into air cargo on passenger aircraft. 
Appendix A 

Major Contributors to this Report 

Patrick O'Malley, Director 

Cheryl Jones, Audit Manager 

Edwin Soto, Auditor-in-Charge 

J. Eric Barnett, Auditor 

Christopher Byerly, Program Analyst 

Lindsey Cabral, Auditor 

Cory Upmeyer, Program Analyst 

Emily Pedersen, Referencer 
AppendixB 

Report Distribution 

Department of Homeland Security 

Secretary 

Deputy Secretary 

Chief ofStaff 

Deputy Chief of Staff 

General Counsel 

Executive Secretariat 

Director, GAO/OIG Liaison Office 

Assistant Secretary for Office of Policy 

Assistant Secretary for Office of Public Affairs 

Assistant Secretary for Office of Legislative Affairs 

Acting Assistant Secretary, Transportation Security Administration 

TSA Audit Liaison 

Office of Management and Budget 

Chief, Homeland Security Branch 

DHS OIG Budget Examiner 

Congress 

Congressional Oversight and Appropriations Committees, as 

appropriate 
ADDITIONAL INFORMATION AND COPIES 

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fax your request to (202) 254-4305, or visit the OIG web site at www.dhs.gov/oig. 

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